Medium Term Infrastructure Investment Plan

Transcription

comprising:
Medium Term Integrated Climate
Resilient Urban Infrastructure
Investment Program
and Pre-Feasibility Study
Pre-Feasibility Study (PFS)
TA 8556 REG
Integrated City Development Strategy (ICDS)
P46526 PAK
Climate Risk and Vulnerability Assessment (CRVA)
SC 105335 PAK
Final Report – Sialkot, Pakistan
April 2016
This Consultant’s Report does not necessarily reflect the views of ADB or the CDIA or the Government concerned, and ADB, CDIA and the
Government cannot be held liable for its contents. All the views expressed herein may not be incorporated into the proposed project’s
design
Medium Term Integrated Climate Resilient
Urban Infrastructure Investment Program
and Pre-Feasibility Study of Sialkot, Pakistan
Acknowledgements
Acknowledgements
The Team wishes to acknowledge with thanks and appreciation the support they have received
(individually as well as collectively) throughout the completion of this assignment.
A special thanks is owed to the Urban Unit under the very capable and dynamic leadership of Dr.
Nasir Javed, Ms. Nargiza Talipova and Mr. Shaukat Shafi of the Asian Development Bank and Mr.
Nadir Ehsan of the Cities Development Initiative for Asia (CDIA). Whilst we cannot name them all
here, our particular thanks go to Mr. Khalid Masood Chaudhry, the Secretary Local Government
and Community Development Department Punjab; Mr. Shahid Farid, Deputy Secretary Local
Government & Community Development Department Punjab; Mr. Adnan Mehmood Awan,
Administrator TMA Sialkot (outgoing); The newly appointed ADC and Administrator of Sialkot;
The Nazim (elect) for Sialkot and Dr. Syed Murtaza Bukhari, Project Director Transport Planning
Unit Lahore.
The PICIIP Urban Unit counterparts under the direction of Abid Hussainy and Rizwan ur Rehman
have worked tirelessly to support the ADB, CDIA and the three study Teams in all matters
necessary for the achievement of initial outputs. Other staff and team members from the Urban
Unit including Dr. Kiran Pharhan, Ms. Sani Zahra and Engineer Reza Ali Rao have all provided
exceptional assistance and support to the Teams.
We are further thankful to the counterparts of this project for their continuous support and
professional technical guidance since its start. We would also like to thank the Communities,
Elected Representatives, Chambers of Commerce and the entire range of stakeholders and
participants in Sialkot that we met with and who gave their valuable time and insights.
The Teams are very grateful for all those who have provided guidance and assistance throughout
the MTIIP and project development process.
Page 1
Team Composition
Team Composition
Nadir Ehsan, Overall CDIA Team Leader and Project Coordinator
 Azim Manji, PFS Team Leader and Economist/Urban Planner
 Nick Allen, SWM Specialist
 Ross Kearton, WatSan, Sewerage and Drainage Specialist
 Stuart King, Municipal Finance Specialist
 Peter Turner, Transport Specialist
 Don Audet, Public Utilities Specialist
 Jawad Quereshi, Sahiwal SWM Specialist
 Kashif Bashir, Sialkot SWM Specialist
 Ahsan Paracha, Sialkot Water Supply, Sewerage and Drainage Specialist
 Munim Khan, Sahiwal Water Supply, Sewerage and Drainage Specialist
 Waseem Masood, Sahiwal Financial Specialist
 Muhammed Rehan, Sahiwal & Sialkot Financial Specialist
 Hameed Abdul, Sahiwal & Sialkot Social Development Safeguard Specialist
 Waqar Ahmad, Sahiwal Social Development Safeguard Specialist
 Muhammad Shahid Alvi, Sialkot & Sahiwal Institutional Development Specialist
 Arif Pervaiz, Sialkot & Sahiwal Climate Change Specialist
 Umar Farooq, Sialkot & Sahiwal Transport Specialist
 Umair Ahmed, Sialkot & Sahiwal Municipal Finance Support Advisor
Integrated City Development Strategies (ICDS)
 Rob Story, ICDS Team Leader and Urban Planner
 Izhar Ul Haq, Urban Institutional Specialist
 Wijnand Langeraar, Geographic Information Specialist
 Kim Harboe, Urban Climate Change Resilience Specialist
Climate Risk and Vulnerability Assessment (CRVA)
 Wei Ye, CRVA Team Leader and Climate Scientist
 Mohammad Ali Shaikh, Engineer/Urban Planner
 Huma Daha, Engineer/Urban Planner
Page 2
Acronym and Abbreviation
Acronyms and Abbreviations
ADB
ADP
ADWF
ATO
BOD
BOO
BOT
CAS
Cantt
CB
CCB
CCTV
CDG
CDIA
CDM
CDS
CH4
CO
CO2
COI
CRVA
CTS
DAR
DFID
DMA
DMZ
DPL
DPR
EA
EIA
EMD
EMP
EO
EPA
EPD
ERR
ESF
FAR
FMS
FRP
FSL
GCISC
GDP
GHG
GI
GIS
GoPb
GRP
Gpcd
Gpd
GT Road
HR
HQ
HUD&PHED
I&S
Asian Development Bank
Annual Development Program
Average Dry Weather Flow
Assistance Technical Officer
Biological Oxygen Demand
Build Operate Own
Build Operate Transfer
Country Assistant Strategy
Cantonment
Capacity Building
Citizen Community Board
Closed Circuit Television
City District Government
Cities Development Initiative for Asia
Clean Development Mechanism
City Development Strategy
Methane
Chief Officer
Carbon Dioxide
Corridor of Impact
Climate Risk and Vulnerability Assessment
Complaints Tracking System
Desk Appraisal Report
Department for International Development, United Kingdom
District Metering Area
District Metering Zone
Development Policy Loan
Detailed Project Report
Environmental Assessment
Environmental Impact Assessment
Environmental Protection Plan
Environmental Management Plan
Environmental Officer
Environmental Protection Agency
Environmental Protection Department
Economic Rate of Return
Environmental and Social Framework
Field Appraisal Report
Financial Management System
Fiber Reinforced Plastic
Fixed Spread Loan
Global Change Impact Studies Centre
Gross Domestic Product
Greenhouse Gases
Galvanized Iron
Geographical Information System
Government of the Punjab
Glass Reinforced Plastic
Gallons per capita per day
Gallons per day
Grand Trunk Road
Human Resources
Head Quarter
Housing, Urban Development and Public Health Engineering Department
Infrastructure and Services
Page 3
IA ID
ICDS
IEE
IPCC
ICR
ID
KPI
LAR
LARP
LARU
LG
LG&CDD
M&E
m/s
mg/L
MBBR
MC
MDG
MFF
MGD
MNC
MoA
MoU
MS
MSW
MTIIP
MTR
NEQS
NSUSU
NGO
O&M
ODP
OFWM
OHR
OM
P&D
P&DD
PAD
PDWF
PEPA
PFS
PHA
PHED
PICIIP
PIFRA
PIP
PLGO
PMDFC
PMS
PPIAF
PPTA
PSP
PVC
RCC
REA
ROW
RTU
Implementing Agency Institutional Development
Integrated City Development Strategy
Initial Environmental Examination
Intergovernmental Panel on Climate Change
Implementation Completion Report
Institutional Development
Key Performance Indicator
Land Acquisition and Resettlement
Land Acquisition and Resettlement Plan
Land Acquisition and Resettlement Unit
Local Government
Local Government and Community Development Department
Monitoring and Evaluation
Meter per second
Milligrams per litter
Moving Bed Bio-filter Reactor
Municipal Corporation/Committee
Millennium Development Goals
Multitranche Finance Facility
Million Gallons per Day
Multi-National Corporation
Memorandum of Agreement
Memorandum of Understanding
Mild Steal
Municipal Solid Waste
Medium-Term Infrastructure Investment Program
Mid-Term Review
National Environmental Quality Standards
North Sindh Urban Service Company
Non-Governmental Organization
Operation and Maintenance
Outline Development Plan
On-Going Water Management
Overhead Reservoir
Operational Manual
Planning and Development
Planning and Development Department
Project Appraisal Document
Peak Dry Weather Flow
Pakistan Environmental Protection Agency
Pre-Feasibility Stage
Provincial Housing Authority
Public Health Engineering Department
Punjab Intermediate Cities Improvement Investment Program
Project to Improve Financial Reporting and Auditing
Performance Improvement Plan
Punjab Local Government Ordinance
Punjab Municipal Development Fund Company
Performance Management System
Public Private Infrastructure Advisory Facilities
Project Preparation Technical Assistance
Private Sector Participation
Poly Vinyl Chloride
Reinforced Concrete Cement
Rapid Environmental Assessment
Right of Way
Remote Telemetry Unit
Page 4
RUA
SBR
SCADA
SDG
SDWCL
SEA
SIL
SOP
SME
SWCW
SWM
SWOT
SWMC
TMA
TMO
TO
TO (F)
TO (I&S)
TO (P&C)
TO (R)
UASB
UC
UFW
ULC
UU
WAPDA
WASA
WASTAN
WBI
WCLA
WHO
WSSP
WWT
WWTP
Rapid Urban Assessment
Sequence Batch Reactor
Supervisory Communication and Data Acquisition
Sustainable Development Goals
Sustainable Development of Walled City of Lahore
Strategic Environmental Assessment
Specific Investment Loan
Standard Operating Procedure
Small and Medium Enterprises
Sialkot Water and Sanitation Company
Solid Waste Management
Strengths Weakness Opportunities and Threats
Solid Waste Management Company
Tehsil Municipal Administration
Tehsil Municipal Officer
Technical Officer
Tehsil Officer (Finance)
Tehsil Officer (Infrastructure and Services)
Tehsil Officer (Planning and Coordination)
Tehsil Officer (Urban Regulation)
Upflow Anaerobic Sludge Blanket
Union Council
Unaccounted for Water
Urban Local Council
Urban Unit (Punjab)
Water and Power Development Authority
Water and Sanitation Authority
Water and Sanitation
World Bank Institute
Walled City of Lahore Authority
World Health Organization
Water and Sanitation Services Peshawar
Wastewater Treatment
Wastewater Treatment Plant
Page 5
Preface
Preface
Cities in Pakistan are the economic, social and innovative core of the country, generating the
majority of its revenues and home to the majority of its population. As cities continue to grow,
their role in Pakistan’s social and environmental systems becomes ever more crucial. This trend
is set to increase in the coming decades.
This Report highlights the shortage of infrastructure in Punjab’s intermediate cities and shows how
some of these deficiencies have resulted in poverty and other urban vulnerabilities in Sahiwal. The
World Bank estimates that in developing countries, 1.5 billion people live without electricity, 1
billion have no access to all-weather roads, and 2.5 billion have no access to sanitation.
Pakistan’s share of the global burden is substantial. Such infrastructure is also critical to improving
resilience of the poor to climate change impacts. Economic infrastructure such as sewage
treatment plants, inner-city roads, urban marketplaces, warehouses and other such productive
facilities remain inadequate; restricting economic and social growth across the Province as well as
in its intermediate cities. Poor infrastructure is cited by firms as the single largest barrier to doing
business in Punjab’s most promising urban centers. As a result, private enterprise is restricted,
leading to fewer jobs, less services and fewer tax revenues.
Nationally, estimates are that Pakistan will achieve a 5.5% growth rate in 2016. To meet planned
targets, infrastructure investment will need to increase from just under 3 per cent of GDP to well
above 8 per cent of GDP in 2016-17, a significant jump. Ideally, nearly half of this investment
should come from the private sector, but (for various reasons as outlined in the Report) this is
highly unlikely. The domestic private sector is reluctant given the current regulatory and policy
environment to engage further in municipal infrastructure and is reaching the limits of its ability to
finance investment anyway. Current estimates suggest an overall financing shortfall of almost
$100bn in the next 5 years. Finance requirements at the aggregate level remain an enormous
challenge for the infrastructure sector and there is active scoping currently for newer sources of
capital.
Financing aside, the rate limiting step in the vast majority of intermediate cities is a delivery-mindset and a culture of treating citizens as customers. The formal private sector approaches that
have fuelled much of the economic growth of Pakistan has not percolated through to local levels,
particularly in intermediate cities in Punjab. Technical or financial innovation in cities, however
novel, will only have a limited impact without an accompanying behaviour and cultural change
within service delivery organizations that are presently the responsibility of municipal government.
Whereas this Report presents a series of integrated and comprehensive investments in physical
infrastructure, the challenge will be to tackle the remaining policy and capacity bottlenecks to
ensure effective delivery through incentivized staff and efficient systems and processes. This must
be integrated and matched to the ability of municipalities to mobilize alternative (including private)
investment, especially in high poverty impact sub-sectors in sustainable urban development,
roads, and renewable energy, amongst others.
Agencies such as The World Bank, the U.K. Department for International Development (DFID) and
Japan International Cooperation Agency (JICA) are also heavily active in the infrastructure sector,
largely deploying sovereign loans to government partners across the country, with limited direct
investment in capacity building, streamlining municipal delivery mechanisms or unlocking financial
instruments at municipal levels. Such actions would complement the portfolio of assistance by the
ADB.
This Final Report starts from the premise that efficient delivery mechanisms at the city level
(meaning a range of alternative investment and financing instruments, incentivized and technically
qualified staff and appropriate delivery structures capable of responding to city-stakeholder needs)
are to be seen as investments which will yield social, environmental as well as economic dividends
in parallel to the infrastructure investment packages proposed heron. In this sense, the benefits at
page 7
Preface
the city level are quantifiable in terms of fostering inclusion, enhancing competitiveness and
building resilience.
The various consultations and detailed studies of the ICDS (Integrated City Development
Strategy), CRVA (Climate and Vulnerability Risk Assessment) and PFS (Pre Feasibility Study)
Teams undertaken from May 2015 through January 2016 confirm this. The details of these studies
are presented here. The findings have been packaged into a series of medium-term investments
suitable for ADB (and other) financing for the city of Sahiwal, Punjab to be taken forward.
A significant component of this Report has resulted in the Medium Term Infrastructure Investment
Program (MTIIP). This has been agreed through a collaborative process with the Government of
Punjab commencing from November, 2015 through January, 2016
page 8
Table of Contents
Table of Contents
Acknowledgements ........................................................................................................... 1
Team Composition ............................................................................................................ 2
Acronyms and Abbreviations .......................................................................................... 3
Preface ................................................................................................................................ 7
INTRODUCTION AND OVERVIEW ....................................................................................... 15
A.
Introduction to the Assignment .......................................................................................17
B.
Background and Rationale .............................................................................................18
C.
Impact and Outcome ......................................................................................................21
D.
Outputs ...........................................................................................................................21
E.
Study Components & Structure ......................................................................................21
F.
The Problem Tree ..........................................................................................................23
G.
Approach and Methodology ...........................................................................................25
H.
Strategic Approach to the Multi-Tranche Finance Facility for Intermediate Cities
in Punjab ........................................................................................................................27
I.
PICIIP Components and Conceptual Clarity in Addressing MFF Issues .......................38
J.
Approach to Delivery of Services ...................................................................................40
K.
Cross-Cutting Themes ...................................................................................................41
L.
Risks and Assumptions ..................................................................................................45
M.
Building on Initial City Priorities and Needs ...................................................................48
N.
Methodology and Assessment of Priorities and Proposals ............................................49
O.
Structure of This Report .................................................................................................52
STRATEGIC CONTEXT ........................................................................................................ 53
A.
Urbanization and Economic Development .....................................................................55
B.
Institutional and Policy Context ......................................................................................56
RAPID URBAN ASSESSMENT (RUA).................................................................................. 61
Introduction ...................................................................................................................... 63
A.
Purpose of Rapid Urban Assessment (RUA) .................................................................63
B.
Policy Context ................................................................................................................64
C.
Approach and Methodologies in Preparing the RUA .....................................................64
Socio-Economic Context ................................................................................................ 65
D.
Demographics ................................................................................................................65
E.
Employment ...................................................................................................................66
F.
Social Facilities ...............................................................................................................67
G.
Urban Poverty ................................................................................................................67
H.
Housing ..........................................................................................................................68
Urban Situation ................................................................................................................ 69
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Table of Contents
I.
Urban Centers of Sialkot District ....................................................................................69
J.
Sialkot City Geography...................................................................................................69
K.
Urbanization Process and Evolution ..............................................................................70
L.
Existing Land Uses and Settlement Patterns .................................................................76
M.
Land Use Issues and Analysis .......................................................................................79
N.
What Needs to be Done? ...............................................................................................81
O.
Settlement Patterns ........................................................................................................81
P.
Existing Development Plans ..........................................................................................82
Q.
Infrastructure ..................................................................................................................82
R.
Review of Institutional Arrangements .............................................................................87
S.
Organizational Structure of Tehsil Municipal Administration ..........................................91
T.
Regulations ....................................................................................................................92
U.
Primary Economic Growth Drivers .................................................................................95
City Competitiveness Enablers...................................................................................... 98
V.
Business Environment and Comparative Advantages ...................................................98
W.
Competitiveness Disadvantages ....................................................................................99
X.
Institutional Capacities and Development Constraints .................................................100
Y.
Urban Infrastructure and Service Delivery ...................................................................103
Z.
Operations and Maintenance .......................................................................................103
AA.
Financial Management and Procurement ....................................................................104
BB.
Transparency and Governance ....................................................................................104
Initial Climate-Change Resilience Assessment ......................................................... 105
CC. Introduction to Climate Change ....................................................................................105
DD. Purpose and Scope of the Initial Resilience Assessment for Sialkot ...........................105
EE.
Climate Change Threats and Impacts for Sialkot ........................................................105
FF.
Initial Vulnerability Assessment ....................................................................................107
Summary of Diagnostics .............................................................................................. 111
CLIMATE RISK AND VULNERABILITY ASSESSMENT (CRVA) ....................................... 113
Introduction .................................................................................................................... 115
Methodology .................................................................................................................. 116
Climate Change Scenarios ........................................................................................... 117
Climate Change and City Development ...................................................................... 117
A.
Climate Change and City Energy Systems ..................................................................118
B.
Climate Change and Water ..........................................................................................118
C.
Climate Change and Flood...........................................................................................119
D.
Climate change and wastewater ..................................................................................122
E.
Climate change and solid waste management ............................................................123
F.
Climate change and urban transportation ....................................................................123
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G.
Table of Contents
Climate change and human health ..............................................................................124
Economic Evaluation of Adaptation Option ............................................................... 125
H.
Method..........................................................................................................................125
I.
Cost-benefit analysis result ..........................................................................................125
J.
Summary of the Economic Evaluation study................................................................126
Conclusion ..................................................................................................................... 127
INTEGRATED CITY DEVELOPMENT STRATEGY (ICDS) ................................................. 129
Introduction .................................................................................................................... 131
Objectives of an Integrated City Development Strategy (ICDS) ............................... 131
Policy Context ................................................................................................................ 131
Approach and Methodology - City Development Concepts and Strategies ........... 131
Urban Development Principles & Concepts ............................................................... 132
A.
Urban Development Best Practices & Principles .........................................................132
B.
Sustainability and Resilience .......................................................................................133
C.
Urban Development Form & Processes .......................................................................135
D.
Two Elements of Urban Development .........................................................................138
E.
Urban Development Components ................................................................................138
F.
Urban Development Project Cycle ...............................................................................138
G.
Urban Planning, Institutions & Management ................................................................139
H.
Governance ..................................................................................................................139
I.
Institutional Development – A Tool to Gain Competitive Advantage ...........................140
J.
Cascaded Urban Planning ...........................................................................................144
K.
How is ICDS Integrated and Institutionalized? .............................................................144
L.
Proposed ICDS Municipal Management Structure ......................................................145
M.
Union Councils and Mahallah Level Governance: .......................................................148
N.
Land Management .......................................................................................................148
O.
Participatory Budgeting ................................................................................................148
P.
Participatory Budgeting and ICDS – A Policy Framework ...........................................150
Q.
Sustainability & Urban Revenue Generation................................................................150
Sector Concepts & Strategies ...................................................................................... 150
R.
Basic Urban Structure ..................................................................................................151
S.
Mobility (Transport) Strategy ........................................................................................152
T.
Green Public Space Strategy .......................................................................................152
U.
Social Development Strategy .......................................................................................153
V.
Economic Development Strategy .................................................................................155
W.
Water Supply Strategy .................................................................................................156
X.
Sanitation & Sewerage Strategy ..................................................................................159
Y.
Drainage Strategy ........................................................................................................160
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Table of Contents
Z.
Solid Waste Management Strategy ..............................................................................160
AA.
Resilience Strategy ......................................................................................................160
BB.
Expanding the City - New Mahallah .............................................................................161
CC. Summary Sialkot SWOT Analysis ................................................................................163
DD. Sialkot’s Vision .............................................................................................................164
EE.
Sialkot - Existing Situation - Summary .........................................................................164
Sialkot Urban Development Strategy .......................................................................... 167
FF.
Physical Development & Growth Options ....................................................................167
GG. Preferred Development Option and the Strategy .........................................................168
HH. Revised Urban Boundary .............................................................................................169
II.
Sialkot Inter-Jurisdictional Joint Planning .....................................................................169
JJ.
Urban Form Strategy ....................................................................................................171
KK.
Urban Regeneration .....................................................................................................174
LL.
Infrastructure ................................................................................................................176
MM. Population, Housing, Land & Infrastructure .................................................................180
NN. City and Regional Economy Strategy ..........................................................................183
OO. Institutional Strategy .....................................................................................................183
PP.
Urban Design & Green .................................................................................................183
QQ. Climate Change Resilience Strategy ...........................................................................184
Sialkot - Strategic Summary......................................................................................... 184
Implementation Plan - ICDS ......................................................................................... 185
RR. Integration ....................................................................................................................185
SS.
ICDS and Supporting Plans .........................................................................................185
TT.
“Soft” Urban Budget .....................................................................................................185
SECTOR ASSESSMENT, STRATEGIES AND ROADMAPS .............................................. 187
Introduction to the MTIIPs ............................................................................................ 189
Sialkot Institutions and Governance ........................................................................... 192
A.
Theoretical-Conceptual Framework and Historical Lessons ........................................192
B.
Relevant Institutions .....................................................................................................196
C.
Political Accountability ..................................................................................................205
D.
Institutional Analysis .....................................................................................................207
E.
Organizational Analysis ................................................................................................214
Solid Waste Management ............................................................................................. 229
F.
Sector Assessment - Sialkot Solid Waste Management ..............................................229
G.
Sector Strategy - Solid Waste Management ................................................................246
H.
Guiding Principles ........................................................................................................247
I.
Sector Goals and Objectives ........................................................................................248
J.
Sector Roadmap - Solid Waste Management ..............................................................250
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Table of Contents
K.
Environmental and Social Safeguard Considerations ..................................................263
L.
Indicative SWM Investment Costs ...............................................................................268
M.
Indicative Implementation Schedule ............................................................................270
Water, Sanitation, Sewerage and Drainage ................................................................ 272
N.
Sector Assessment - Water, Sanitation, Sewerage and Drainage ..............................272
Water Demand and Wastewater Production .............................................................. 285
O.
Water Supply and Sewerage Design Criteria ..............................................................285
P.
Water Demand and Wastewater Production ................................................................285
Current Status of Infrastructure................................................................................... 289
Q.
Water Supply ................................................................................................................289
R.
Sewerage and Drainage...............................................................................................300
S.
Operation and Maintenance of the Water Supply, Wastewater and Drainage
Systems ........................................................................................................................312
T.
Services in Low Income Areas .....................................................................................315
U.
Sector Strategy - Water, Sanitation, Sewerage and Drainage.....................................319
Key Issues with Current Infrastructure ....................................................................... 321
V.
Sialkot Application to CDIA ..........................................................................................321
W.
Outcomes from Discussions, Field Visits and Analysis ...............................................322
X.
SWOT Analysis and Problem Tree for Water Supply, Sewerage and Drainage .........324
Y.
Roadmap - Water, Sanitation, Sewerage and Drainage ..............................................327
Z.
Medium Term Infrastructure Investment Plan ..............................................................337
Pre-Feasibility Study for Medium Term Investments ................................................ 339
AA.
Component 1 – Water Supply Infrastructure ................................................................339
BB.
Component 2 – Sewerage and Drainage Infrastructure ..............................................344
CC. Component 3 – Operation and Maintenance Facilities and Equipment .......................356
DD. Summary of Costs ........................................................................................................366
EE.
Implementation Schedule .............................................................................................366
FF.
Sector Assessment - Transportation Planning .............................................................368
GG. Sector Strategy – Institutional Delivery Mechanisms ...................................................383
HH. Sector Roadmap – Institutional Delivery Mechanisms .................................................385
II.
New Approaches to Organizations and Service Delivery ............................................387
JJ.
Institutional Options for Water and Sanitation Management in Sialkot ........................389
Municipal Corporations: A New Way Forward ........................................................... 401
KK.
Asset Management ......................................................................................................401
LL.
Strategy and policy .......................................................................................................402
MM. Communication ............................................................................................................402
NN. Economic development and partnerships ....................................................................402
OO. Human resource management .....................................................................................402
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Table of Contents
SAFEGUARDS & CROSS-CUTTING THEMES .................................................................. 407
Poverty, Gender, Social Development and Inclusion ................................................ 409
A.
Project Benefits ............................................................................................................409
B.
Land Acquisition and Resettlement Impact ..................................................................409
C.
Mitigation Measures for Negative Impacts: ..................................................................412
Environment and Climate Change ............................................................................... 413
D.
Introduction ...................................................................................................................413
E.
The Project ...................................................................................................................414
F.
Policy, Legal, and Institutional Framework, for Environmental Protection ...................414
G.
Environmental Categorization of Proposed Projects ...................................................418
H.
Environmental Risk Assessment and Climate Change Resilience Appraisal ..............419
Institutional Arrangements for Environmental Management ................................... 442
Budget for Implementation of Environmental Management Plan ............................ 442
SIALKOT MUNICIPAL FINANCE ........................................................................................ 445
Introduction .................................................................................................................... 447
Methodology .................................................................................................................. 447
Water / Wastewater / Drainage Sector Investments .................................................. 448
A.
Water Sector Investments ............................................................................................448
B.
Sialkot Wastewater & Drainage Sector Investments ...................................................451
C.
Transport ......................................................................................................................455
D.
Solid Waste Management ............................................................................................459
E.
Institutional Costs .........................................................................................................463
F.
Environmental Costs ....................................................................................................465
G.
Land Acquisition, Resettlement and Social Rehabilitation Costs ................................465
H.
City Investment and Financing Overview .....................................................................466
Economic Cost Benefit Analysis ................................................................................. 469
I.
Economic Benefits ........................................................................................................469
J.
Economic Analysis Methodology .................................................................................469
K.
Measurement of Economic Benefits ............................................................................470
L.
Economic Net Present Value (ENPV) and Economic Internal Rate of Return
(EIRR)...........................................................................................................................476
M.
Economic Sensitivity Analysis ......................................................................................477
IMPLEMENTATION ............................................................................................................. 479
Design Monitoring Framework..................................................................................... 481
A.
Background and Concept .............................................................................................481
B.
Medium Term Infrastructure Investment Plans (MTIIP) ...............................................494
page 14
REG-8556
Final Report: Sialkot,
Pakistan
Medium Term Integrated Climate Resilient Urban Infrastructure
Investment Program and Pre-Feasibility Study
CHAPTER I
Introduction and Overview
April 2016
This Consultant’s Report does not necessarily reflect the views of ADB or the CDIA or the Government concerned, and ADB, CDIA
and the Government cannot be held liable for its contents. All the views expressed herein may not be incorporated into the proposed
project’s design
A.
Chapter I
Introduction to the Assignment
1.
The ADB and the Cities Development Initiative for Asia (CDIA) are partnering with the
Government of Punjab Province (GoPb) in Pakistan to undertake the Punjab Intermediate Cities
Improvement Program (PICIIP). The PICIIP is an initiative that will avail resources via the Asian
Development Bank’s (ADB’s) Multi-Tranche Financing Facility (MFF).1
2.
The initiative is tasked with improving the quality of life of residents living in selected
cities in the Punjab, Pakistan’s most populous province. The first two cities selected for
improvement are Sialkot and Sahiwal. This Medium Term Integrated Climate Resilient Urban
Infrastructure Investment Program and Pre-Feasibility Study Report (the Report) integrates
the findings of the Pre-Feasibility Study for Sialkot and Sahiwal Cities (PFS) (REG-8556) with
the work of the Integrated Cities Development Strategy (ICDS) (P 46526 PAK) and Climate
Risk and Vulnerability Assessment (CRVA) (SC 105335 PAK).
3.
This Report follows previous consultations, submissions, and reviews for each
component. It represents the Final submission for the PFS phase of the work prior to proceeding
with detailed project design in the Project Preparatory Technical Assistance phase (PPTA).
4.
The objective of the MTIIP-PFS (the Study) was to assist the Government of Punjab
(GoPb) to prepare an integrated, climate-resilient urban environmental infrastructure investment
program underpinned by necessary institutional and financial management support for the
intermediate city of Sialkot. The resulting investment program, coupled with a focus on treating
citizens as customers, the necessary range of cultural and behavioral reforms, and an emphasis
on cost recovery, should enable Sialkot to better respond to the strategic imperatives as
established by Government; namely ensuring resilience, competitiveness, and inclusion.
5.
Conceptually, the Team’s thinking (as encapsulated in this Report) is based on
translating these three strategic imperatives into programs, actions, and delivery mechanisms on
the ground. This does not necessarily mean Government should be providing services directly,
although in the immediate term there is an understanding that it may have to in Sialkot.
6.
The development of the MTIIP builds on Sialkot’s initial priorities as articulated by its
original application to the CDIA. For reference, this has been provided in Annex SIAL APP.
The work of the Study and contents of this Report adheres to the protocols established by the
ADB and the CDIA. It follows the guidelines established by the CDIA, emphasizing pro-poor
development, environmental sustainability, climate change adaptation, and good governance.2
To this end, the format of this Report adheres to the specificity, requirements, and detail as
required by the CDIA PFS manual.3
7.
The summary of investments resulting from the work of all three Teams and detailed
further in this Report (see Chapter VI and Chapter VIII) is presented below in Table I-1. Tranche
1 costs were agreed with Government on 11 March 2016 and are indicated in the ADB Aide
1
2
3
The PICIIP is a ten-year duration multi-tranche financing facility with a budget of US$ 500 million, to be
disbursed in four investment tranches of between US$ 100 million and US$ 150 million each.
As specified in the Pre-Feasibility Study Guidelines, CDIA, March 2011, and the Pre-Feasibility Studies User
Manual for Cities and National Partner Organizations, CDIA, October 2012.
Full details of the requirements and contents of a Pre-Feasibility Study can be found in the CDIA Manual
available online
Page 17
Chapter I
Memoire. (* Costs for contracts and equipment supply of $9.65M have been added to these
sectors).
8.
Our methodological approach in the delivery of the PFS and achievement of the three
imperatives is noted overleaf in Figure I-12 and Figure I-13. These figures graphically depict
how the infrastructure and other resulting initiatives proposed will unlock the potential of Sialkot
to make it more inclusive, resilient, and competitive in line with government strategy.
Table I-1: SIALKOT INVESTMENT SUMMARY
SECTOR
Tranche 1
0-2 years
(M USD$)
Medium Term
2-5 years
(M USD$)
Long Term
5-10 years
(M USD$)
Institutions & Governance
5.1
-
-
Water, Sanitation & Drainage
21.3
55.2
46.0
20.0
15.2
64.3
Transportation Planning
6.1
6.0
20.4
Soft Urban Improvements
6.0
6.0
9.0
Lalamusa LG Training Academy
3.0
-
4.5
Other (ICDS and Social Development)
5.0
9.35
11.44
TOTAL
66.5
91.7
144.2
9.
The PICIIP's readiness for ADB financing is expected in late 2016. In order to accelerate
the PICIIP development process, the GoPb, the District Government of Sialkot City, and the
Tehsil Municipal Administrations (TMA) of Sialkot requested CDIA assistance to undertake the
PFS and supporting components in order to prepare both a Medium-Term Infrastructure
Investment Program (MTIIP) and accompanying Urban Infrastructure Investment packages for
the two cities. Being completed ahead of the PPTA, the pre-feasibility work will therefore provide
a valuable foundation for the subsequent PPTA analyses, ensuring that these activities
coordinate seamlessly within the overall development process.
10.
A year by year breakdown of these costs is presented in Chapter VIII and detailed in
Table VIII-21
B.
Background and Rationale
Punjab Urban Context
11.
Punjab has been the most rapidly urbanizing province in Pakistan, accounting for over
53% of the country’s urban population and over 50% of the national GDP. 4 Punjab’s rate of
urbanization in 2014 was 32% (32 million out of 100 million) and is estimated to increase to 40%
by 2030 (59 million out of 150 million) at a rate of almost 3% per annum. 5,6 Rural-urban migration
4
5
6
The province includes five large cities (with populations between 1.9 to 9.0 million), 13 intermediate cities (with
populations between 0.25 to 1.0 million), and over 150 towns and urban settlements (with populations of up to
0.25 million).
Punjab Development Statistics, 2014
Urban Unit, ADB and ICDS Team calculation
Page 18
Chapter I
driven by a youthful population’s desire for the amenities and opportunities of the city is the main
factor in the rapid rate of urbanization. Urban areas are the economic hubs, house the major
social facilities, and are the centers of government. As the country transitions to a more
industrialized nation, even greater emphasis will be placed on urban areas.
12.
As a result of the lack of investment in urban management and infrastructure Punjab’s
cities face challenges providing green livable environments for their residents that are safe,
resilient, sustainable, and competitive. Development is constrained by:







inadequate infrastructure
inadequate regulatory framework
inconsistent urban statistics
limited local governance capacity
isolated planning standards
limited professional knowledge of urban service financing keeping costs high and
qualities low
limited development control
Figure 1-2: Sahiwal and Sialkot and Environs
Source: Urban Unit
Figure I-3 illustrates Pakistan’s population density with considerable urban concentration in the
northeast part of Punjab.
Page 19
Chapter I
Figure I-3: Population and Urban Concentration
Infrastructure & Economic Impact
13.
While population growth has stressed the urban environment, urban infrastructure and
services have not kept pace. Since 2001, overall public sector investment in urban infrastructure
and service delivery has declined. Punjab’s intermediate city infrastructure investment currently
averages only $4 per capita. This compares with $10 in Lahore, $17 per capita in India and
upwards of $200 per capita in many developed nations 7 . The health impacts, and therefore
economic growth impacts, are high with an estimated 150-200 children per day dying of diarrheal
diseases as a direct result of deficient water and sanitation8. The economic cost of inadequate
sanitation and related water supply in Pakistan is estimated at $5.7 billion per year equal to
almost 4% of GDP9 in lost productivity and related health costs. That is equal to approximately
$30 per capita which means that poor sanitation may be costing Sialkot close to $30 million per
year and Sahiwal in the order of $15 million. Climate change is already creating some serious
water challenges, which have a direct correlation with sanitation services, and it is easy to
anticipate the severity of economic loss if climate change resilience measures are not built into
future water and sanitation investments beginning now. WHO estimates that a $1 investment in
improved sanitation generates a $5.50 economic return10 which would definitely have significant
positive impacts on all of Punjab’s cities
14.
On average, Punjab’s cities are providing tap water to only 45% of their residents,
sewage for 54% of the population flows in open drains and is discharged untreated into natural
water bodies or onto agricultural lands, municipal solid waste collection covers only 40% of urban
households with no engineered sanitary landfills in most cases. In addition, poor public transport,
7
http://www.mckinsey.com/insights/mgi (various)
UNICEF
9
World Bank WSP, www.wsp.org
10
WHO, 2012 WHO/HSE/WSH/12.01
8
Page 20
Chapter I
weak traffic management and almost non-existing street activity management, constrain urban
mobility. Many of these problems are exacerbated by the lack of comprehensive urban planning
and development control that results in unsustainable urban sprawl as the de facto form of urban
growth. The combination of these urban issues directly results in an unhealthy urban
environment adversely affecting the quality of life of the urban residents, their livelihoods,
productivity and economic growth. Overlaying all of these issues are the increasing impacts of
climate change that are already affecting cities and which they are ill equipped to manage.
Collectively, these issues provide the rationale for the proposed PICIIP.
C.
Impact and Outcome
15.
The impact of the investment program will be an improved quality of life for the residents
of the selected cities of the Punjab province. The program outcome will be an improved quality of
urban services available to the residents of those cities supporting economic growth, social
development, and improved urban environment. Key outputs will include:
 Introduction of integrated, strategic urban planning
 Improved institutional framework for urban services at the city level
 Strengthened business processes of urban utilities
 Improved urban infrastructure
16.
More specifically, the investment program aims to produce outcomes that make Punjab
cities:
 Inclusive
 Safe
 Environmentally Conscious
 Livable
 Sustainable in an Economic, Social, and Financial sense
 Resilient
 Competitive
17.
Furthermore, the proposed investment program will develop model cities demonstrating
the methodology for achieving the objectives of the Punjab Growth Strategy 2018 and the Punjab
Urban Development Sector Plan 2018.
D.
Outputs
18.
The key outputs will be:
 Introduction of integrated urban planning;
 Improved institutional framework for urban services at the city level;
 Strengthened business processes of urban utilities;
 Improved urban infrastructure.
19.
In addition, the program will:
 Introduce the over-arching application of climate change adaptation measures to all
urban programming;
 Institutionalize multi-sector stakeholder participation through all phases of program
planning, implementation, and management.
E.
Study Components & Structure
20.
To achieve the Program’s goals, this pre-feasibility work comprises three interrelated components that are consolidated into this Final Report as illustrated in Figure I-4.
This Study then leads into detailed project preparation (PPTA) and implementation resulting
in the outcomes listed above.
Page 21
Chapter I
Figure I-4: PICIIP Structure
1.
Integrated City Development Strategies (ICDS)
Establishes the planning and development frameworks to guide sustainable
development through the short, medium and long-terms. This component
includes:
 Rapid Urban Assessments (RUA) and
 Integrated City Development Strategies (ICDS) for Sialkot.
2.
Climate Risk Vulnerability Assessment (CRVA)
Provides critical crosscutting guidelines to ensure all program components
incorporate appropriate actions to address anticipated climate change impacts
thereby contributing to city resilience.
Page 22
3.
F.
Chapter I
Based on the ICDS work, and incorporating full CRVA considerations, the PFS
presents a series of Sector Assessments and Roadmaps for selected priority
infrastructure investment components. These include background analyses,
needs justification, conceptual design, and costing Investments are summarized
in short, medium and long-term packages.
The Problem Tree
Figure I-5 illustrates the Problem Tree, highlighting the constraints to livability, resilience, and
competitiveness of Punjab’s intermediate cities like Sialkot. Urban sprawl could be included as
both a major symptom and cause of many of the current urban challenges.
Page 23
Chapter I
Figure I-5: Problem Tree
Page 24
G.
Chapter I
Approach and Methodology
21.
This Section provides an overview of the approach and methodologies employed
throughout the preparation of this MTIIP. Detailed methodologies are further described in the
various technical sections.
Overall Approach
22.
The overall approach proposed for the preparation of the MTIIP is highly integrated
and participatory as illustrated in Figure 1-6. This acknowledges the multi-sectorial,
integrated nature of the PICIIP and the MTIIP as illustrated in Figure 1-7. More specifically,
the MTIIP highlights the importance of urban resilience in enabling economic, and therefore
social, development.
Overall Methodology
23.
The overall Approach outlined above will be applied throughout the completion of this
assignment. In addition, specific Methodologies will be utilized in completing the detailed
tasks and achieving the overall objectives of the assignment. These Methodologies are
interconnected and include:
23.1. Document Identification and Review
The identification and review of existing documents is a key starting point for the effective
completion of the work. The analysis of existing strategies, policies, programs, plans, and
projects at national, regional, and local levels will give our team a solid background for
the planning exercise. The GoPb and the Urban Unit have excellent documentary and
GIS data that will greatly ease the work. The work will also draw upon related global best
practices.
Methods: work with the client to identify relevant documents; prepare a list and officially
submit the request to the client (hard copy and digital); review documents.
23.2. Field Data Collection
Project field offices were established to support comprehensive field reconnaissance
missions to complement and crosscheck data gathered from existing documentation,
workshops and interviews. The teams worked in close collaboration with local
governments to undertake the fieldwork, spending time in both urban centers. We used
the opportunity to engage with a cross-section of stakeholders seeking multi-dimensional
understandings of the local situation while identifying issues, opportunities and
constraints.
Methods: document review, field reconnaissance, interviews, stakeholder working
sessions.
23.3. Working with the Local Authorities - Building on Their Priorities
While guided and supported by higher authorities, urban planning, development, and
management ultimately becomes the responsibility of local authorities. The teams
interacted closely with TMA officials in the respective urban centers, and through a series
of Stakeholder Participation Workshops ensured the participation of community leaders
and others who advise local authorities.
Methods: regular interaction with Tehsil Municipal Administration officials and local
Urban Unit officials.
Page 25
Chapter I
Figure 1-6: Integrating Complementary PICIIP Components
Figure I-7: Integrated Urban Development
Page 26
Chapter I
23.4. Stakeholder Participation - Engagement
One of the keys to developing appropriate locally accepted and "owned"
recommendations and investment programs is the active participation of all stakeholders
throughout the planning and implementation processes. Working with the Urban Unit and
city administrations, the teams will undertake a series of Stakeholder Workshops bringing
together a full cross-section of Public Sector, Private Sector, Non-Governmental
Organizations (NGO), Community-Based Organizations (CBO), and other interested
parties, thereby offering opportunities for the diverse range of interests to be incorporated
into the PICIIP exercise.
Methods: Workshops with local support (NGO or identified authority) will be undertaken.
A comprehensive and on-going IEC (Information, Education, and Communication)
program will be recommended subject to available resources for the on-going and
widespread engagement and information dissemination.
23.5. Global Best Practices
The teams will incorporate locally adopted global best practices into the work. This is
based on team members’ extensive international experience incorporating inputs from
CDIA and ADB.
H.
Strategic Approach to the Multi-Tranche Finance Facility for
Intermediate Cities in Punjab
Infrastructure and Cities as Powerful Development Tools:
24.
Delivering well planned infrastructure and productive cities are some of the best
investments that Pakistan can make in support of long-term and inclusive growth. Indeed, no
country has sustained rapid economic growth without both considerable public investments in
infrastructure (See Figure I-8), and the development of its primary urban centers. While this
correlation between the built environment and growth is strong, it masks a more complex
backdrop.
25.
Real world’ experiences of urbanization produce both winners and losers. The range of
outcomes are linked to urbanization being more than a physical transformation. As discussed in
Chapter II and Chapter III of this Report, it is also a complex and interdependent social,
economic and environmental change process.
Economic maturity
Figure I-8. All nations 1960-2013: Correlating economic maturity with urbanization levels
% Urbanized
Page 27
Chapter I
26.
Unchecked and unplanned for, these linkages can break down and result in negative
impacts that affect social structures and norms, harm the environment and reduce or delay
economic growth.
27.
Urbanization can be a powerful force for good as well-serviced, efficient, and connected
places/activities, strengthen and accelerate economic development. But this growth is not
automatically inclusive, particularly where active cultural, ethnic, geographical, and political
forces exist.
28.
Punjab’s strategic imperative to focus on inclusive growth as well as build climatic
resilience and foster economic competitiveness are well aligned to the objectives of assisting
cities for the Asian Development Bank. Through its country programming and international
cooperation, the ADB has an opportunity to assist GoPb decision-makers focus on infrastructure
development and cities as engines of growth and poverty reduction. With the PICIIP facility, the
GoPb will have a platform to act, influence and lead on improving the responses to the challenge
of delivering more sustainable and catalytic infrastructure in intermediate cities for inclusive
economic development.
29.
A window of opportunity exists during which the PICIIP can help intermediate cities like
Sialkot to capture the long term inclusive benefits that infrastructure and cities can bring.
Targeted intervention in the Provincial urban context can offer the best Value for Money return
for Government-led, private sector supported investment coupled with ADB underwriting.
30.
The rationale is threefold:
30.1. First, infrastructure and cities that are planned and delivered today will ‘lock-in’
long-term patterns of growth. Infrastructure that is delivered today will guide
future development by setting patterns of settlement, trade, industrial and urban
growth. For many intermediate cities in the province, the most important spatial
and economic decisions need to be made now.
30.2. Second, many intermediate cities in Punjab have access to a huge demographic
dividend. Very large populations of young people are entering the workforce and,
given the opportunity, can take active and productive roles in the economy.
Intermediate cities and emerging urban areas are essential to absorbing this
working population and there is a corresponding risk of destabilization if such
employment opportunities are not achieved.
30.3. Third, the enabling environment is holding back investments in sustainable and
inclusive infrastructure and cities. Rather than a lack of political will, capital or
even expertise, it is the lack of evidence, strategy, capacity, prioritization,
transparency, regulatory structures, and institutions that constrains progress.
These enabling environment challenges are discussed in more detail in Chapter
III and Chapter V of this Report.
31.
As discussed in Chapter II and Chapter III, Punjab needs better-planned cities, but also
improved infrastructure that links these cities and maximizes their combined potential. One of the
most important functions of good infrastructure is to efficiently connect national and regional
centers of social and economic activity, which agglomerates in cities. The PFS Team therefore
see that infrastructure and cities must work together around related synergies, for example
‘provision and access’, ‘growth and inclusion’, ‘production and export’ and ‘connection and
distribution’. The PICIIP brings these two complementary areas together and sees a
considerable range of long-term benefits (as discussed in Chapter V) in doing so.
32.
The next two sections briefly identify some of the challenges and opportunities both
Sahiwal and Sialkot, as well as Provincial government and Punjab society at-large, faces in their
efforts to realize the benefits of infrastructure and cities for economic development.
Page 28
Chapter I
Key Challenges Addressed by the MFF
33.
Punjab needs support to foster more competitive economic strategies for its intermediate
cities. The PFS Team have identified 5 key issues that the MFF responds to in the proposed
MTIIPs that are detailed in Chapter V of this Report. These are:
33.1. Strategic and integrated planning – The process of urbanization through the
development of infrastructure and cities must reflect and support national economic
planning as well as physical, social and environmental constraints. This is a key
weakness and undervalued attribute of better planning processes.
The
institutionalization of the ICDS process as proposed in Chapter IV and Chapter VI are a
direct response to this challenge.
33.2. Inclusive growth – One of the most important questions that the MFF addresses
through the various MTIIPs detailed in Chapter VI is how the design of infrastructure and
cities can most effectively include the poorest, vulnerable and other marginalized groups
in the growth of intermediate cities.
33.3. Urban governance – As detailed in Chapter VI, from the point of provincial
strategies, planning guidelines and related economic infrastructure, through to local and
city levels, the overall system of governance in Punjab needs to be supported to focus on
the specific needs of the built as well as the rural economy. Chapter III outlining the
Rapid Urban Assessments of Sialkot details this nexus more specifically.
33.4. Infrastructure finance – How will Punjab pay for these ambitious growth plans?
What are the sources, models and strategies that attract capital and build sustainable
revenues to underpin infrastructure financing and urban service provision? This is
discussed in more detail in Chapter VIII of this Report.
33.5. Resilience – Climate, disaster, and social resilience need to be bound together
with infrastructure, urban, and economic planning whilst also improving stewardship of
resources and protection of the environment. These issues are discussed throughout this
Report as they underpin all of the work of the PICIIP. The assessment of the viability
from a resilience as well as poverty perspective is discussed in Chapter VII of this
Report.
34.
The work of the PICIIP and resulting MFF will respond to these challenges by acting as a
catalytic platform. It will both enable GoPb as well as the cities concerned to harness the power
of managed urbanization and coordinated infrastructure service delivery for poverty reduction
and inclusive growth. The MFF will seek to address constraints in the enabling environment for
infrastructure service delivery. It will improve planning and management of the built environment
at city and provincial levels simultaneously so it closely supports economic development
planning. This will in turn make intermediate cities economically efficient and socially inclusive
(in planning, delivery, and use phases). In time, this will help government to focus on other
intermediate cities within the province, to move towards a sustained economic platform, and
ultimately, to budgetary independence.
35.
Effectively planned infrastructure and well-governed cities have the potential to yield not
only economic growth for all, but also to form the basis for resilient systems, effective mitigation,
and adaptation to climate change. As is shown in Chapter VI of this Report, infrastructure for
energy, water and sanitation, waste management, and transportation can all be designed in
ways that contribute to climate change mitigation through increasing efficiency and reducing
carbon emissions.
36.
As was seen during the Inception Phase, rapidly growing cities in Punjab are clearly
susceptible to a range of climate-change related hazards.
Warming trends, extreme
temperatures, drying trends, extreme precipitation, damaging cyclones, sea level rise, and
Page 29
Chapter I
flooding affects cities in Punjab. The MFF makes use of proactive and targeted approaches to
climate change and environment issues by strengthening urban infrastructure, economic and
social systems.
37.
The preliminary social, gender, and environmental analyses detailed in Chapter VII are
an important dimension of the design of the MFF and are integral to its success. The PFS has
undertaken various analyses for Chapter VII as well as for the IDIA summaries as required by
the CDIA Checklist. Some of this work has relied on the AWARE tool for assessing climate
risks.11 Similar tools and methodologies as well as focus group discussions (FGDs) have been
used for undertaking detailed gender and social analyses. Through these assessments, an
appreciation of the correlation between urban infrastructure, inclusion, resilience, and
competitiveness have been factored into the MTIIPs. Ensuring the participation, voice, and
perspectives on social inclusion to large scale programming as noted in Chapter IV ensures that
MTIIP investments are inclusive and gender sensitive. Our initial thinking on how the MFF
integrates gender includes:
37.1.
37.2.
37.3.
37.4.
37.5.
The creation of a gender strategy for the PICIIP under the work of the
forthcoming PPTA;
The creation of gender and social inclusion guidelines and assessments as
required by the ADB;
Consistently revising gender-sensitive approaches within resulting MTIIPs;
Developing principles that provide for specialist and timely input to scoping and
design of investments; and
Robust quality and review processes that have included important roles for
crosscutting issues to be incorporated into investments.
Fostering Infrastructure That Reaches the Poor
38.
Beyond construction, services, and physical presence, infrastructure has the potential to
unlock growth, lower transaction costs, and when done well, reduces vulnerability and saves
lives. However, the ability of city and provincial government (and society) to keep up with and
finance infrastructure demand, particularly at the last mile and in the poorest cities, is often
compromised because of finance, planning, and delivery capacity.
39.
Most significantly, the poor can benefit directly by using the services infrastructure
provides, such as lighting, transport, sewerage, electricity and water for irrigation. Transport and
ICT services allow poor people to access markets, health and education facilities. The poor can
also benefit indirectly from the spillover effects of economic growth stimulated by infrastructure
services including jobs. New, cheap, and reliable infrastructure services lower production and
transaction costs and allow cities and their businesses to grow whilst reducing prices. Rising
consumption stimulates demand and can reciprocate growth.
40.
Access is most limited for the poorest people and families, and these deficits are severe
constraints to economic and human development. Tariff inequities where costs are not sufficient
to ensure sustained maintenance and investment, as well as poorly developed distribution and
connection arrangements, can mean that only the industry, the wealthy or middle classes can
access reliable energy transport and local utility services. Moreover, those that can or are willing
to pay will often allocate a large proportion of their income to purchase these services, or rely on
informal providers in light of poor municipal provision. This may further accentuate their
vulnerability to other risks such as having to seek informal work at low or zero pay, or being
forced to displace and break apart households in search of incomes.
41.
Conscious, deliberate and multidisciplinary planning is needed for infrastructure
to realize better socio-economic gains. Effective planning demands evidence, data, and skills.
The PFS Team have therefore sought partners and experts who bring experience and lessons in
11
See http://www.acclimatise.uk.com/index.php?id=4&tool=1
Page 30
Chapter I
creating inclusive infrastructure policies and programs, and these have been factored into the
MTIIPs as presented in Chapter VI. Planning at an integrated and systems level (national,
regional, and local) allows for the role of infrastructure to support development outcomes. It also
needs to combine the physical (‘hard’) aspects of human settlements with issues relating to
social cohesion and governance (‘soft’), helping communities and cities to understand and
prepare for highly disruptive natural hazard events and accumulating stresses.
Cities Offer Previously Untapped Development Gains
42.
Historically, most urban development has been a product and consequence of economic
development – the MFF supporting the PICIIP have an opportunity to better shape intermediate
cities in Punjab. The PFS approach for design of the MFF is founded on the perspective that
sustainable economic development is underpinned by cities that facilitate more concentrated and
productive interactions between businesses, governments, and citizens. The Team is of the view
that at their best, cities are an important tool for broadening social mobility and making
infrastructure more inclusive, ‘user friendly,’ and affordable. Compact, connected and
coordinated cities in particular are often advocated as principles for improved urban
development.12 These approaches carry many good principles (see Table I-9 below). The PFS
Team have urged contextualization of topics such as density which can both mean something
different and may not always be the best solution for certain places.
Table I-9: How Intermediate Cities Can be a Force for Good for Punjab
Economic Benefits
Lower cost urban development
and management that makes
better use of space, transport,
utilities and public services.
Intensive regional markets in
urban areas can support
agricultural products and
processed goods
Greater capacity for high- value
economic functions such as
financial and professional
services and secondary/ tertiary
or even high-tech manufacturing.
Economies of scale are higher.
Talent is attracted to better cities.
Compact and well-planned cities
can be more resilient to natural
hazards and shocks.
Environmental Benefits
Cities can be efficient both in
their consumption of natural
resources and in services
provision, allowing more people
to access services and reducing
the impact on climate and the
environment
Low-carbon and
environmentally sensitive
growth patterns can emerge
over time.
Opportunities for community
action and cooperation and
more socially inclusive and
gender equitable societies.
Social Benefits
Compact cities reduce urban
sprawl by limiting
development to areas in ways
that don’t reduce housing and
employment options for the
poor.
Urban areas offer Effective
distribution and access to
social infrastructure and
services such as healthcare
and education.
More democratic structures of
government and governance,
greater diversity and
tolerance
-
-
-
-
43.
Despite significant investments by all orders of government in Pakistan, more needs to
be done to address current and emerging municipal infrastructure needs. It is for this reason that
the GoPb, in partnership with the CDIA and the ADB, have committed to work with intermediate
cities to establish a package of investments to unlock the latent potential that many cities have
shown.
12
New Climate Economy (2014): Better Climate, Better Growth.
Page 31
Chapter I
44.
The future prospects for cities in Punjab will be determined by the management of three
closely interrelated aspects of their sustainability:
44.1. competitive and economic sustainability: the ability of intermediate cities to
attract profitable businesses and grow as centers of production -- to attract investment,
create jobs, facilitate efficient communications and linkages, and enable continuing
improvements in productivity and standards of living both within themselves as well as
provincially;
44.2. resilience and environmental sustainability: the ability of cities to provide a
resilient habitat – shelter, safe water, air quality, waste management, energy efficiencies,
climate change adaptation, and mitigation measures -- necessary for healthy, productive,
satisfying lives for their citizens now and into the future; and
44.3. inclusion and social sustainability: the ability of intermediate cities to
provide a safe, vibrant community where the opportunities and benefits of economic
growth are equitably shared, broad community views are incorporated in decision--‐making,
community leaders are accountable, laws are applied impartially and are inclusive of
women, marginalized, vulnerable, diverse ethnic and religious groups. Cities in
Punjab must create opportunities and vertically bridge different sectors of the
population, enabling individuals and groups to interact, thereby strengthening social
cohesion.
45.
Building sustainable cities in this period of Punjab’s rapid economic and population
growth will always be a work in transition. The ability of intermediate cities to anticipate
growth by managing outcomes across these three areas of sustainability and to plan,
finance, and deliver services is largely dependent on the capacity and effectiveness of urban
governance. Urban governance comprises the formal national, regional, and local
government jurisdictions and arrangements with responsibilities for city management and
services, and the formal and informal arrangements for community, business, and civic
engagement in decision--‐making. The structure, effectiveness, and inclusiveness of urban
governance vary greatly between cities in Punjab. Frequently, effectiveness and
coordination is dependent on the drive and vision of particular city leaders. Inaction, poor
planning, and prevarication are costly as urban growth inexorably continues. Haphazard
development including the development of flood prone or otherwise unsuitable land and
occupation of potential infrastructure corridors can have legacy costs for decades.
46.
While there is considerable variation across the Province, there are core problems
with the planning, financing, and management of urban systems and the delivery of efficient,
sustainable outcomes. These problems are complex and have resulted from the interplay of
governance and resource issues, particularly at the Tehsil levels; these issues are not easily
resolved, and their impacts are exacerbated by the speed of change.
46.1. At the provincial government level, urban policies and strategies are often
ambiguous about urban growth; urban planning systems and laws are antiquated
with urban planning delinked from both budgeting and long term financial planning.
Decentralization and devolution policies are frequently not aligned with the tax bases
of different levels of government and do not create sufficient incentives for cities to
improve their own revenues. Property rights are often unclear with limited control
over corruption and manipulation of public land assets.
46.2. At the city level, planning, management, and financial skills are in short supply;
participatory governance is often weak with limited community and business involvement
in setting priorities. Land management and administration is also often inadequate and
compounded by confusion over responsibility on the urban periphery. This in--‐turn
can lead to uncertainty, forced evictions, speculation, and inflation in local land markets
Page 32
Chapter I
which in the absence of planning for growth, constrains the supply of both housing and
infrastructure and results in the continued growth of slums.
47.
In response to the above, a number of donors in the urban sector have identified the
various channels through which investment in infrastructure can contribute to sustainable
growth. These are summarized as follows:
47.1.
Reducing transaction costs and facilitating trade flows within, between, and
across city regions and across national and provincial borders;
47.2.
Enabling economic actors – individuals, firms, governments – to respond to new
types of demands by a variety of new and emerging users in different places;
47.3.
Lowering the costs of inputs for entrepreneurs and industries, or making existing
enterprises more profitable;
47.4.
Creating employment, including in public works (both as social protection and as
a counter-cyclical policy in times of recession);
47.5.
Enhancing human capital, for example by improving access to schools and health
centers; and,
47.6.
Improving environmental conditions, which link to improved livelihoods, better
health and reduced vulnerability of the poor.
48.
A long-term, cooperative effort among all three orders of government will be required to
address the challenges of current and emerging municipal infrastructure needs. The MFF
strategy that is presented herein is guided by the following principles:
48.1.
Intermediate cities in Punjab (including Sialkot) are the stewards of the
infrastructure they own. The Province has an obligation to help Tehsils and cities
to address their own (self-articulated) development challenges.
48.2.
Comprehensive asset management plans should guide investment decisions.
Indeed, this is the focus of the MFF approach.
48.3.
Those who benefit directly from Tehsil level investments should pay for the
services, whenever feasible.
48.4.
Opportunities should be pursued to provide infrastructure more efficiently by
forging partnerships with other communities or consolidating services where
possible.
48.5.
Maintaining roads, bridges, water, sewerage and wastewater in a manner that is
sensitive to changing social, economic and environmental factors is key to
ensuring longer term sustainability of services, and should therefore be a top
priority.
48.6.
All communities face unique challenges that require tailored solutions and Tehsils
need to accept and respond to this in a meaningful manner.
48.7. 4
49.
The above are further detailed and elaborated by the PICIIP Imperatives presented in the
previous Section of this Report. As part of the Sectorial Strategies and accompanying Road
Maps (see Chapter VI) detailed in this Report, activities in the following three areas have been
discussed at city as well as Provincial levels with a variety of stakeholders:
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Chapter I
49.1.
Making asset management planning and public reporting on investments
universal.
49.2.
Making optimal use of the full range of budgeting and infrastructure financing
tools as provisioned by law in Pakistan.
49.3.
Addressing the structural challenges that are confronting fledgling municipalities.
50.
Resolving municipal infrastructure challenges for intermediate cities in Punjab must begin
with improved asset management. The GoPb views this as a prerequisite for a productive
discussion about solutions, including permanent funding for municipal infrastructure.
51.
Throughout Provincial Departments, government has stated that City Administrations
seeking infrastructure funding must demonstrate how proposed projects fits within a detailed
asset management plan. This will help ensure that limited resources are directed to the most
critical needs and directly respond to ensuring inclusion, competitiveness and resilience (as
described above). Indeed, the institutionalization of the ICDS process demonstrated in the
PICIIP (and discussed in detail in Chapter II and Chapter III) will ensure that such behavioral
changes are permanent and change the dependency culture of municipal administrations.
5
52.
Chapter VI of this Report sets out the information and analysis that supports such
investments for Sialkot. Such analysis should be mainstreamed as processes that all
municipalities should undertake. The MTIIP approach (as with the ICDS approach) should be
mainstreamed, and the work of the PICIIP has served to demonstrate how the GoPb can make
this happen in a very practical way.
53.
Government is moving in the direction of standardizing the MTIIP approach for municipal
asset management planning. Aside from Lahore, there are no cities in Punjab that have detailed
asset management plans. Financing strategies are a key component of an MTIIP. The GoPb as
well as City Administrations must be open to all available revenue and financing tools, and at the
time of writing, there are only a limited number of options available for Pakistani cities. For
example, there may be a need for some cities in Punjab municipalities to revisit their zero debt
policies. Debt financing, such as debentures, loans, and construction financing agreements, help
to spread the cost of expensive capital projects over time so that both current and future users of
services share the burden. In addition, some cities may need to revisit their policies regarding
user fees, such as water rates. The prices of water and wastewater services. These fees do not
often consider the role of many essential urban services as both economic as well as social
goods. Such issues are further detailed in Chapter VIII of this Report.
54.
The below table (Table I-10) provides reference to the principles and approaches
identified above and elaborates the detail where the specifics of the MFF can be found in this
Report.
Table I-10: PICIIP requirements and their detail in this Report
PICIIP MFF Requirement
Reference Chapter in
this Report
1. Road Map
The PICIIP MFF contains sectorial Road Maps for Solid Waste Management,
Water, Sanitation, Sewerage and Drainage as well as Transport. The financing of
improvements in the urban core of Sialkot and Sahiwal do not yet contain a
detailed investment plan, but Road Maps emerging from the strategies resulting
from the ICDS process are presented in Chapter V.
Chapter VI
All the investments noted in the Sectorial Road Maps of Chapter VI are further
summarized and costed in Chapter VIII and assessed in Chapter VII.
Chapter VI
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Chapter I
As required by the ADB MFF guidelines, the Road Maps provide preliminary detail
on:

the strategic directions for Solid Waste Management, Water, Sanitation,
Sewerage and Drainage as well as Transport in Sialkot;

the list of success factors for better performance; and

these are then evaluated and assessed for viability from an
environmental and social perspective. These evaluations stress the
importance of the Road Maps to growth, poverty reduction, gender and
development, and inclusiveness (or the extent to which it is a binding
constraint).
Chapter VI
The Road Map builds on the detailed assessments of physical and
nonphysical conditions in Sialkot. These assessments highlight the main
investment and non-investment bottlenecks, risks, and mitigation conditions
prevalent in the city. Such information then informs the strategic context, policy
framework, and investment programs (the so-called enablers), as well as the
interventions needed and their sequencing.
Chapter VI
Chapter VII
Chapter VIII
Chapter I
2. Strategic Context
The PICIIP provides a clear strategic context, which has been developed
through the work of the ICDS and CRVA.
Chapter I
The MFF sets out a long-term partnership for the chosen sector(s) and thematic
areas.
Chapter VIII
The strategic context also details the principles and imperatives that the MFF
builds on.
Chapter I
3. Policy Framework
The PICIIP MFF builds in the national and local policy framework that goes
beyond the relevant technical or operational aspects. It summarizes the strategic
vision for each sector, and summarizes the principles and targets for change.
Chapter VI
The policy framework also summarizes the main challenges and operating
conditions in the relevant sectors to ensure efficiency, cost recovery,
sustainability, and competition, as appropriate. This information leads to reforms
proposed over the short, medium, and long term that help create the right
environment for public and private investment.
Chapter VI
The changes or reforms proposed further address financial, economic,
commercial, legal, regulatory, and institutional matters.
Chapter VI
The PICIIP MFF finances physical and nonphysical investments. Although
nonphysical investments can include policy changes, these should occur only
within an existing policy platform.
4. Sectorial Investment Programs and MTIIPs
The MFF provide implementation and costing detail in the form of an MTIIP. The
MTIIP is an investment program based on a set of sector-specific projects and
activities that are eligible for financing under an MFF over time. Individual
investments within the investment program are comprised of both physical
investments, such as civil works, equipment, or rolling stock, and nonphysical
investments or activities, such as capacity development and advisory work.
Chapter VIII
Chapter VII
5. Financing Plans
Chapter VI
The MFF identifies initial financing options for the overall MTIIP. It does not
provide detailed plans, as these will be developed at PPTA stage. Where
Chapter VIII
Page 35
Chapter I
feasible, the financing options have specified the sources of finance, availability,
period of financing, and amounts.
55.
Without a clear implementation plan, the above strategy will remain mostly academic.
There is a need to consider the implementation arrangements which will assist in the translation
of the above strategy into an implementable action plan.
56.
ChapterVI of this Report takes the overall PICIIP-wide strategic approaches noted
above, coupled with the imperatives and translates these to Sector Startegies for Solid Waste
Management; Water, Sanitation, Sewerage and Drainage and Transportation Planning. These
Sector Strategies start with Sector Assessments and then highlight the connectivity to the
work of the ICDS component as presented in Chapter V of this Report. The connectivity
between the Sector Assessments and the Strategies result in the Road Maps for each of the
aforementioned infrastructure components. Finally, these result in a series of programmed
investments for each sector, the Medium Term Infrastructure Investment Plans (MTIIPs).
57.
The considerations by which the MTIIP processes have resulted in a programme of
investments as scheduled in Chapter VI is depicted below in Figure I-11.
Figure I-11: Mainstreaming MTIIP Processes into the MFF
58.
As clearly articulated above, the key to the implementability of the MTIIPs will be their
governance arrangements. It is for this reason that a considerable amount of emphasis of this
Report has been devoted to the delivery mechanisms by which investments might materialize.
These governance arrangements are essential to ensuring that the implementability of proposed
investments are provided every opportunity to ensure their success. Chapter VI therefore starts
and ends with considerable discussion on Governance. This is both deliberate and intentional,
as it will be these arrangements (their existing context as well as their proposed reforms) that will
drive the success of the PICIIP.
59.
With such a concentration of key assets condensed into small areas, the significance of
preparing intermediate cities for unexpected challenges and crises becomes increasingly
evident. While natural disasters have always been a risk in Pakistan, the economic and societal
costs of extreme weather events in intermediate cities in Punjab have been steadily increasing
in recent decades and will continue to increase as its cities continue to grow.
60.
This is also due to the fact that extreme weather events resulting from climate change
in the Himalayas and the Arabian Sea coupled with seismic events have become more
frequent, more intense and are projected to further increase in the future, posing
unprecedented threats to cities.
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Chapter I
61.
Traditionally, climate change adaptation strategies have been tailored to specific local
contexts. As each city has a unique set of needs, vulnerabilities and characteristics, it is difficult
to identify one-size-fits-all adaptation measures. However, crises in Pakistani cities resulting
from extreme weather events inevitably affect not only the location in which the event took
place, but have a cascading effect in neighboring cities and regions, as well as on markets and
commerce, with consequences spreading far beyond city borders.
62.
It is mutually beneficial for intermediate cities in Punjab to support one another in their
resilience development and it is efficient for any accumulated knowledge to contribute to
practices elsewhere. This needs to be coordinated at the provincial level and the PICIIP
presents a significant opportunity to play such a coordinating role. Furthermore, many of the
challenges intermediate cities in Punjab face are shared, such as rising temperatures and
increasing flooding, and many existing characteristics and patterns are also shared, such as
types of canal systems, building materials and technologies, citizens’ use of utilities, and
changing populations.
63.
Infrastructure plays an important role in sustaining the development and requirements of
the growing number of intermediate cities in Punjab. It provides critical social and economic
services not only to the city where they are located but also to regions beyond that. Infrastructure
assets such as roads, bridges, drains, water, and power supply networks, buildings, etc., are
seen to have a long operational lifetime and are vulnerable to climate impacts like storm surges,
earthquakes and floods. Because of the historical legacy of these investments in Sialkot and
Sahiwal, they were not originally designed with a climate resilient purpose in mind. The type,
location and engineering detail of investments proposed in Chapter VI of this Report are based
on probable climate change impacts. Investments will need to be maintained and managed such
that it they are also prepared to withstand climate impacts that Sialkot and Sahiwal may be
subjected to during their operational lifetime. This has been discussed in Chapter IV and
Chapter VII.
64.
In determining the range of infrastructure investments presented in this Chapter, the PFS
Team have considered the following key issues in how Sialkot can propose a climate sensitive
package of investments to respond to the dual aims of economic development and poverty
alleviation on one hand, whilst responding to climate change on the other. The range of issues
that have been considered in the program of investments proposed in the key sectors include:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
The ability of city and provincial government to facilitate progress in adapting PICIIP
investments to better respond to current and longer term impacts of climate change;
Establishing and mainstreaming climate sensitive mechanisms in economic and
regulatory models and strategies;
Refining formal and emerging (i.e.: ICDS) planning systems to include climatesensitive responses;
Sensitizing planning systems for city infrastructure to adapt to the impacts of climate
change;
How to ensure municipalities and their partners can form collective responses to
reduce the risk of climate impacts;
Increasing the adaptive capacity in infrastructure companies and others (e.g.
investors) to enable robust and cost effective climate change adaptation decisions to
be made;
Improving municipal decision-making to factor aspects of climate change in all that is
done, rather than by sector;
Taking appropriate action at the municipal level to improve access to specific climate
information and research through better information sharing, disclosure of risk and
evidence, especially for industries within the city;
Defining a program of commitments towards climate specific goals at the household
as well as industrial levels;
Monitoring the progress made in adapting infrastructure to more climate sensitive
changes; and
Page 37
xi.
I.
Chapter I
Defining a pathway to integrate city level actions on climate change with more
national level ones.
PICIIP Components and Conceptual Clarity in Addressing MFF
Issues
65.
With the above in mind, the Study Teams consider that the PICIIP must be able to
influence and impact the areas that will emerge from the resulting list of investment programs
noted in Chapter VI of this Report. Again, the objectives of engaging in the range of
interventions is to improve competitiveness, resilience and inclusion through:
65.1. Infrastructure and essential urban services: this is seen as the key issue to
unlock the development potential of Sialkot. The initiatives selected by Government from
the listed initiatives in this MTIIP will aim to address the complex issues noted above
through a three-pronged methodological approach. The first will focus on technical
project development with an emphasis on implementing immediate infrastructural service
improvements in key Union Councils (UCs) of the city. Based on the implementation of
works in these UCs as well as on a citywide level, the second key area will be to explore
the potential options for phasing-in of additional improvements to meet the demands of
urban constituents for the longer term as articulated in the ICDS visioning and strategic
processes. The third integrated and corresponding area will be to identify the main policy
issues, based on previous Pakistan and Punjab experiences and potential options
developed for increasing decision-making and other necessary actions at the Municipal
Council level and the simultaneous strengthening of civil society on governance matters.
The overall approach of this focus area is to provide an integrated strategy for the
upgrading and rehabilitation of essential urban services. Rather than addressing by
sector a number of sub-projects in various technical disciplines, they will be dealt with in
an integrated and iterative manner, with a view of increasing the overall efficiency of the
city on a neighborhood-by-neighborhood basis. Essentially the goal of this component is
to move towards treatment of essential urban infrastructure as both an economic and
social good, ensuring that services have a balance of social provision and economic cost
recovery.
The PFS Team accepts that cost recovery is only possible where
improvements in services are both tangible and visible. This tangibility and visibility of
improvements must come first and only then can residents be expected to pay for the
improved levels of service they see. Coupled with the political willingness to drive such
change, this element is crucial to ensuring the longer-term viability of Sialkot and the
management of its infrastructure on a proactive (rather than a reactive) basis.
65.2. Tax, public financial management, budget support and institutional
development: the ability to influence public spending directly on the priorities
established by the Sialkot (and its stakeholders) will be a top priority, given the central
importance of these issues for achieving Government priorities13 This is also important
for state/society relations, and hence broader political development. From the work of
the ICDS, it is already clear that the GoPb must be able to strategize for longer-term
needs of its city constituents and think through the links between budget support, better
PFM, stronger institutions and domestic accountability. In the process of the (currently
13
Strategic documents consulted and incorporated into the MTIIP include the following:

ADB Urban Operational Plan (2012-2020), ADB Pakistan Country Partnership Strategy (2015-2019) and
the ADB Urban Sector Strategy

Pakistan 2025: One Nation - One Vision

Punjab Growth Strategy 2018

Punjab Urban Development Sector Plan 2018

Millennium Development Goals (MDG)

GoPb Mid-Term Development Framework 2013-2016 (MTD 2013-2016)
Page 38
Chapter I
underway) local government election process and the expected national elections in
2018, there is a risk that this necessity will be overlooked because of the unwillingness to
make necessary changes in fear of political backlash and the loss of popular appeal.
The cost recovery of services is becoming a reality that the government must respond to.
Wholesale subsidization of services is an expensive way to win political favor. A well
maintained, efficiently delivered service regimen that responds to the needs of city
residents is a better measure of how well government is doing and also responds to the
priorities as determined in the GoPb strategies.
65.3. Public service reform and capacity building: closely aligned to the above is
the necessity for traditional, ‘top-down’ approaches to building technical capacity in core
civil-service institutions, particularly those managing public services. This is discussed in
more detail in various parts of Chapter VI of this Report. Most importantly, this includes
individuals at the city level from the forthcoming Sialkot Municipal Corporation. This has
also been acknowledged and recognized by Government as essential to the long-term
realization of the improvements which infrastructure is meant to catalyze.
The LG&CDD have made significant gains in addressing the needs of poor and
marginalized communities, but such thinking now needs to be shared by all departments
working at the urban level. The restructuring of the Tehsil to a Municipal Corporation and
the Study’s proposals to align the structure so it directly responds to the imperatives of
inclusion, resilience and accountability will allow government to connect strategy with
implementation. This has been largely missing in previous reforms. Our consultations
with GoPb (via the ICDS workshops and meetings with the Urban Unit and LG&CDD as
well as the TA of Sialkot) have helped to inform thinking on how to better align formal
public institutions (at the State, market and civil society levels) with informal social
institutions and norms. This suggests realism about timescales, and recognition of
underlying constraints to reform (for example work done on the political economy of pay
reform in the civil service) may still be required in order to find the right alignment of
incentives to tackle urban services and the adoption by staff of a more delivery and
customer focused mentality. The challenge will be to find more and more incremental
approaches such as the PICIIP that take account of social and political realities, while
still supporting a longer-term, strategic direction of change towards more rules-based
delivery institutions. There is considerable existing work to draw on in Pakistan and the
region, some of it championed by the GoPb, as well as an ever increasing and
comprehensive research base14.
65.4. Service delivery: the United Nation’s World Development Report as well as
Transparency International have highlighted some of the political constraints hampering
essential service delivery in Pakistan specifically. Both reports also acknowledge the
significant gains that have been made over the past decade. Service delivery is
essential to support both economic development and poverty alleviation at the household
(and therefore city) level. Working in a very context-specific way at local levels will yield
better and longer-term results, especially as Sialkot is undergoing extensive political and
social change. There are also generic lessons to be gleaned from looking at what has
worked elsewhere that has been distilled into our list of projects for consideration at the
city level. This is further discussed in Chapter VI and then again in Chapter VIII of this
Report.
65.5. Collective action around public goods: Both the ICDS and PFS teams have
reviewed and revisited current approaches to working with civil society with a broader
focus to include more groups (for example, the private sector). Such groups that have
the capacity to organize and consider how services can catalyze the strategic priorities
identified. In Sialkot and Sahiwal, there is a strong interest in a range of public goods,
14
Merilee Grindle and John Thomas, "Public Choices and Policy Change: The Political Economy of Reform in
Developing Countries", 1991
Page 39
Chapter I
which potentially support an inclusive growth agenda. This is identified and discussed in
more detail in Chapter VI and Chapter VIII of this Report.
65.6. The Study has also incorporated the need to think about the potential for specific
issues (for example climate change and social exclusion) to provide entry points for
alliances between elite and poor groups. Indeed, both the PFS and CRVA Teams have
used this approach to engage community groups and conduct Focus Group Discussions
(FGDs) in Sialkot. More thought needs to be given to the role of faith-based
organizations, particularly as these play a pivotal role in the lives of many in Pakistan.
Women's groups may also provide a focus for action that crosses class and cultural
barriers in most intermediate cities, including Sialkot.
65.7. Leakage, Corruption and Transparency: This is often a sensitive issue in
Pakistan, particularly when working with (or through) government. Considering the
forthcoming local government elections, there is a need for frank, open and candid
dialogue on the issue if it is to be addressed. One top priority for the Municipal
Corporation, especially considering the likely institutional changes that may arise and the
management sourcing of delivery contracts that could emerge, will be to address this
issue openly. There is a high level of demand for ADB funding resources, and therefore
an even better understanding of the political economy around corruption, leakage and
graft is necessary alongside the institutional reforms proposed.
66.
The above 6 considerations in line with the aforementioned technical areas and
disciplines have been included in this report as they are key target areas to ensure Sialkot is
more inclusive, resilient and competitive.
J.
Approach to Delivery of Services
67.
The above issues and requirements have been distilled into our six imperatives (below)
around which the Medium Term Infrastructure Investment Plans presented in Chapter VI have
been framed. These imperatives have allowed the draft initiatives previously presented to be
finally agreed and ratified with Government in January 2016. These agreed initiatives are meant
to unlock Sialkot’s potential at the Macro (citywide) as well as Micro (UC) levels simultaneously.
Throughout the development, agreement and selection of initiatives suggested in the MTIIP, the
PFS Team aimed to:
imperative i.
develop scalable investments with objectives for improving inclusion,
enhancing resilience and encouraging competitiveness whilst at the same
time reducing poverty within the medium term;
imperative ii.
promote city-based, demand-driven, consensus-based approaches using
rigorous social mobilization techniques in order to deliver the strategic
imperatives discussed. Furthermore, by bringing excluded groups (like the
urban poor) to the center of the city development agenda, the MTIIP will
undertake to map priorities and set goals so that this process can continue
over the long term. This will enable Sialkot to be more proactive in its
development agenda. Central to this is treating all urban stakeholders (and
particularly the poor) as clients and subjects (referred to herein as
constituents) instead of merely objects or recipients;
imperative iii.
ensure service and development constraints are addressed based on their
multiple causes rather than just delivering infrastructure or hardware
solutions. This ensures that responses suggested in the MTIIP are holistic
and consider the range of options for improving the way Sialkot works and
functions, not just providing hardware solutions where software ones may be
required. MTIIP interventions and partnerships that build and guarantee
discernible impacts on the lives and livelihoods of all city residents are what
Page 40
Chapter I
is needed in order to satisfy GoPb’s commitments to the strategies listed
earlier;
imperative iv.
enable all households to obtain some level of urban services. Service and
delivery levels will vary based on affordability and their progressive tariff
structures, but at the same time will not exclude those that cannot afford
them. Here it is imperative that urban services are delivered for both social as
well as economic good. The duality of this approach allows for a
differentiation in service levels based on affordability. Pro-poor urban
services (which recognize the needs of the poor to have access to service in
support of livelihoods) will focus on their direct involvement in identification
planning, designing, executing and operating as well as perhaps even
maintaining schemes. Rainwater harvesting, for example is a cost effective
way of providing more of the urban poor with opportunities for water supply;
imperative v.
develop the overall PICIIP with a view of ensuring that the entire network of
intermediate cities provides a learning laboratory, where cities can share
experiences with each other. Good informal fraternities of key individuals
already exist in the government at grade 19 or above. This needs to now
occur between cities so that key personalities within cities can also assist one
another and learn from shared experience. This will allow the PICIIP to be
implemented with a longer-term view of it being learning and regulating to
ensure sustainability long after international support is phased-out;
imperative vi.
ensure the entire PICIIP network of cities is aware of the evolving needs of
intermediate cities in Punjab and the challenges they face on a day-to-day
basis. Only in this way can immediate and effective responses to urban
inclusion, competition and resilience be built and institutionalized.
68.
Figure I-12 and Figure I-13 are therefore crucial to understanding the approach that all
three Teams have taken to converge on delivery of the PICIIP Program and preparation of the
investment packages for city-level improvements.
K.
Cross-Cutting Themes
69.
There are a number of crosscutting themes integrated into and across all of the project
components. Core ones responding directly to ADB’s Safeguard and social development policies
(See Chapter VII) include consideration of poverty reduction, environment and gender. Equally
important within the context of this project are stakeholder participation, inclusiveness, resilience,
climate change responsiveness and competitiveness. All of these are discussed throughout the
report and integrated into all planning and investment strategies.
70.
Poverty reduction and gender considerations are addressed throughout all of the
infrastructure investments aimed at improving urban living conditions and providing a stronger,
more competitive environment for private sector investment and job creation. Planning strategies
beginning at the Mahallah level ensure that small-scale, direct household benefits are provided
across the full socio-economic spectrum with a focus on the lower-income and katchi abadis core
city locations. Directing infrastructure benefits down to the community and household levels has
direct benefits to women with their daily household management needs.
Page 41
Chapter I
Figure I-12: Simplified Approach to the PICIIP
Page 42
Chapter I
Figure I-13: Pathways to Achieving Competitiveness, Inclusion and Resilience
Page 43
Chapter I
71.
A comprehensive discussion building on issues presented in the MFF Strategy detailed
earlier in this Chapter and further elaborating the crosscutting environmental considerations and
actions is provided in Chapter VII. These directly impact the health and well-being of the lowerincome population groups and greatly assist with women’s prime responsibilities of maintaining a
healthy family. Improved environmental management also strengthens the cities’
competitiveness, helps attract private investment and the skilled employees required to create
local employment.
72.
Climate change will have significant implications for the resulting investments proposed
in the MTIIPs of Chapter VI. As the MTIIP infrastructure investments proposed herein have long
operational lifetimes, they are sensitive not only to the existing climate at the time of their
construction, but also to climate variations over the decades of their use. For example, a
substantial proportion of the PICIIP infrastructure built as a result of this program over the next
five years will still be in use long after 2030. To increase the resilience of both new and existing
infrastructure, investments have been planned ahead and their impacts managed according to
the findings of the CRVA as noted in Chapter IV. This is an important part of Pakistan’s transition
to a green economy, and Sialkot’s transition to a bigger engine of Punjab’s (as well as national)
growth. Achieving more climate resilient infrastructure requires the impacts of climate change to
be a key consideration in the way that the PICIIPs have been planned; but this must also follow
through to commissioning and maintenance and persist long after the PICIIP teams have moved
on.
73.
This Report’s sections on Climate Risk and Vulnerability address additional crosscutting
environmental recommendations, which are also integrated into all planning and investment
components. This is also detailed in the IDIA Checklist as presented in the Annexes. Flooding
and water resources are two of the main climate-related concerns addressed that are aimed at
building greater resilience for the cities.
Box I-14: Challenges for Intermediate Cities in Pakistan Addressed by the PICIIP
The ADB have identified (in previous studies) key challenges, which act as barriers to
economic and social development at the city level for Pakistan. These are:
i.
low levels of awareness on emerging urban agglomeration patterns to form
appropriate development frameworks, policies and strategies;
ii.
lack of institutional and organizational knowledge on potential benefits and
economic gains which can be captured from clustered approaches to
development;
iii.
fragmented administrative boundaries hindering intergovernmental coordination
across regions and sub sectors for effective development approaches;
iv.
less developed legal/institutional instruments to address the needs of growing
intermediate or clustered cities in a sustainable manner;
v.
voiceless and powerless poorer groups within growing urban nodes, leading to
little possibility of sharing development benefits; and
vi.
smaller towns and cities suffering more from weaker financial and institutional
capacity to provide public infrastructure than larger agglomerations.
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Chapter I
74.
All investment recommendations are the result of a comprehensive stakeholder
participation program gathering inputs from a cross-section of public sector, private sector, NGO
and community residents to support an integrated approach to the work.
75.
Details of crosscutting theme activities will be expanded upon through the subsequent
PPTA work expected in Q2 of 2016.
L.
Risks and Assumptions
62.
The following is a list of the assumptions made for the preparation of this Report:
Definition of Poverty15
63.
The accepted definition of poverty for use within the PFS is based on income and
consumption as a proxy for income. According to Pakistan Economic Survey, 2013-14 (Chapter
15, Poverty and Social Safety nets), per capita poverty line adjusted for inflation for 2014-15 is
Rs.2447.59/- below which the PFS will consider individuals to be poor. Individuals within 10%
higher than this number are considered to be near poor as poverty is seen to be a dynamic and
therefore shifting problem.
Population Projections
64.
Design considerations presented herein have been based on the population projections
of Sialkot as prepared by the Team and agreed by government. These Projections accept that
populations within Sialkot will grow exponentially not merely based on biological or historical
growth trends but also due to agglomeration and absorption of surrounding areas. The area of
the Cantonment has been factored into future projections as this forms part of the urban area.
Four additional Union Councils (UCs) have also been included in the projections. In summary,
these new areas collectively form the greater Sialkot urban area and must therefore be included
in the thinking of what Sialkot needs for its future. The following are the population data used for
Sialkot in determining the MTIIP and other features in this Report:
Table I-15: Population Estimates for Sialkot
Sialkot
Urban
Population
1998
Population
2015
Population
2020
Population
2025
Population
2030
Population
2035
Population
Estimate
358,376
873,609
980,360
1,100,822
1,236,843
1,390,536
65.
The above figures include the addition of population created by four new Union Councils
(Talwara Mughalan, Pindi Araian, Doburji Malian/Doburji Araian and Habib Pura) for Sialkot for
the 2015 elections. It also includes the notional urban boundaries to 2035 as agreed with
government and presented above.
66.
It is expected that from 2015 through 2035, Sialkot will need to accommodate for an
estimated 658,274 more residents than it would have if kept under its pre electoral boundaries.
The addition of the cantonment and the new UCs coupled with other population growth trends
will result in a total urban population of 1,390,536 by 2035. To accommodate these, based on
existing trends, an additional 3,591 acres (or 1453 hectares) of land will be required.
67.
All of the population data cited in the Final Report will use the above figures for the
calculation of preliminary infrastructure designs and financial data and accompanying estimates.
15
Government of Pakistan, Ministry of Finance. Adapted income poverty line taken from Pakistan Economic
Survey 2013-2014, Chapter 15. Edited by M. Shamim Wazir, Joint Economic Adviser. Karachi, 2014.
Page 45
Chapter I
Notified Boundaries of TMA/MC Areas
68.
Although the Election Commission of Pakistan has confirmed the boundaries for Sialkot,
what is more important is the notional boundary for 2035 as this is vital for planning purposes.
It is expected that the total urban boundary by 2035 will be 17.719 acres (or 71.7 km2)
Projected Future Boundaries
69.
If densification and consolidation of urban sprawl is better managed, Sialkot will grow
laterally as well as vertically. This will place less pressure on valuable agricultural land on the
periphery of the city and make better use of urban land. However, there is a need to consider
the outward growth of the city and where potential boundaries might be in the medium to longer
terms. This is a highly predictive data, based on many unknown factors that cannot now be
reasonably foreseen. As an intellectual exercise however it must be done to show where
services might possibly be required in the medium to longer terms. For planning purposes, a
notional boundary has been agreed with the government, and this is presented in Figure I-16.
Figure I-16: Projected Notional Boundary for Sialkot by 2035
(The 2035 Boundary being the sum of the outline red, purple and yellow boundaries)
Collection of Primary Data versus Use of Existing Data Sources
70.
For the vast majority of the analyses presented in this Report, there has been a reliance
on secondary data. No primary data is required for the preparation of a PFS as per the CDIA
guidelines. However, the government has been supportive and provided the means and
resources to confirm existing data, and where gaps exist, have also provided measures to fill
these. Primary surveys have been conducted by the pro-poor and social development teams in
Sialkot and these results are presented in this Report. Water, Sanitation and Sewerage surveys
Page 46
Chapter I
have begun their procurement processes to determine the extent of rehabilitation required in the
water and sewerage networks.
Documents Consulted
71.
The PFS considers the below documents as the key strategic imperatives, evidence and
information bases, policies and guidelines upon which the MTIIP will be based. These will be
blended with stakeholder consultations to determine the final mix of programs and projects
proposed by the MTIIP:




















Pro Poor Urban Infrastructure Investment, CDIA’s guidelines for Municipalities (2012);
CDIA PFS Preparation Manual and Checklists for Inclusive Urban Infrastructure
Development (2013);
Pakistan 2025: One Nation - One Vision;
Punjab Growth Strategy 2018;
Punjab Urban Development Sector Plan 2018;
GoPb Mid-Term Development Framework 2013-2016 (MTD 2013-2016);
ADB Urban Operational Plan (2012-2020);
ADB Pakistan Country Partnership Strategy (2015-2019);
ADB Urban Sector Strategy;
Punjab Local Government Act, 2013
District Census Report for Sialkot District, 1998;
Punjab Development Statistics 2014;
Punjab City Improvement Investment Program Report (2011) by GHK International and the
Government of Pakistan;
Sialkot Water Supply, Sewerage and Drainage Strategy and Action Plan (2010) by GHK
International and the Government of Pakistan;
Sialkot Base Map prepared by the Government of Pakistan, 2015;
Urban Planning in Sialkot, 2011 by GHK International and the Government of Pakistan;
Hand Book on Poverty and Social Analysis (A Working Document);
Urban Water Supply and Sewerage Reform Strategy, Government of Punjab, Final Report
(2006);
Punjab Katchi Abadis Act (1992) and successive amendments;
Urban Planning in Sialkot: Punjab city improvement investment program (2011);
Next Steps and Nature of this Document
72.
This document is to be considered the culmination of internal negotiations between the
PICIIP Teams and the Urban Unit. The Urban Unit with the support of National Consultants led
broader consultations with the city of Sialkot and other provincial departments and agencies on
the PICIIP Teams.
Proposals noted herein were refined through various stakeholder
consultations led by government. These discussions and consultations will serve as the basis for
the next steps of the Feasibility Study/Project Preparation Technical Assistance (PPTA).
73.
The following is a list of internal risks (rather than externalities) associated with the
preparation of the MTIIP and PFS Report:
Political Will
74.
Considerable emphasis is placed on the subject of cost recovery in the proposals of the
MTIIP and other sections of this Report. With the completion of local government elections in
Sialkot, there is considerable uncertainty if the new Chief Officer of the Municipal Corporation will
want to raise tariffs for essential services. This is further complicated by the impending national
elections expected for 2018 and the less than likely scenario that the present government will
approve or sanction rate hikes in advance of the election: on the contrary, government wants
tangible and visible delivery of urban improvements on the one hand, but will likely defer rate
hikes until their political certainty is confirmed after 2018.
Page 47
Chapter I
Genuine Devolution
75.
Closely associated to the above is the notion of genuine devolution. In the past few
years, there has been a retraction of the willingness of authority and responsibility from the
provincial to local governments, and the reasons for this are well established and clear. The lack
of capacities in many local Tehsils has rendered it more efficient to manage intermediate cities
and small towns from a provincial base. This is (hopefully) a temporary step whilst government
builds the capacities for intermediate cities to develop their own abilities to plan, manage and
deliver essential urban services. A return to the track of devolution is necessary if provincial
government is to remain focused on ‘driving’ strategic processes whilst towns and cities are
given the responsibility for actually ‘implementing and delivering’ these changes.
Timing
76.
The timelines for all of the MTIIP assume the same start date of April 2016 being Month 1
of implementation for delivery of the first initiative. This is for indicative purposes only. The
PICIIP will adopt a phased approach where initiatives will be tested, scaled and expanded over
time on a sector-by-sector basis. This will need to occur concurrent to the rebuilding and
engineering of municipal capacities, and inculcation of a service-orientated culture within the new
MC.
Behavior Change within the Municipal Corporation
77.
By far the single most significant impediment to the delivery of longer-term services will
be the reform of the culture of work within the Municipal Corporation. At the moment, the MC
does not see residents as customers who are entitled to consumer protection rights as other
customers are. The creation of municipal level Service Charters will clearly spell out the specific
obligations the municipality has to its residents. Staff within the new MC will need to be bound to
this Service Charter. It is hoped that such an ethic will allow the reform of a work and service
culture which treats residents as customers, putting their needs first, rather than as recipients or
beneficiaries who must accept what they are given.
Institutionalizing Community-Centered Approaches
78.
Despite the well-known advantages of participation, the lack of ethical and political
convergence between local governments and communities has led to a great deal of questioning
about the wisdom of involving governments in participatory endeavors. Concerns are quite
rightly raised that increasing government involvement will compromise the quality and output of
participatory processes achieved through focused, skilled initiatives. While this is true to some
extent at least, it is necessary to work with the TMA to bring about the scale of initiatives likely to
have broad impacts on all of Sialkot’s residents, including the poor. The other primary reason for
pursing community participation and community partnerships with the TMA is that it is time to
dismantle ineffective prescriptive approaches to service delivery.
M.
Building on Initial City Priorities and Needs
79.
The orientation of the PICIIP is such that it seeks to provide a framework for
infrastructure to act as a catalyst for achievement of broader imperatives as articulated by
government policy and strategy.
80.
In doing so, it must work with the full range of urban actors to identify ways that the
existing priorities and needs can be better met. This includes working with existing local
institutions, agencies and organizations at the city level that can assist the MC/TMA to better
respond to the challenge of economic development and rapid urban growth. The anticipated
impact is a better integrated, more efficient and accountable city, which is closely aligned and
linked with the provincial and national urban policy context that supports such development in
intermediate cities throughout the province.
81.
The ICDS as well as stakeholder interviews and FGDs have developed key priorities that
have been documented in this Report.
Page 48
Chapter I
82.
The institutional component of this report (see Chapter VI) has defined a system of
taking felt needs and priorities, and acting on these by Sialkot. This is a revolutionary and
innovate step for Pakistan in that it now directly links urban strategy with implementation and
delivery at the city level. It further means that strategy can be budgeted at the provincial as well
as city levels, thereby measuring the benefits achieved for investments.
83.
The objectives of linking the prioritization of urban needs with delivery and strategic
options is to:
83.1. Provide a longer term, enduring and traceable framework to streamline and
strengthen regional planning and development in Sialkot (and other intermediate cities)
by directly linking priorities with strategy and implementation functions;
83.2. Provide a clear, coherent and integrated basis for rationalizing the system of
urban planning through a review of various strategic policy instruments and a monitoring
framework which can track their achievement against targets and milestones; and
83.3. Make recommendations and improvements to existing legislation to create a
policy framework for strategies to be achieved and implemented at the city level. This
would necessitate the need for learning from experiences and creating feedback loops to
inform policy from the delivery of activities at the city level. Again, this is an innovation
that has not yet been factored into the function of cities, but has been considered in the
proposals of the MTIIP as presented in Chapter VI and Chapter VIII;
N.
Methodology and Assessment of Priorities and Proposals
84.
The Methodologies for each technical task have been presented in individual Sections
and Chapters. Overall however, the PFS Team’s approach to the PICIIP has addressed the
complex issues noted above through a three-pronged methodological approach as identified in
Figure I-12 and Figure I-12 as well as Figure I-17 overleaf.
85.
The first will focus on technical project development with an emphasis on selecting
initiatives likely to show immediate improvements in the lives of Sialkot’s residents.
86.
Based on these early successes, the second key area will be to explore the potential
options for phasing-in of additional initiatives (through existing initiatives in Punjab through other
assisted programs or best/better global or regional practice), which can be shown to meet the
demands of Sialkot’s constituents and exhibit a potential for rapid testing and scaling-up. This
means the crowding in of other resources from the private or donor sector will need to piggyback
onto existing PICIIP initiatives, rendering them technically legitimate and economically prudent at
the same time.
87.
The third (and longer-term) integrated and corresponding area will be to identify the main
policy issues, which serve as a barrier to city inclusivity, resilience and competitiveness. This
has been referred to in Chapter III and Chapter IV and Chapter V of this Report, where feeding
back of city experiences should help inform policy so as to encourage economic growth, asset
accumulation and reduce dependencies.
Page 49
Chapter I
Figure I-17: Three-Pronged Methodological Approach for PICIIP
Improved Competitiveness, Inclusion
and Resilience
In Sialkot and Sahiwal
To devise participatory planning processes,
providing accurate and accessible information
to stakeholders so that informed decisions
on interventions can be made.
The processes should serve as a guideline for implementation
of sustainable economic, planning, policy development,
and economic development strategies in Sialkot and Sahiwal
Integrated Strategic Approach to Development,
Planning, Inst/Policy Framework and the Economy:
With a Particular Focus on Consultation and Sustainability
Through: bottom-up (working with civil society) and
top-down (working with Government)
Development
Planning, Improved Services
Management towards
Human Development
Support for
Social Inclusion
and Building Resiliences
Institutional Strengthening,
Organisational Development
and Support to City Level
Decision-Making
How?
How?
How?
Participatory Planning,
Financing and Prioritisation
of Urban Investments
Private & ‘Third’ Sector as
Participants in City Economy
Dialogue at GoPb and City
Levels
Physical/Social/Institutional
Improvements for
Enhanced City
Competitiveness
Open discussion on
lack of city-wide co-ordination
proposed mitigation
strategies and measures
Awareness Raising
Goal Setting
Prioritised Investments
Alternative Financing Models
Formal/Informal Capacity
Improvements,
Policy Reform
and Change Management
Package of Physical and
Social Investments
Prepared for ADB Financing
City Development
Management Programmes
Adopting International
Best Practice
Participatory Budgetting
88.
Overall, the aim is to explore options for mainstreaming the needs of Sialkot’s residents
that would otherwise not be addressed. This includes exploring better ways of reaching
excluded individuals and groups, not just through infrastructure, but also by other processes and
systems that Sialkot Municipal Corporation is responsible for.
Page 50
Chapter I
89.
In order to address these issues simultaneously during the three Teams’ involvement in
the PICIIP, the assignment considers the following methodological approach:
89.1. socio-economic, financial analysis and policy issues meant to broaden the impact
to government, private and ‘third’ sectors in the catalytic role that urban infrastructure
plays within Sialkot.
89.2. institutional development and sustainability issues meant to mainstream the
needs of all urban residents of Sialkot.
90.
The overall approach of the component is to provide an integrated strategy for exploring
both innovative as well as conventional approaches likely to benefit the needs of Sialkot’s
residents directly.
91.
Rather than attempt trickle-down approaches, the MTIIP will confirm the viability,
sustainability, cost-effectiveness and impact of programmatic priorities within an integrated and
iterative framework.
92.
The overall view will be to increase the overall efficiency and effectiveness of delivering
measurable benefits in economic and social terms to all city residents. The monitoring
framework proposed for the Final Report will ensure that benefits are tracked, captured and
quantified.
93.
The MTIIP implementation process entails the following basic methodological steps for
delivery of the Mid Term Report to ensure the remainder of the work is both legitimized and ontime:
93.1. initial assessment of potential initiatives, programs and sub-projects required for
catalyzing economic productivity, reducing environmental or social vulnerability or
mitigating marginalization with an overall target of improving city competitiveness whilst
reducing household poverty;
93.2. rapid review of priority problems perpetuating a worsening urban condition and
identifying some of the underlying causes;
93.3. identification of development objectives, infrastructure capabilities, social and
environmental responses, market and social safety-nets, responses to ameliorate
marginalization and the resulting available technologies, surveys, technical capacities
necessary to create positive changes in the lives of urban residents. This should
encourage city stakeholders and government alike to finalize and agree a list of priority
interventions that will respond to the three strategic objectives identified previously;
93.4. assessment of priorities and defining the ‘do-able’ in high priority pilot projects
likely to deliver greatest benefit at city-wide as well as neighborhood (Mahallah) levels;
93.5. identifying and providing detailed measurable projects, programs and
interventions for priority projects that respond to needs as articulated by Sialkot
stakeholders through the various consultation mechanisms identified and employed; and
93.6. Defining a longer term program of institutional and policy reforms and technical
assistance emerging from the experiences of various delivery agents (including the
private sector) for stakeholders participating in the PIIIP process.
Page 51
Chapter I
94.
Throughout this initial process aiming to provide the quick-wins, the PFS team will remain
cognizant of the distinction between the feasibility and acceptability. For whilst the feasibility of
technical solutions can be judged from experience elsewhere, acceptability always refers to the
local cultural, political and socio-economic context and climate specific to Sialkot’s residents and
its administration. Part of the success of the PICIIP will depend on accurate judgments of the
latter, and the Team has been sensitive to the context of both cities, their stakeholders and
government at the provincial level in making specific applications on behalf of the stakeholders
the MTIIP is ultimately aimed at.
O.
Structure of This Report
95.
This Report combines the work of the ICDS, CRVA and PFS components into one
comprehensive document:
Chapter I:
Introduction
Chapter II:
Strategic Context
Chapter III:
Chapter IV:
Chapter V:
Chapter VI:
Sector Assessments, Strategies and Roadmaps
Chapter VII
Safeguards & Cross-Cutting Themes
Chapter VIII
Municipal Finance
Chapter IX:
Implementation
Page 52
REG-8556
Pakistan
CHAPTER II
Strategic Context
April 2016
project’s design
A.
Chapter II
Strategic Context
Urbanization and Economic Development
Punjab’s Growth Strategy
1. Punjab is aiming for an annual GDP growth rate of 8% by 2018, which is double the current
national rate of just over 4%. Punjab also wishes to create 1 million quality jobs during the same
period. To achieve these goals two of the key sectors to be focused on are industrial
development and urban development including16:




Improving the investment climate with upgraded infrastructure, institutional and
governance reforms, better functioning cities and urban clusters
Revival of investment by the private sector
Focus on employment-intensive sectors and creation of quality jobs
Focus on export-oriented economic growth
The Urban Role
2. Cities are globally recognized as “the engines of growth” and Punjab clearly acknowledges
this in its Punjab Urban Development Sector Plan 2018. Globally, cities on average are
responsible for 70% of national GDP 17 with individual city contributions largely attributed to
whether they are at the lower regional market/service-provision level or have grown to being a
production and export-oriented city. Sialkot is very much an export production city, whilst also
providing significant local services and market opportunities. Sahiwal has the potential to
transition from a market/service city to an increasingly production-oriented one.
3. The key to economic growth is job creation, and cities provide those opportunities if they can
create an attractive enabling environment both institutionally and physically. The focus is often on
attracting the large multi-national firms (MNC) with the resources to provide for many of their own
needs if the environment is right, but the vast majority of urban jobs are created by small and
medium domestic firms (SME) who rely heavily on the collective resources of an urban area for
their growth and survival. Successfully competitive cities are the ones who are able to establish
and maintain that attractive enabling environment and provide the resources needed by the job
creators. Some of those needs are discussed below.
Urban Needs to Support Economic Growth
4. To be competitive cities and create the jobs, raise productivity, and increase incomes that
are the indicators of a competitive city 18 , both Sialkot and Sahiwal need to have in place a
number of elements:





Efficient, effective and transparent governance including approval processes
Competent city management
A well-functioning land market
Adequate infrastructure and services including power, transport and water. To
sustainably provide these requires a city that is:
o compactly planned with effective development control
o largely self-financed through appropriate levels of taxation and user-fee
collection
The right labor force. To attract and maintain that labor force needs a city that has:
16
World Bank
18
IBID
17
Page 55

Chapter II
Strategic Context
o well-functioning and affordable infrastructure and services
o adequate social amenities - health, education and recreation
o access to a full range of economic amenities and opportunities
o affordable housing
o affordable and efficient transport
o a pleasant “livable” urban environment
Resilient adaptations to climate change and resulting environmental impacts
5. Providing all of these competitive city needs relies on the capacities, efficiency and
integration of institutions through all levels of government.
The PICIIP Contribution
6. PICIIP’s goal is to support the creation of competitive cities that will drive Punjab’s growth to
the levels it desires. PICIIP is doing this by:







Introducing and institutionalizing the Integrated City Development Strategy (ICDS)
approach to urban planning development as the development framework.
Undertaking a Climate Risk Vulnerability Assessment (CRVA) along with required
mitigating actions to deal with the impacts of projected climate change.
Developing a series of Sector Strategies and accompanying Road Maps
Supporting municipal management reform that is the key to sustained urban growth
including increased self-reliance as both the province and the nation move away from
urban subsidies and transfer more responsibility onto the beneficiaries
Providing access to training to build municipal management capacities
Supporting improvement of prioritized physical infrastructure to both provide improved
services and justify collection of increased taxes to maintain the city
Creating a competitive city model that can be replicated throughout Punjab’s intermediate
cities.
The details of how these needs are being addressed are presented in the following sections.
B.
Institutional and Policy Context
7. The Project, including The PFS, ICDS and CRVA components, is prepared within the
context of, and to provide full support to, a number of higher-level Government policies and
guided by ADB and CDIA development policies. Figure 2-1.
Pakistan and Punjab




Pakistan 2025: One Nation - One Vision
Punjab Urban Development Sector Plan 2018.
o The underlying principles of this Plan recognize that cities are the Engines of
Growth; are central to Punjab’s long-term growth strategy; and will only fulfill
those roles is they concentrate on Density and Conglomeration. These two
words are fundamental to all that follows.
Punjab Mid-Term Development Framework 2013-2016 (MTD 2013-2016)
Pakistan Vision 202519:
19
Source: Pakistan 2025, One Nation – One Vision, Planning Commission, Ministry of Planning,
Page 56
Chapter II
Strategic Context
8. Unlike the past versions, Vision-2025 also provides implementation aspects. It
encompasses a road map and an implementation strategy for Pakistan for the next one decade.
Pakistan Vision 2025 is designed to represent an aspirational destination. It will serve as a critical
guidepost for the development of an effective strategy and road map to reach the national goals
and aspirations. It is not meant to represent the resultant strategy and program itself. The Vision
will be realized through strategies and programs defined in associated five-year and annual
plans. The seven pillars of Vision-2025 are:







People First: Developing social and human capital and empowering women
Sustained, indigenous, and inclusive growth
Governance: Democratic governance: institutional reforms and modernization of the
public sector
Security: Energy, water, and food security
Entrepreneurship: Private Sector and entrepreneurship-led growth
Knowledge Economy: Developing a competitive knowledge economy through value
addition
Connectivity: Modernizing transport infrastructure and regional connectivity
Figure II-0-1: Policy & Planning Framework
Development & Reforms, Govt. of Pakistan, 2015.
Page 57
Chapter II
Strategic Context
Punjab Growth Strategy20
9. For sustained improvement in living standards, the growth strategy has to be private sectorled, employment intensive and export intensive, regionally balanced and environmentally sound.
The strategy for growth, furthermore, has to address the unsatisfactory health and education
outcomes that lower living standards of the poor. Punjab’s growth strategy also has to provide,
in tandem with initiatives of the Federal Government, an adequate safety net for the bottom
quintile of the population.
10. The Government believes that for sustained job creation and improvement in living
standards, we must tap into several drivers of growth, which underpin the proposed Growth
Strategy 2018. Economic growth in Punjab must be:





Led by the Private sector
Based on improvements in Productivity of resources
Focused on employment intensive job creation
Anchored in better functioning urban clusters
Bolstered by better skilled and more employable youth by addressing critical gaps in
human capital
11. The instruments for implementing the Punjab Growth Strategy 2018 are:





Public funds in the Provincial Annual Development Program (ADP), including Donor
assistance.
Provincial capacity to forge public-private partnerships in the provision of physical
and social infrastructure.
Provincial r e g u l a t o r y f r a m e w o r k t h a t a f f e c t s P u n j a b ’ s i n v e s t m e n t
c l i m a t e a n d e n c o u r a g e s productivity-led growth.
Engagement with the Federal Government to enhance the enabling environment
for Punjab’s growth (i.e. sound macro-economic management, conducive trade
policy, adequate energy, efficient logistics and connectivity).
Engagement with the Federal Government to improve the Federal regulatory
framework that affects Punjab’s investment climate (i.e. tax policy and tax
administration).
Punjab Urban Development Sector Plan, 2018
12. A central principle of the Sector Plan is that “density” and “agglomeration” are central to
economic development, higher productivity, social equity and human development. To make
Punjab competitive for investment and development, cities are going to play a vital role,
because they can benefit from a large and skilled labor force, economies of urban scale, and
economies of agglomeration (i.e. Efficiency resulting from clustering of firms in a given
industry o r r e l a t e d i n d u s t r i e s ), and the resulting demand for goods and services.
13. Further, rural-urban migration and urbanization can only lead to higher income if
manufacturing and services grow fast enough to absorb the supply of labor. Pakistan will have to
invest in many cities at the same time to ensure a more geographically balanced rate of
urbanization and the creation of a system of cities an efficient network of urban centers whose
manufacturing and services industry are connected. Harnessing and promoting this approach
of “system of cities” will lead to faster job creation and higher growth of productivity.
14. Placing urban development (with an emphasis on density and commerce) at the Strategy
has several advantages. Dense multi-function urban areas create jobs and are free from barriers
20
Source: Punjab Growth Strategy 2018, First Draft, Planning & Development Department, Govt. of Punjab,
Lahore, 2013.
Page 58
Chapter II
Strategic Context
to entry and exit. And density attracts investment and helps the growth of the construction of
industry as well as commerce, which are employment friendly.
Asian Development Bank (ADB)
15. In addition to ADB’s overall mandates, at the urban level investment support is guided by the
Urban Operational Plan 2012-2020, which recognizes cities as the keys to social and economic
growth and stresses the need to achieve a more integrated “3E” approach to urban investment:
Environmental (Green)
Equitable (Inclusive)
Economic (Competitive)
Cities Development Initiative for Asia (CDIA)
16. CDIA’s mandate is to contribute to sustainable and equitable urban development, leading to
improved environmental and living conditions for all in Asian cities. CDIA fully recognizes the
value of an Integrated City Development Strategy as the platform for inclusive, competitive and
resilient cities. The current project is guided by their expertise.
Global
17. The UN’s newly released Sustainable Development Goals (SDG) follow upon the previous
MDGs and are targets for the year 2030. They provide overall urban development guidance for
the Governments of Pakistan and Punjab, and the ADB.
Goal 1:
Goal 2:
Goal 3:
Goal 4:
Goal 5:
Goal 6:
Goal 7:
Goal 8:
Goal 9:
Goal 10:
Goal 11:
Goal 12:
Goal 13:
Goal 14:
Goal 15:
Goal 16:
Goal 17:
End poverty in all its forms everywhere.
End hunger, achieve food security and improved nutrition and promote
sustainable agriculture.
Ensure healthy lives and promote well-being for all at all ages.
Ensure inclusive and equitable quality education and promote lifelong learning
opportunities for all.
Achieve gender equality and empower all women and girls.
Ensure availability and sustainable management of water and sanitation for all.
Ensure access to affordable, reliable, sustainable and modern energy for all.
Promote sustained, inclusive and sustainable economic growth, full and
productive employment and decent work for all.
Build resilient infrastructure, promote inclusive and sustainable industrialization
and foster innovation.
Reduce inequality within and among countries.
Make cities and human settlements inclusive, safe, resilient and sustainable.
Ensure sustainable consumption and production patterns.
Take urgent action to combat climate change and its impacts.
Conserve and sustainable use the oceans, seas and marine resources for
sustainable development.
Protect, restore and promote sustainable use of terrestrial ecosystems,
sustainable manage forests, combat desertification, and halt and reverse land
degradation and halt biodiversity loss.
Promote peaceful and inclusive societies for sustainable development, provide
access to justice for all and build effective, accountable and inclusive
institutions at all levels.
Strengthen the means of implementation and revitalize the Global Partnership
for Sustainable Development.
Page 59
REG-8556
Pakistan
CHAPTER III
Rapid Urban Assessment (RUA)
April 2016
project’s design
Chapter III
Introduction
A.
Purpose of Rapid Urban Assessment (RUA)
1.
This Rapid Urban Assessment (RUA) presents an overview of the urban conditions in
Sialkot as the baseline for the next step - preparation of a City Development Strategy. The RUA
addresses Socio-Economic, Environmental, Land Use, Infrastructure and Institutional conditions
at an integrated and broad over-view level. The parallel PICIIP Pre-Feasibility Study (PFS) and
Climate Risk and Vulnerability Assessment (CRVA) provide greater detailed assessments in
those areas, and RUA should be read in conjunction with those Reports. All of these are aimed
at creating a “green” city that is sustainable and climate change resilient. These, in turn, will
create a socially and economically robust city.
Figure III-1: Location - Sialkot
Page 63
B.
Chapter III
Policy Context
2.
The RUA must also be read in conjunction with the national and provincial policy context
reviewed in the Inception Report and including:





C.
Pakistan 2025: One Nation - One Vision21
Punjab Urban Development Sector Plan 201823
Millennium Development Goals (MDG)
GoPb Mid-Term Development Framework 2013-2016 (MTD 2013-2016)24
Approach and Methodologies in Preparing the RUA
3. In accordance with the Inception Report, the entire ICDS work is based on an understanding
of urban areas as an integrated series of processes (seen in Figure III-3). These processes
rely on and influence each other.
4. Two main methodologies were employed: Secondary data review and Field Work. The focus
was on fieldwork centered on a highly participatory Stakeholder Workshop (Figure III-2). A
cross-section of public sector, private sector and NGO participants engaged in a discussion
of Sialkot’s existing situation, key issues, prime opportunities and major constraints to attain
a vision of Sialkot’s future. Findings are woven into this Report and presented as a summary
in sub section ‘Summary of Diagnostics’ of this chapter.
Figure III-2: Sialkot - Participatory Stakeholders’ Workshop
21
Pakistan 2025, One Nation-One Vision, Planning Commission, Ministry of Planning, Development &
Reforms, Government of Pakistan.
22
Pakistan Growth Strategy 2018, Planning & Development Department, Government of Punjab, 2013
23
Source: ibid, Page 32.
24
Source: ibid, Page 33
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Chapter III
Figure III-3: RUA Integrated Components
Socio-Economic Context
D.
Demographics
5.
Punjab’s urban population in 2014 was 32% (32 million out of 100 million) 25 and is
estimated to increase to 40% by 2030 (59 million out of 150 million)26 at a rate of almost 3% per
annum. Rural-urban migration is the major driver of Punjab’s urban population growth. Sialkot is
following a similar pattern although with a slightly lower urbanization rate than the province as a
whole.
6.
Table III-4 summarizes existing and projected populations for Sialkot District. Sialkot’s
Urban Area and Cantonment has an average urban growth rate of about 2.6%. This indicates
that the District population will nearly double in the next 20 years and from rural-urban patterns a
greater proportion will be urban. Consequently, urban investment and strategic planning is
imperative in order to meet these rapidly expanding needs.
7.
However, these projections are based on the current urban boundary. Boundaries change
as will the official distribution of the total 2.3 million. Furthermore, once the proposed City
Development Strategy is implemented, it is likely that the recommendations will alter settlement
patterns. This in turn will result in a reduction of growth in “other areas”, many of which represent
urban sprawl. Subsequent Phases on Sialkot’s Development Strategy will further assess these
scenarios.
25
26
Punjab Development Statistics, 2014
ADB and consultant calculation
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Chapter III
8.
The average household size in Punjab is 6.2 persons27, which has housing implications
that are further discussed in Sub Section H. It should also be noted that the Cantonment area,
although treated equally here, is unlikely to grow at the same rate, if at all. Population density is
discussed in Sub Section K.
Table III-4: Sialkot Population Projections
Sialkot
2015
2020
2025
2030
2035
Sialkot Urban
559,042
609,694
664,936
725,185
790,894
Sialkot Cantonment
90,851
101,119
112,549
125,241
139,364
Other Areas
223,617
269,547
323,337
386,417
460,278
Total
873,609
980,360
1,100,822
1,236,843
2,333,879
Source: Projected from: Punjab Development Statistics, 2014; Sialkot Planning Report, 2010
E.
Employment
9.
Employment characteristics are important for the ICDS in planning the use of land and the
nature of the supporting infrastructure required. It also can be an indicator of potential
environmental assets or constraints that will need to be taken into consideration.
10. Sialkot consists of more than 3,00028 factories. These provide the majority of employment.
This will have a significant impact on present and future Sialkot. The following summary points
are of particular interest with respect to the Sialkot District 29 (specific data for Sialkot urban
center is not available, but may be somewhat different given the industrial focus):








Overall labor force participation is below national average: 45% compared to 53.5
nationally
Official unemployment rate is 6.6% compared to a national average of 5.3%
Share of employment in the informal sector is close to the national average at 69%
for Sialkot compared to 72.9% nationally
Informal Sector employment comprises:
 33% in manufacturing
 16% in construction
 33% in trade and hospitality, and
 10% in personal services
Lowest unemployment for all levels of education compared to national averages and
other surveyed Districts
Distribution of employment by major occupation groups is similar to national
averages except with respect to “Craft and Related Trades Workers” where Sialkot
exceeds all other Districts and at 33.9% is more than double the national average of
14.8%. This clearly reflects Sialkot’s unique and historical industrial activity.
With respect to the sub-sector of “Precision, handicraft, printing and related trades
workers” Sialkot excels with 20.2%, almost 4 times the national average of 5.5%,
again reflecting Sialkot’s unique industries.
Wages: Sialkot falls behind with highly skilled workers earning 26% less (Rs 10,686)
than the national average of Rs 14,500. Skilled workers’ wages are also slightly less
than the national average, but unskilled workers are earning almost 40% (Rs 8,221)
more than the national average (Rs 5,785).
27
Poverty and Social Impact Analysis, 2008, for Urban Unit by Semiotics Consulting (Pvt) Ltd.
Sialkot Chamber of Commerce
29
District Level Employment Trends 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics, Page 226 of
Punjab Development Statistics, 2014.
28
Page 66


F.
Chapter III
In the priority area of Precision handicraft skills, Sialkot wages are 10% higher (Rs
8,145) than the national average (Rs 7,396).
NOTE: all wage numbers date from 2009 so are likely outdated, but do give an
indication of trends.
Social Facilities
Educational
11.
Sialkot is well serviced by the following higher secondary educational institutes:
 University of Engineering Sciences and Technology
 Sub-campus of the Fatima Jinnah Women University
 Sub-campus of the Virtual University of Pakistan
 Sub-campus of University of Management and Technology
 Sialkot Medical College
 Over 20 colleges
 11 Technical/Vocational training institutes
12. There is also stated demand30 for a Technical University paying particular attention to the
education needs of Sialkot’s industrial enterprises. However, the illiteracy rate while 23% lower
than the national average of 43.7% is still high. At the same time, those achieving mid-level
education stand at over 18%, 50% higher than the national average, and those achieving a
matric level are 25% higher than the national average at 17.9%.31
Health Facilities
13. There are 4 District Hospitals: Sialkot, Daska, Sambrial and Pasrur, and over 20 other
hospitals or specialized care facilities32. In addition, there are 27 Basic Health Units in the Sialkot
Tehsil alone, with considerably more scattered throughout the other 3 Tehsils comprising Sialkot
District.
G.
Urban Poverty
14.
The Poverty and Social Impact Analysis (PSIA) 2008 33 assesses conditions in urban
Punjab, but not specifically Sialkot. There is little reason to indicate the conditions are
significantly different. Poverty assessments were based on a range of conditions beyond just
simple income with:
 Overall consumption/income poverty: 33% compared to national 32%
 Punjab Urban Poverty: 26%; rural 36% almost equivalent to national averages
 46% of income on food, another 45% on non-food and almost 5% on transport, the
costliest urban service. Almost nothing was spent on water, sanitation and solid
waste reflecting, at least in part, the low availability of those services among the poor,
and the low rates that are charged to those who are paying
 Cost of transport increased by 250% in the 5-year period prior to this study and is
increasingly an unaffordable burden on low-income households
 61% of households had only one person generating income
30
ICDS Stakeholder Workshop 8 Sep 2015
District Level Employment Trends 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics unless noted.
32
Punjab Development Statistics, 2014, Government of Punjab, Lahore
33
For Urban Unit by Semiotics Consultants (Pvt) Ltd.
31
Page 67
H.
Chapter III
Housing
15.
No specific housing statistics were obtained for Sialkot, but conditions appear to be
similar to those sampled in the PSIA:
 Average household size 6.2
 30% of demand met by formal housing
 Of the remaining 70%: 25% in Katchi Abadis (informal settlements),
 60% by informal subdivision of agricultural land (a major urban development impact
discussed throughout this report, and a key issue to be addressed in future planning)
 15% through increasing density of existing inner city land parcels
16.
The study further points out that:
 No mechanisms are in place to ensure that targeted low-income housing schemes
actually benefit the target group
 Limited formal housing finance available since construction is incremental over time.
Some NGO activity but far short of need
 80% are owners, 18% renters and 2% shared accommodation. The high level of
ownership is a solid start for wealth accumulation and investment opportunities if the
land registration and supporting documentation systems are functioning efficiently.
According to the Sialkot TMA, the vast major of properties are officially titled with
records currently being digitized. These will be tied into the Urban Units extensive
GIS database.
17.
Since housing - residential land use - typically accounts for 60-70% of the urban footprint
and generates a proportionate amount of the need for infrastructure investment, housing-related
strategies become a major consideration when addressing the future development of an urban
area. Issues such as urban sprawl, appropriately serviceable land, proximity to social and
economic amenities, affordability and environmental impacts are all key considerations.
18.
Housing in Sialkot is virtually 100% low-rise of no more than 2 floors, in-line with cultural
preferences and traditional norms. This results in an extensive urban sprawl. Other higher
density housing typologies will have to start being introduced if servicing and land acquisition are
to remain sustainable.
Formal Private-Sector Housing
19.
Data obtained from TMA Sialkot shows that 56 private housing schemes are currently
under development in the City. The aggregate area under these schemes is 3,575 kanals, or
about 447 acres, while the average area per scheme is about 64 kanals, or 8 acres. Most of
these Schemes are located towards the west of the existing city, along roads heading southwest,
west and northwest of the city. They extend as far as the airport area. Assuming a gross density
of 50 persons per acre, these schemes would only provide housing for 22,350 persons, about
half of one year‘s growth of the city. Since the full development and occupation of these schemes
will take 5-10 years, it may be judged that they will provide housing for only about 5-10% of the
growth that is occurring. The private individuals who will occupy it build most housing in the city
individually and incrementally.
20.
Among the 56 private schemes, the developers sought approval for only 26 schemes
from TMA. The remaining 30 schemes sought approval only from the Revenue Department.
Among the 26 schemes submitted to TMA, the Scrutiny Committee has approved 11. However,
these formal housing schemes account for a minority of housing development. Over 60% is
informally developed (without any form of planning in “katchi abadis”), converted agricultural land
and informal inner-city densification. In addition to ensuring that private housing estates are
developed within the framework of an approved City Development Strategy and subsequent
detailed land use and infrastructure plans, it is critical that the dynamics of the informal sector be
fully acknowledged and brought into the planning process.
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Chapter III
21.
From a planning perspective, none of these private schemes fall within approved plans
for the development of Sialkot. They are therefore contributing to the ad hoc development of the
city with the accompanying problems of District land management and municipal service
provisions. Issues of a lack of transparency and objective approval process are discussed in
Chapter VI.
Housing Need Projection
22.
A very simplistic housing demand projection based on population growth as presented in
Table III-5 is:
Table III-5: Housing Demand Based On Population Projections
Urban Population Growth: 2015 - 2035
Number of new households (6.2 per/HH)
516,927
83,375 additional/new housing unit by 2035
23.
Land required, assuming individual homes on a modest 400 meter square plot (0.1 ac)
and allowing 30% for infrastructure results in 7 units/acre. The total new serviced land required
till 2035 would be 1,340 (5,340) acres. Consequently, the land and infrastructure cost
implications are significant as there is a 290% increase from what is currently officially
designated residential (1,846 ac. Table III-15). The implications of other housing typologies and
densities are further discussed in the subsequent Development Strategy.
Urban Situation
I.
Urban Centers of Sialkot District
24.
There are 9 other urban centers in Sialkot District other than Sialkot itself34 (Figure III-6).
These account for approximately 30% of the District’s population and are economically closely
integrated. Sialkot’s industrial practice of contracting significant amounts of work to those
residing in surrounding settlements establishes strong local, economic and social linkages.
Various aspects of agricultural production, inputs, processing and shipping also link these
centers. Figure 0I n Chapter V+ conceptually illustrates some of these linkages.
J.
Sialkot City Geography
25.
Sialkot is located close to the Indian border some 125 km north of Lahore. Lying between
32 30’ north latitude and 74 30’ east longitude at 256 meters above sea level. Sialkot is bounded
on the north by Jammu, on the northwest by Gujrat, on the west by Gujranwala and on the south
by Narowal. The city is located in a fertile agricultural basin with a few low hills, including the hilly
area called the Fort, now occupied by the TMA administration. It sits over abundant shallow and
deep groundwater aquifers that are used by both the city water supply system and inhabitants
with wells for their water supplies. The Chenab River flows to the northwest of Sialkot, and the
Marala-Ravi Link Canals flow to the west. Three seasonal streams traverse Sialkot, comprising
Aik Nala, to the south of the city, Bhed Nala, between the Cantonment and the rest of the city,
and Pahlu Nala, north of the Cantonment. Figure III-1.
34
Source: Population Census Report of District Sialkot and Punjab Development Statistics, 2014
Page 69
Chapter III
Figure III-6: Urban Centers in Sialkot District
K.
Urbanization Process and Evolution
26.
There are various sources tracing the origins of the city of Sialkot but the authenticity of
many of these sources varies. Excavations throughout the area have revealed large amounts of
Greek coins, ancient Zoroastrian temples and several Buddhist stupas. It is generally agreed that
the history of Sialkot goes back 5,000 years and may be divided into eight eras:
26.1. Vedic Era: Raja Sul ruled Sialkot 5,000 years ago and was the founder of
Sialkot then named Sakala. It was part of the Sala dynasty.
26.2. Persian Greek Era: the eastern most outpost of Alexander the Great Hellenic
Empire. During 160 and 135 BC Sialkot acted as one of the capitals of Indo-Greek
Empire.
26.3. Scythian Hun Era: when Raja Sáliváhan who belonged to a caste named ‘Sia’
ruled the city. A jut clan of Scythian origins built the fort and gave the city its name of
Sialkot. During the last quarter of the 5th century, the Huns sacked the city. After which it
was ruled by a Jammu ruler named Raja Bahram Deo.
26.4. Muslim Mughal Era: Shahab-ud-Din Muhammad Ghauri conquered Punjab in
1011 and dissolved the city as a part of the Muslim Sultanate of Delhi. The city then
came under the rule of the Mughal Empire of India and was considered to be part of the
Lahore Province.
26.5. Afghan Pashtuns Era: after the end of the Mughal reign it came under the rule
of Pashtun families from Khandar and formed part of the Afghan empire.
26.6. Sikh British Era: Sikhs gained control of this city from the Pashtuns. They ruled
for 40 years until the Second Anglo-Sikh War in 1849 when the British captured Sialkot.
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Chapter III
26.7. Pakistan Movement Era: Allama Iqbal (national poet of Pakistan, born in
Sialkot) spearheaded the movement for an independent country. In May 1944 the Sialkot
Convention became the historic event that catapulted the All India Muslim League into
prominence in the British-Indian Punjab.
26.8. Modern Era: Pakistan was founded during 1947 after which Sialkot has gradually
become a major industrial city of Pakistan. After partition in 1947 the city began to
expand mainly towards the north and the northwest. By the 1970s, the city had
significantly densified and expanded up to and north of Bhed Nala, around Cantonment.
Figure III-7 illustrates the expansion of Sialkot’s urban footprint since 1797. More
recently, the city has grown in a westward direction along the major inter-city roads
radiating out of Sialkot and along Defense Road.
Figure III-7: The Physical Growth of Sialkot
Time
Period Urbanized
Land
(Years)
(Acres)
1797-1847
713
1847-1947
1492
1947-1972
714
1972-2015
4670
Source: Sialkot Urban Study, 2011, GHK
Average Urbanized
Land/Year (Acres)
14.26
14.92
28.56
109
Average Urbanized
Land/Year (%age)
3.60%
1.35%
1.10%
3.29%
27.
It is evident from Figure III-8 and field observations that growth occurs through two
processes: expansion and densification.
28.
The key to sustainable urban growth is by achieving the correct balance of expansion
and densification to make most efficient use of land and infrastructure investments. And by
maintaining convenient access to social and economic amenities, ensuring viable establishment
and maintenance of public transport, private commercial investments, and major public sector
social facility investments.
29.
In the case of Sialkot, it appears this balance has not been achieved. Although there is a
higher population density in the core, low-rise building density remains common throughout. This
raises questions about the most economical use of land and core infrastructure investments
Page 71
Chapter III
(Figure III-9 and Figure III-10). Average density within the Urban Area is calculated at 113
persons per acre (Figure III-11).
30.
Sialkot’s growth trend is clearly focused on expansion. Figure III-12 gives some idea of
how far the built-up area extends beyond the official boundaries. Virtually all of this expansion is
unplanned with the exception of a number of private-sector housing estates, which are internally
planned, but not located within a comprehensively planned urban context.
31.
The Sialkot Urban Planning Study 201035 suggests the current trend could see Sialkot
triple in physical area in the next 20-30 years if left un-checked. This issue must be a focus of the
Strategy Development planning, as it is not financially or environmentally sustainable.
Figure III-8: Sialkot’s Current Growth Trends
Source: Sialkot Urban Study, 2011, GHK with revisions
35
GHK
Page 72
Chapter III
Figure III-9: Low-Rise, Low-Density Sialkot
Photo: RS
Figure III-10: Low-Rise Urban Core
Source: Google
Page 73
Chapter III
Figure III-11: Sialkot Urban Density
Page 74
Chapter III
Figure III-12: Sialkot Built-up Area
Page 75
L.
Chapter III
Existing Land Uses and Settlement Patterns
32.
The Land Use profile of a city portrays the relationship of human activities and spatial
uses. In Sialkot, the land use pattern is controlled by economic forces, mobility of residents and
changes/adjustments that occur in the dynamic urban scene.
33.
Like all urban areas, the land use pattern in Sialkot is also a reflection of two elements:
i)
the nature of land uses and their location and
ii)
the level of spatial accumulation, which indicates their intensity and concentration.
Central areas have a high level of spatial accumulation and corresponding
intensity of land uses, while peripheral areas have lower levels of accumulation.
34.
Land uses in Sialkot City are mixed, and in many cases incompatible due to a lack of
development control. Sialkot would benefit from stronger land use controls to prevent potentially
harmful activities from being located near residential areas and vice versa. Of particular concern
is the proliferation - 400 to 500 - of tanneries located within the more central urban area. At the
same time, Sialkot has very few green areas or parks, with the most prominent being Gulshan-eIqbal Park off Narowal Road, a park in the Cantonment and the Stadium. There is need for more
open spaces, more defined spaces for industrial activities and a better-defined road network in
both the core city and contiguous areas36.
35.
Eleven arterial roads radiate out from the Sialkot City center. These link the city to
surrounding agricultural areas, other cities and Sialkot International Airport which lies about 20
km to the west of the City Centre. The airport road also connects to the Dry Port and proposed
new Tanneries’ Industrial Estate. This may become Sialkot’s major growth direction.
36.
Industries and housing estates have developed in a ribbon pattern along all of the north,
west and south radial roads. Agricultural communities close to the roads and to industries are
fast becoming urbanized (Figure III-13).
37.
Industrial land uses within the central city are scattered throughout the area on
Wazirabad Road and in the small Industries estates along Haji Pura, Daska, Emanabad,
Narowal, Defense, Kullowal roads and north of the Railway Station.
38.
Commercial land uses, once concentrated in the area around the Fort, are now found in
outlying areas such as Defense Road, Paris Road, Saddar in Cantonment and along other major
roads.
39.
Agricultural conversion is not following a strategy or plan, but is driven ad hoc by
individual developers raising a number of good-practice concerns and questions. For instance,
how to protect agriculture? How to viably service these developments? How to viably provide
convenient access to social and economic amenities? How to support more climate-change
resilient public transport? How to protect the overall environment in the absence of all the above?
36
Source: Stakeholders Consultations and Discussions with TMA officials
Page 76
Chapter III
Figure III-13: Agricultural Land Conversion
Source: Google
Page 77
Chapter III
Figure III-14: Sialkot Land Use
Page 78
Chapter III
Table III-15 presents the areas and proportions of various land uses in Sialkot:
Sr. No.
Table III-15: Land Use Distribution in Sialkot
Area
Land use
Acre
Sq. Km.
1
Residential
1836.81
2
Commercial
363.44
3
Agricultural
169.32
4
Public Buildings
151.96
5
Religious
38.10
6
Education
87.48
7
Health
52.05
8
Industry
322.36
9
Graveyard
91.02
10
Parks/Open Spaces
256.13
11
Vacant Area
284.52
12
Unidentified Parcels
338.00
Total Area
3991.19
Source: Calculated from Urban Unit map data
M.
7.44
1.47
0.69
0.62
0.15
0.35
0.21
1.31
0.37
1.04
1.15
1.37
16.16
%age of
Total
Area
46.0%
9.1%
4.2%
3.8%
1.0%
2.2%
1.3%
8.1%
2.3%
6.4%
7.1%
8.5%
100%
Land Use Issues and Analysis
40.
As Figure III-14 clearly shows, the land use pattern in Sialkot is undefined and
haphazard. Some of the main causes are rapid population increase, unregulated spatial growth,
and lack of enforcement of whatever meager regulatory measures are available. Mixture of
incompatible land uses is a common phenomenon adversely affecting the quality of life.
Enforcement of zoning and land use regulations is necessary to promote public safety, health,
convenience, and general welfare of the community.
41.
Zoning and Land use Regulations are the legal framework through which the TMA
applies planning control 37 . These regulate the overall spatial structure of a settlement. The
guidelines will help the TMAs to formulate their own specific regulations, as these are presented
in a readily adaptable format to the varied requirements of various TMAs. The proposed
regulations and guidelines allow flexibility for easy incorporation of changes over time.
42.
Uncontrolled urban sprawl is not only consuming prime agricultural land; but also
resulting in increased cost of infrastructure, longer travel distances/time, increased fuel cost,
higher traffic volumes and pollution38. There is no planned industrial estate except one, which
was established in the 1960s. As a result, industrialists have no choice but to establish industries
along inter-city arterial roads resulting in leapfrog development negating the desired concept of
compact, smart city.
43.
In Sialkot, non-conforming and incompatible uses such as tanneries exist side by side
with residential. This is highly undesirable. The safety and quality of life is at stake. Stringent
steps are urgently needed to adopt a clear-cut policy based on identification and gradual
elimination of non-conforming uses located in various areas of the city.
44.
There is no public consultation about planning decisions. Without such consultation, it will
be difficult except in the most extreme circumstances to frame planning decisions that will have
the desired impact on development. Unless public consensus underlies planning decisions,
powerful investors will seek, and receive, special treatment, because decisions made based
37
38
Consultations with TMA officials
Inferences drawn by Consultants from stakeholder’s consultations
Page 79
Chapter III
upon technocratic considerations will always be weaker than decisions based upon popular
consensus of what constitutes the public good.
45.
The capacity of TMA Sialkot to prepare plans and implement planning decisions is
extremely limited. With a very limited staff, the TO (P&C) processes about 1,000 building permits
a year39. It has no capacity to prepare plans, and only very limited capacity to process permits.
Particularly where these are for larger projects, or for more complex situations, the office is
severely short-staffed.
46.
In the absence of institutional capacity, political will, and a clear and adopted City
Development Strategy, Sialkot will continue to struggle to accommodate the competing and often
conflicting agendas (Figure III-16) in a sustainable, and resilient manner. Resilient in terms of
addressing both environmental and economic shocks.
47.
At present, the strongest agenda appears to be that of the private sector which, because
of their economic prominence and therefore political influence, tend to determine where things
will occur. Naturally those decisions are made in the best interest of their businesses. However,
they may not be in the best environmental or overall socio-economic interest of the city.
Institutional capacity and recognition must achieve the level at which ad hoc political decisions
can no longer arbitrarily over ride approved polices, plans and technical recommendations.
Figure III-16: Competing Urban Development Agendas
39
Discussions with Administrator and Planning Officer of TMA.
Page 80
N.
Chapter III
What Needs to be Done?
48.
Zoning facilitates effective and meaningful control of land uses. Some zones may further
be sub-divided into different categories. For example, residential may be sub-divided into high,
medium and low-density zones. Similarly, industrial zones may be divided into light-medium and
heavy sub-categories.
49.
Agricultural lands need to be protected from ad hoc conversion in such a way that the
core industry retains or gains in strength in a healthy environment. Urbanization will require some
conversion, but this must be systematically done with least productive lands identified first and
integrated into an overall urban development strategy.
50.
In the existing built-up areas, there should be a gradual shifting of non-conforming uses
from a particular zone so as to cause minimum hardship to the owners of nearby conforming
uses. Potentially polluting industries are priorities for shifting.
51.
The land use zones so established are likely to change overtime because of
developmental pressures, and participatory planning processes at local, TMA and District levels.
Changes are an integral part of a Development Strategy with the key being a well-managed and
integrated transition that respects a full spectrum of needs.
52.
When the land use zones have been established, all land within the TMA will be brought
under development control. For each zone, land uses permitted and those not permitted (under
Punjab Land Use Rules 2014) will be applied. This process only functions with strong institutional
capacity, something that is currently missing in Sialkot.
53.
Planning needs to be participatory, by involving the community in prioritizing the projects
and coordinating developmental activities. It is also necessary to ensure participation of the
marginalized groups i.e. women, minorities, and laborers/peasants.
54.
Funding is only one aspect of project identification and implementation. Stakeholders’
cooperation, coordination and management are equally important. Community and other
stakeholders have fresh perspectives and may see problems in new ways. Their involvement
helps to deliver programs that are more responsive to local needs. Such programs and projects
have better acceptability and much greater chances of sustainability.
O.
Settlement Patterns
55.
Settlement in Sialkot started with the 5,000-year-old fort on the central hill and has
proceeded to expand in a more or less organic, low-rise manner since. The only formally planned
part of Sialkot is the Cantonment Area. The traditional rural settlement pattern of tightly
developed compact villages, chaks, have had a significant influence on Sialkot’s urban form and
settlement patterns as they have become absorbed into the main urban area.
56.
The dominant and most problematic current settlement pattern is an unplanned and
uncontrolled sprawl. This takes 3 main forms:
1. individual industrial developments, primarily along major traffic arteries;
2. small-scale commercial or individual houses developed in an ad hoc manner, and
3. the larger-scale “housing societies” where significant sized pieces of land are converted
from agriculture to multi-unit private residential development. These again occur without
planning approval40.
40
Discussions with TMA officials
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P.
Chapter III
Existing Development Plans
57.
The growth of Sialkot since 1972 has been guided by the following planning
interventions:
58.
An Outline Development Plan and Zoning Plan41, covering the period 1972-1987; It is
a rigid plan, prepared without stakeholders consultations, with high emphasis on physical
planning but ignoring strategic aspects such as economy, regional linkages, and socio-cultural
aspects. Most of its recommendations pertaining physical aspects could also not be implemented
because of reasons stated earlier.
59.
The Master Plan of 199642 was prepared under World Bank Funded ‘Feasibility Studies
and Urban Master Planning of Ten Cities of Punjab’ The Plan period was for 20 years (19942019). It aimed to maintain its cultural and industrial nature and its westward and southward
growth. It recommended the placement of functional uses on a natural growth axis to the south
and west following a policy of concentrated growth rather than a possibly costlier policy of
dispersed growth. A series of concentric roads were proposed to encourage contiguous,
economic and compact city development. A new CBD was proposed between Lahore Road and
Eminabad Road. The proposed sports complex was not established, nor was the proposed
industrial estates along Lahore Road and Wazirabad Road. The reasons for non-adoption of the
Master Plan of 1996 are not fully known, but it was never notified, was not extensively discussed
in the public arena, nor was it followed by the more detailed studies necessary to move from a
strategic plan to a plan upon which planning decisions could be based43.
60.
An examination of actual development trends versus plan proposals reveals some of the
core deficiencies of the process followed: the various plan prescriptions (a new CBD, industrial
zones, a sports complex and open spaces) were so far-reaching, and so ambitious, that they
required by their very nature extensive public debate and discussion, which did not occur. Even if
this debate had occurred, it is possible that they may have been beyond the financial resources
of the city to implement them.
61.
The Strategic Plan for Sialkot prepared under PICIIP 2010 followed the prevailing
trends, and recommended linear development, which if implemented would have caused further
sprawl. In-fill development, redevelopment and vertical densification were not considered.
62.
Based on discussions with the Administrator, TMA officials and stakeholder’s
consultations, it was revealed that past efforts at planning in Sialkot have failed. The present
capacity for planning and development control is limited and ineffective. The main reasons for
these failures and shortfalls is the lack of public involvement in planning, unrealistic planning,
lack of a governance system that engages the skills and knowledge of the private sector, and
lack of implementation mechanisms consistent with the capacity of planning agencies. Many of
the building blocks for an effective planning process are in place but they lack a framework within
which they can be effectively integrated into a planning system.
Q.
Infrastructure
63.
The overall PICIIP is assessing urban infrastructure in Technical, Institutional and
Resilience perspectives. The 3 are fully integrated but the areas of focus differ. This Rapid Urban
Assessment focuses less on the detailed technical aspects and more on their overall conditions,
levels of service, resilience and climate change response, as they impact overall urban growth
and development patterns. Related institutional aspects are also touched upon. This sets the
41
Department of Housing & Physical Planning, Government of Punjab, Lahore.
Feasibility Studies and Urban Master Planning of Intermediate Towns in Punjab, Department of Housing &
Physical Planning/World Bank
43
Consultant discussions with TMA Sialkot officials and field observations
42
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Chapter III
framework for more technical Pre-Feasibility work by helping to ensure infrastructure investment
proposals are in full support of the city’s long-term visions and development directions. The
PICIIP is focusing on investments in priority urban water supply, sanitation and solid waste
management. These systems are only effective, efficient and sustainable if they consider the
socio-economic, cultural, environmental and overall urban development contexts in which they
operate. Infrastructure highlights with particular impact on a City Development Strategy are
presented below. For details refer to the accompanying Pre-Feasibility Report.
Transportation/Access
64.
Efficient mobility of people and goods is fundamental to a healthy economy. Although
currently off the main road network, at the macro level Sialkot is well served by transportation
infrastructure: acceptable road links that are being improved, a broad gauge rail connection and
Pakistan’s only privately developed, owned and managed international airport serving
approximately 100 flights per month by some of the world’s leading airlines. Plans have recently
been announced to construct a new Sialkot-Lahore Expressway, which will shorten travel times.
A proposed new Industrial City between Sialkot and Islamabad would also enhance Sialkot’s
transport connections and economic opportunities, as may proximity to the new China-Pakistan
Economic Corridor.
65.
At the local, inner-urban scale, transport is much less efficient. A pattern of radial roads
converging on the core leads to congestion. The unmanaged multi-modal/user nature of the
streets leads to further congestion (Figure III-17). Much of this congestion could be alleviated
through a comprehensive and well thought-out traffic management program including modal
separation. A series of concentric ring roads has been suggested44 as one investment to ease
through traffic congestion. However, before heavy investment is made into new physical
infrastructure, all efforts should first be made to maximize the use and efficiency of the existing
infrastructure investments through improved management.
66.
Much of Sialkot’s (and Pakistan’s) daily economic activity is pedestrian-based as
residents conduct their business with vendors and small shop owners. Much of this business
currently takes place along narrow inner-city streets competing with the full range of conflicting
transport activities. A careful look needs to be taken at establishing a road hierarchy and whether
or not all modes of traffic need to be allowed on all streets without control. Segregated uses in a
managed street hierarchy may limit some to pedestrians only during business hours, motorized
delivery and waste management during non-business hours, etc. The City Development Strategy
will further explore these low-cost options that can also greatly improve the quality of the urban
environment and the quality of residents’ experience within it.
67.
Major roads in and out of Sialkot would benefit from construction of parallel service roads
where they do not already exist. Without regulated service roads, the commercial sprawl that
exists along these roads impedes traffic flow and safety with ad hoc parking, traffic movements,
and commercial encroachments.
Public Transport
68.
Sialkot’s internal public transit consists almost entirely of informally operated small
buses/vans and auto rickshaws which together account for 20% of inner city traffic.45 Only two
formal bus routes operate within the city. In addition, several of the larger industries operate their
own employee transport services to facilitate easy access to work and home. As noted above,
the absence of any significant traffic management means that transit operations are not efficient
and both constrain and are constrained by the multiple road uses and resulting congestion. For
inter-city transport there are 3 bus terminals, including the Daewoo Terminal handling luxury bus
connections to Lahore, Islamabad and other urban centers.
44
45
Sialkot Strategic Planning Framework, 2010, GHK
Sialkot Strategic Planning Framework, GHK, 2010
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Chapter III
Figure III-17: Unmanaged Road Congestion
Drainage
69. Drainage, or lack thereof, is one of the major determinants of road network efficiency and
overall environmental health of a city. Flooding is one of Sialkot’s major climate-related
hazards, and in recent years has increased in frequency and severity. Flooding is
exacerbated primarily by land management issues in the much wider up-stream catchment
areas, but there are still numerous actions the city can take, and is beginning to take at the
local level to mitigate the impacts. Flooding is further discussed in Sub Section Initial
Climate-Change Resilience Assessment.
1.
Drainage infrastructure: the network of formal storm water drains along roadways is
incomplete. Further construction is required in a well-engineered and comprehensive
manner with a well-defined hierarchy of channels.
2.
Public awareness, attitude and actions: the majority of the existing drains do not
function due to filling-in by adjacent shop owners and/or use of drains for dumping solid
waste.
3.
Controlled run-off: the 3 rivers through Sialkot, in addition to being choked in places by
solid waste dumped directly in, or flooding from other channels, are also subject to
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Chapter III
clogging by vegetation due to high levels of nitrates from pollution run-off46. Figure III-18
illustrates one such example of a non-function drainage course. In preparation for the 2015
monsoon season, the Sialkot TMA took advance mitigation actions, cleared a number of
major drainage course choke points and as a result was rewarded with no flooding.
Figure III-18: Poor Drainage Course Management
Source: Google
Water Supply47
70.
Sialkot’s water supply is good by Pakistan standards. There are about 43,469
connections in the town (39,658 domestic), which serve about 87% of the population within the
old Municipal Corporation limits but only about 35% of the total urban population, excluding the
Cantonment. However, according to the Administrator TMA Sialkot, the water supply coverage
recently has increased close to 50%. There are approximately 5,500 connections in the
Cantonment, covering an estimated 38,500 people or about 47.5% of the civilian population of
the Cantonment.
71.
The existing distribution system consists of one large interconnected system and four
small discreet systems on the western side of the city. The estimated total length of main is about
198 km. The water supply distribution network is very old with rusted pipes, which result in mixing
of sewage in water supply lines, and significant amount of drinking water is wasted due to
leakages.
72.
About 84 tube wells in the urban area and 15 in the Cantonment area are in operational
condition but n e e d rehabilitation. The total number of tube wells to be rehabilitated is 99. Some
existing tube wells need to be replaced because either (a) their depth is less than 150 meters
and so may be subject to contamination or (b) the tube well is no longer performing efficiently
because of clogging of the screens. The number of tube wells to be replaced is estimated at 15.
Most of Sialkot‘s growth is occurring in the areas outside the old municipal limit and the lack of
water supply systems in these areas means that few households have access to piped water
supply. New water sources, storage and distribution mains are required to serve these areas.
Additional tube wells have been suggested, but in consideration of climate change, dropping
aquifer levels and increasing population, other means likely need to be considered. The starting
point must be maximizing the efficiency of the existing systems: upgrading where necessary,
46
47
Discussions with Administrator TMA, Sialkot
Urban Planning in Sialkot, GHK, 2011
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Chapter III
reducing leakage, eliminating pollution of existing tube wells, and resident awareness programs.
At the same time, increased emphasis should be placed on technologies such as rainwater
harvesting and storage, re-cycling, and conservation. Expanding or even continued reliance on
tube wells cannot be assumed as the sole solution. Figure III-26 indicates how susceptible tube
wells can be to increasing flood events.
Sewerage/Sanitation
73.
Sialkot is served partly by sewers and partly by open and covered drains. The sewers
are in poor condition and blocked in many places. The main system served the center of the city
and the area to the west, discharging up to a 54” diameter trunk sewer along Roras Road, which
conveyed wastewater to a main pumping station at Mianapura. This was intended to lift
wastewater into the Bhaid Nullah.
74.
At present the TMA has no equipment for sewer maintenance. This deficiency needs to
be rectified. A detailed study is required to establish exact needs in relation to management
systems. The Model Town Wastewater Pumping Station needs to be rehabilitated. This pumping
station lifts wastewater from the sewers serving Model Town and discharges it into the adjacent
Nullah. It was originally designed as a wet well – the dry well pumping station was meant to
precede a screening chamber. The dry well has been abandoned, although the structure seems
to be in good condition. Wastewater is lifted by one centrifugal pump located at ground level so
that it operates with a high suction lift. The result is that the incoming sewer is normally
surcharged. The main pumping station also needs to be rehabilitated. This pumping station was
initially designed to lift sewage from the existing sewer into the Bhaid Nullah. It has been nonoperational for some time with wastewater allowed to back up in sewers and discharge to the
Bhaid Nullah through an overflow channel.
Solid Waste Management48
75.
Sialkot’s solid waste management (SWM) system is in a state of disarray. The city
currently generates about 350 tons of municipal solid waste daily, or about 125,000 tons per
year. Of the 125,000 tons per year of municipal solid waste generated, only 25 percent enters
the municipal waste system, leaving 75 percent of the population without waste collection.
Practically all-municipal waste is burned, dumped or buried illicitly on vacant land throughout the
city, causing significant environmental damage and posing a health hazard.
76.
Population growth and increase in its economic activity means that Sialkot’s daily waste
generation is destined to accelerate to about 195,000 tons per year by 2020, and then to about
300,000 tons per year by 2030. Furthermore, poor solid waste management impedes road
efficiency, blocks drainage leading to flooding, and generally contributes to a degraded urban
environment. SWM is one urban service successfully privatized in many urban centers with a
managed hierarchy of collection steps. This approach can be used to effectively mobilize
communities, raise awareness of recycling potentials and add employment.
77.
Numerous examples of individual recycling efforts are noted throughout the city involving
plastic bottles, cardboard and metal. Private entrepreneurs, both informal and semi-formal are
undertaking this, so there is obviously a market and money to be made. Industry and individuals
are separating and selling recyclable materials. The Administrator notes there is no official
recycling facility in Sialkot to take direct advantage of this collection, however, note was taken of
at least 8 smaller facilities processing plastic bottles and generating employment. 49 The
municipality can further these initiatives by further promoting at-source separation making it
easier for the informal collectors. Other community-based public awareness initiatives could also
help reduce the SWM demands on landfill and the environmental degradation that comes with it.
48
49
Urban Planning in Sialkot, GHK, 2011, PICIIP PFS September 2015
PICIIP PFS Report, September 2015
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Chapter III
Power
78.
A close look has not been taken at power supply and demand other than to note that an
industrial city needs adequate, reliable and uninterrupted 24/7-power supply. Sialkot does not
currently have this. Interruptions are frequent forcing industries; other businesses and many
residents who can afford it to rely on back-up diesel generators. These are costly,
environmentally degrading and generally a poor second option. Power generation and primary
distribution is generally beyond a single urban center’s capacity to manage and relies on
provincial and national government support. A city with reliable power enjoys an immediate
competitive advantage. Solar options are increasing in popularity and should be promoted for
institutional and residential use, but the technology has not reached the stage whereby it can be
the sole source for heavier industry.
Green Building
79.
At the smaller scale, at least one notable example of a Sialkot industry, Forward Sports
(Pvt.) Ltd. is investing heavily in new “green building” development. As a result of owner
commitment and client request, new facilities are being constructed to global best practice
standards to save energy, maximize re-cycling of its own waste products, improve its employees
work environment, and set an example to for the city. Government should be taking the lead to
demonstrate similar initiatives to the public in its own facilities.
R.
Review of Institutional Arrangements
80.
Under the devolved system, the local governments in Pakistan have three tiers i.e.
District, Tehsil and Union. Each of these has its own functions, as mandated by the Local
Government Ordinance, 2001. The District Government looks after more than 11 sectors, for
each of which there is an Executive District Officer. The Tehsils mostly look after the municipal
services including water supply, sewerage, drainage, solid waste management and street
lighting, etc., while the union councils are mainly concerned with operation and maintenance of
local level municipal services. Figure III-19 and Figure III-20 illustrate how these administrative
tiers apply to Sialkot.
81.
Under the Punjab Local Government Ordinance, 2001 50 , a number of provincial and
(formally defunct, now restored) divisional departments were decentralized to the District
Government. The District Government manages and controls these offices. District Nazim heads
the District Government and is assisted by the District Coordination Officer. The District Council
approves long term and short term development plans, annual and supplementary budgetary
proposals of the District Government and, where required, intra-district fiscal transfers51.
82.
Under the Local Government Ordinance 2001, many of the provincial functions have
been devolved to local level. These include spatial planning, zoning/land use control and
development control regulations, which have been entrusted to Tehsil Municipal Administrations
(TMAs). However, a crucial deficiency is the lack of capacity of TMAs to carry out these
functions. To make the TMAs responsive to their functions, it is important to have a closer look at
their administrative set-up. Spatial Planning functions of the Tehsil Municipal Administration are
summarized in below:



Preparation of Tehsil spatial plans, land use, zoning;
Exercise control over land use, land-subdivision, land development and zoning
Enforcement of municipal laws/rules/bye-laws;
50
The pre-2001 system of Local Governments is likely to be restored to restored soon, in which urban areas will
be looked after by urban councils such as Municipal corporation/Municipal Committee/Town Committee etc.
while the rural areas will be the responsibility of District Council.
51
th
Punjab Local Government Ordinance, 2001 (amended up to 13 April 2002), Section 39(c).
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
Chapter III
Compilation of information provided by union and village councils of prioritized
projects in the tehsils.
83.
The role of District governments in the approval process for spatial, land use and zoning
plans needs to be highlighted. Under the devolved system, tehsil is of course, the focus of
planning attention, and major spatial planning inputs will go into the tehsil plan. However, a tehsil
plan cannot be a ‘stand-alone’ document, and it is highly desirable that the TMAs should submit
their respective tehsil plans to the District Government, so as to address the inter-tehsil and
cross-territorial issues. The amalgamation of tehsil plans should take form of a loose District
Structure Plan. These District Structure Plans will form the basic building blocks for formulation of
a provincial spatial strategy. The District Plan based on tehsil plans will also provide an efficient
district-level transportation network and a physical framework for the settlements lying within the
district. The tehsil plan, besides providing upward linkages with the district plan, will also provide
framework for the preparation of local plans for union councils.
See detailed discussion of institutional and governance issues under Chapter VI and Chapter
VIII of this Report.
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Chapter III
Figure III-19: Sialkot Administrative Boundaries
Page 89
Chapter III
Figure III-20: Sialkot UC Boundaries
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Chapter III
S.
Organizational Structure of Tehsil Municipal Administration
84.
Figure III-21 illustrates the overall structure of the TMA.
85.
The elected Tehsil Nazim who is responsible to ensure that the business of the TMA is
carried out in accordance with the provisions of the PLGO 2001 heads the TMA. The Nazim’s
duties include:
o
o
o
o
o
o
o
o
provision of vision and direction for the efficient functioning of the municipal
administration;
formulation of strategies for development of municipal infrastructure and improvement of
delivery of the municipal services of the tehsil;
overseeing formulation and implementation of long term and annual municipal
development programs;
overseeing the delivery of services by the TMA and the implementation of the laws
governing the municipal services;
presenting the budget proposal to the Tehsil Council for approval;
supervising the utilization of the funds allocated to the TMA and ensuring their proper
accounting;
establishing and supervising the working of the Internal Audit Office;
representing the TMA on public and ceremonial occasions (Sub Section 48).
86.
The Tehsil Municipal Officer (TMO) is the focal person in the TMA. He assists the
Tehsil Nazim; acts as the coordinating and administrative officer in-charge of the offices and
units of the TMA; and is the Principal Accounting Officer of the TMA.
87.
The four tehsil offices of the TMA are:
(i)
(ii)
(iii)
(iv)
Planning and Co-ordination;
Municipal Regulations;
Infrastructure and Services; and
Finance.
A Tehsil Officer heads each Tehsil office. In order to provide integrated services in the urban
areas of the tehsil where formerly an urban local council (ULC) functioned, a separate unit has
been set up. Each such unit is headed by a Chief Officer and referred to as CO Unit, which
works under the TMO.
88.
The TMA Rules of Business provide for an Executive Committee headed by the TMO
and comprising of all the four TOs and the COs. This Executive Committee deals with all matters
concerning two or more offices, administration, and financial or public policy; facilitates coordination among the offices of the TMA; provides avenues for consideration of matters of
common interest and tender advice for cases that are referred to the Tehsil Council or the Tehsil
Nazim.
89.
Tehsil Officer, Planning and Co-ordination [TO (P&C)]: is responsible for spatial
planning, zoning, land-use and building control; development and planning including coordination of projects of Union Administrations and Village/Neighborhood Councils in tehsil and
with other local governments. He has the lead role in the planning and development activities in
the TMA.
90.
The Tehsil Officer, Municipal Regulations [TO(R)]: is responsible for licensing,
regulation and enforcement of municipal laws; and in management of municipal properties,
facilities and enterprises.
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Chapter III
The Tehsil Officer, Infrastructure and Services [TO (I&S)]: is responsible for water, sewerage,
drainage, solid waste, municipal roads, streets, street lighting, fire-fighting and parks in the tehsil.
In the urban areas these services are delivered through the CO Units, therefore, it is envisaged
that the main responsibility of this office will be with regard to the development of new capital
works jointly with the CO Unit and in providing technical support to the CO Unit who will operate
and maintain all infrastructure services in their areas. In addition, this office provides all
engineering related support to other offices of the TMA (and where requested to the Union
Administration).
91.
The Tehsil Officer Finance [TO (F)]: is responsible for budget, revenues and accounts,
including survey for surveillance and revenue potential.
92. In general, urban institutional capacity in Sialkot is weak and the major cause of ad hoc
urban development, infrastructure and service delivery challenges, and the main constraint to
long-term resilience and adaptation to climate change. A further assessment of institutional
constraints on city competitiveness is presented in Sub Section City Competitiveness
Enablers.
T.
Regulations
Private Housing Schemes, 2014
93.
These rules are for private housing schemes including farm housing and landsubdivision; these provide information to sponsors, such as procedure for planning permission,
documentation required, planning standards to be followed, scheme layout, fees & fines etc.
Lahore Development Authority Land Use Rules 2014
94.
Although these rules are for Lahore Development Authority, they are used by other
planning agencies in other parts of Punjab if they need to. These rules deal with land use
classification (residential, commercial, industrial; institutional, mixed use; peri-urban, special
development zone, agricultural, and notified area). The rules also specify uses permitted,
permissible and prohibited uses within each land use category. The rules also deal with reclassification of land uses and re-development.
Punjab Local Government (Commercialization) Rules, 2004
95.
Although these are old rules promulgated in 2004, amendments have been added, but
the gist remains the same. Commercialization, as defined under these rules, means change in
the use of land or building, from residential to commercial, against the uses prescribed in the
approved plan. Under these Rules, the land use shall be regulated in accordance with the land
use plan prepared under the approved plan notified by the Tehsil Municipal Administration and
vetting by Housing, Urban Development and Public Health Engineering Department, Government
of the Punjab. The commercialization committee formulated in a city will decide about roads to be
commercialized or not, after analysis of various aspects such as prevailing growth pattern of the
area, anticipated future development potential, predominant commercial land use, traffic volume,
road width, and any other factor considered relevant by the Commercialization Committee.
The Infrastructure Development Authority of the Punjab Ordinance, 2015
96.
An Ordinance dated 24th August 2015 has been issued to provide for founding
Infrastructure Development Authority of the Punjab. The Authority is meant for planning,
designing, construction and maintenance of infrastructure in the Punjab in line with the best
international practices to cope with the futuristic development needs; and for the purpose of
hiring international and local consultants and contractors for execution, management, operation
and maintenance thereof. The Authority shall be a body corporate, having perpetual succession
and a common seal, with power to enter into contracts, acquire or dispose of property.
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Chapter III
The Punjab Safe Cities Authority Ordinance 2015
97.
The Ordinance was issued in July 2015, to establish Punjab Safe Cities Authority for
purposes of construction, development and maintenance of a citywide integrated command,
control and communications (IC3) system in the major cities of the Punjab in order to ensure
safety and security of the people.
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Chapter III
Figure III-21: Organizational Set Up of TMA Sialkot
Source: TMA Budget 2015-16 and TMA Staff.
Note: V = Vacant Position
Page 94
U.
Chapter III
Primary Economic Growth Drivers
City’s Contribution to National/Economic Growth
98.
Sialkot generates 10% ($1.8 billion) of the nation’s annual industrial exports, according to
the Sialkot Chamber of Commerce, which translates into a per capita average 25 times that of
the nation as a whole 52 . The uniqueness of its sports and surgical equipment exports also
contributes a high degree of international status to Sialkot and Pakistan.
Dominant Economic Activities
99.
Sialkot is the third largest economic hub in Punjab following Lahore and Faisalabad, and
has a per capita income almost double the national average. 53 This is largely due to its
emergence as a unique and specialized industrial center manufacturing sporting goods, surgical
equipment and leather products. A long history of working with leather, wood and metal
developed the valued hand labor skills that make Sialkot a global leader in many products. As an
example, Sialkot exports up to 60 million footballs (soccer) to the world’s top leagues and
tournaments through leading international sports equipment distributors. Figure III-22 illustrates
Sialkot’s global economic linkages. Raw materials find their way to Sialkot from an equally broad
range of sources.
100. At the same time, Sialkot plays an important regional role as an agricultural processing
and shipping center, supplier of goods and services to surrounding smaller urbanizing and rural
areas, and generates significant employment in surrounding settlements as a result of the
contracted work system favored by many of the manufacturers. Those with centralized
manufacturing facilities still provide regional employment as many workers commute. Figure
III-23 is a conceptual illustration of these economic linkages. To support these unique industries,
the Sialkot Chamber of Commerce led the development of Pakistan’s only privately owned and
operated international airport and nearby Dry Port and Export Processing Zone. The airport sees
an average of close to 100 international flights per month by leading international carriers.
101. The Sialkot Chamber of Commerce is particularly active in leading development of a
number of PPP infrastructure projects as well as those mentioned above. Members are actively
involved in, and concerned about, urban issues. The Chamber currently has over 5,000
members.
102. As with every urban center in Pakistan and in most emerging economies the informal
sector likely accounts for the majority of the economic activity, although by its very nature
statistics do not usually capture this. A simple look at any street is indicative of the high level and
importance of the informal sector in which 69% in Sialkot District 54 are actively engaged and
probably 100% participate. At the same time, their dominant presence in the urban setting is
ignored from a planning perspective with the resulting street chaos evident everywhere.
52
Express Tribune, 1 September 2014
www.fpcci.com
54
District Level Employment Trends - 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics
53
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Chapter III
Figure III-22: Sialkot’s International Economic Linkages
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Figure III-23: Sialkot’s Regional Economic Linkages
Sports Goods
103. Sialkot is well known for its sports goods such as football, hockey sticks, cricket bats, all
kind of sports gloves and sportswear; and enjoys an excellent reputation in the international
market. The basic raw material is leather and mulberry wood that is available in Pakistan.
104. The Pakistan sports good industry is facing many competitors including China, Taiwan,
India and South Korea. There is a need to modernize and mechanize the Industry for the
improvement in quality and consequently in export.
Surgical Instruments
105. Sialkot enjoys specialized skills in surgical instrument manufacturing. Products are
exported to high-income markets of USA, Germany & France. Stainless steel and steel forgings
both imported as well as local are major industrial inputs. The other materials required are
processed chemicals. The manufacturers have concerns about the quality of the local steel, as it
reportedly doesn’t conform to health grade steel. Steel is mainly imported from Japan, France,
Germany and Taiwan. Due to volatile prices of imported raw material the Sialkot based firms find
it difficult to do long term forecasting. There is a shortage of good quality Titanium because its
import is banned. Titanium is thus taken from ship breaking which causes air bubbles in the
material.
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Leather Products
106. The Leather industry makes up the second largest export-earning sector after textiles in
Pakistan. Currently, the Sialkot sector of Leather is contributing around USD 457 million in 2013
but has the potential to multiply volume of exports with the improvement of quality and
diversification in different range of products. Leather is the basic raw material. Pakistan is
fortunate that the raw material required by the industry is available in the country in abundance.
Local availability of raw materials and low wage cost gives the country a competitive edge in the
world market.
107. The issues being faced by the leather industry are insufficient level of modernization and
technology up gradation, low labor productivity, lack of confidence among small manufacturing
establishments, environmental problems, new regulations of environmental and social
compliance and lack of market information. There is stiff competition from regional players such
as China, India, Turkey, Thailand, Indonesia, etc. However, there are opportunities in terms of
room for capacities utilization, product diversification and new markets. Sialkot can diversify
further in Leather Goods for industrial use sector.
Skilled Labor
108. Sialkot achieved its unique industrial position as a result of the specialized hand working
skills developed over the generations. One of the current major problems faced by
the Sialkot industries is the declining availability of that traditional skilled labor. As a result of
increased globalization and awareness of other “bright light” opportunities youth are no longer as
interested in following their parents’ footsteps and the elimination of the child labor process has
also changed the skill development process for future workers. The centuries’ old skills
development system of on-the-job training given by parents and seniors to young apprentices
has been closed by international regulations without providing an alternate training system.
109. While Glove Manufacturers have established a small training school for women where
they are taught cutting and stitching. There are no such facilities in other trades. Surgical
instrument industry is now planning to set up a Surgical Technology Institute with government
assistance, which will train about 250 students.
110. National Vocational Technical Education Commission (NAVTEC) needs to look into the
matter and set up training centers in trades needed by the Sialkot industry. These institutes can
be clubbed with the secondary schools so that by the time a student has done his Matric he/she
has also a technical skill required by the industry. Educated workers will also improve the quality
of production and make implementation of social compliance easier. It would also help in
providing an alternate to the ages old child labor practice.
City Competitiveness Enablers
V.
Business Environment and Comparative Advantages
Entrepreneurship
111. Sialkot has a core population of about 600,000 and over a million in the built-up area,
progressive leadership, pro-active business community, and its established commercial and
industrial base. It is the third largest economic hub of Punjab, after Lahore and Faisalabad. The
per capita incomes of Sialkot are among the highest in the country, and almost double the
national per capita income, according to some reports. This is mostly attributable to Sialkot’s
emergence as an industrial core over the past hundred years. Thousands of small and mediumscale entrepreneurs engaged in production populate the city. Among them, three industries are
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dominant, i.e., leather goods, surgical goods and sports goods. Almost every item produced in
Sialkot is exported to international markets, due to which Sialkot earns US$1.8 billion in exports
annually. It is Sialkot’s long tradition of highly skilled hand laborers that developed and has
sustained its international manufacturing position.
Regional Transportation
112. Sialkot International Airport has the distinction of being the first privately owned public
airport in Pakistan and South Asia, and of having the longest runway in the region. There are
over 100 international flights per month with direct connections to London as well as several
cities in the Middle East. The airport is situated at a ten minutes’ drive from Sialkot Dry Port, and
25 minutes’ drive from Sialkot main city. Furthermore, Gujranwala, another important industrial
city, is located just forty minutes’ drive away from the airport.
113. Currently, trains to Lahore, Faisalabad, Multan, Narowal and Karachi are available daily.
There are also plans to open the border for an international train between Sialkot and Jammu.
The City is attached with the National Highway (N-5) through Gujranwala and Wazirabad. Sialkot
is a 2 hour’s drive from Lahore and 4 hours from Islamabad. Bus services are available from
Rawalpindi, Lahore, Gujranwala and Multan. Plans have recently been announced for a new
Sialkot-Lahore Expressway.
W.
Competitiveness Disadvantages
Power Supply
114. The industrial sector has suffered millions of rupees production losses due to hours of
load shedding carried out in Sialkot like the rest of Pakistan.
Environmental Degradation
115. A total of 52 million liters per day of wastewater along with 1.1 million wastes from
tanneries is discharged into Nullah Aik and Pulkhu, sewerage drains, ponds and open
agricultural lands from the Sialkot city. According to a different estimate, each tannery in the
district generates 547-814 m3/day volume of wastewater. The industrial units have no
wastewater treatment facilities. Untreated industrial process water, irresponsible dumping of the
solid and sludge waste has become the deadliest threat for the health and safety of the people
living in the areas. It is also a major disadvantage in light of global watch dogs and European
customer standards
Rail Service
116. In 2010, Pakistan Railways stopped Sialkot Express train service plying between Sialkot
and Rawalpindi due to financial losses. The Sialkot business community has expressed grave
concern over this train closure, lamenting the non-availability of railway cargo55.
Raw Material Imports
117. Owing to the stiff foreign competition faced by the sports and surgical equipment
industries, most of the raw materials have to be imported in order to ensure high quality of the
final product required for international markets, adding to the final costs56.
55
56
Regional Profile of Sialkot, Chamber of Commerce & Industries.
Sstakeholder discussions with various groups including Chamber of Commerce and TMA
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Export Processing
118. Sialkot’s export processing zone has been unable to realize its full potential because it is
located outside the city and is therefore not easily accessible57.
Competition
119. The Pakistan sports goods Industry is facing many competitors like Taiwan, India and
South Korea. There is a need to modernize and mechanize the Industry for the improvement in
quality and consequently in export.
X.
Institutional Capacities and Development Constraints
Overview of Urban Planning in Punjab
120. One of the fundamental issues impeding the proper planning and development control of
urban areas such as Sialkot and Sahiwal is the general lack of integration between urban spatial
planning instruments, such as Outline Developments Plans (ODPs), Overall Strategic Plans/Five
Year Plans etc. and the project preparation and implementation stream using the PC-158 or PC-2
instrument. The persistent lack of proper planning and programming and the use of spontaneous
or ad- hoc planning principles can be traced to59:






Lack of inappropriately placed and constituted agency to “own” and pursue urban
planning as an integral sector of overall economy. A large number of agencies are
involved in various aspects of the urban planning process. As a result, projects
cannot be identified and prepared in consonance with the spatial and economic
growth strategies of specific towns.
Partly owing to the above, there is no clearly stated urban development policy and as
a result the urban planning involved in Master Plans cannot include specific
guidelines for effective development control. An integrated process therefore, cannot
be initiated.
Lack of local government’s awareness of Integrated City Development Strategy, its
processes and procedures.
The curricula of professional institutions need to be more relevant to the operational
planning practice. Urban Planners and Engineers in Pakistan need to be trained
more to prepare feasible projects and to understand and undertake Strategic
Planning. As a result, when they take up their positions in an organization such as
TMA responsible for urban planning they should be able to prepare realistic plans
considering strategic aspects such as social, economic and cultural dimensions.
The outcome of the planning policies should be that implemented projects could be
measured against a pre-set scale as whether they are a success or not. A good
performance measure would state yes, whereas a poor performance would say no.
However, it is not as simple as that; planning policies operate within a set of
parameters and criteria.
The following parameters are examples of overall goals of urban service
management.
o Effectiveness of communication and co-ordination linkages between the
implementing agencies and intended beneficiaries
o Effectiveness of commercial linkages between implementing agencies
57
IBID
PC denotes Planning Commission, which has developed a number of forms such as PC-1, PC-II etc. PC-I is the
basic form on which all projects/schemes are required to be drawn up. PC-II is required for conducting surveys
and feasibility studies, in respect of larger projects, intended to get full justification for undertaking the project
before large resources are tied up with them.
59
Based on consultations with TMA officials, stakeholder’s meetings and observations of ICDS Consultants.
58
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o
o
o
Chapter III
Impacts of the economic and political environment on the effectiveness of
project implementation
Effectiveness of internal monitoring and management information systems
Satisfaction of intended beneficiaries with inter-agency co-ordination, and in
particular its outputs
121. The accountability for quantity and quality of urban services will not achieve the desired
benefits until the more fundamental barriers to performance at TMA level have been addressed.
Until that time, provincial government will achieve greater economic benefits from retaining
scarce resources of skilled manpower at a central level, and using them to support TMAs until
they can demonstrate their ability to assume greater responsibility for urban planning and service
delivery.
122. Before TMAs are allowed greater autonomy they must first be brought up to a higher
standard of management in terms of planning, organizing, staffing, control, governance and
measured accountability. When this improved status has been achieved then increased
autonomy through devolution will achieve the maximum benefits. However, until municipalities
can demonstrate this increased core competence, there is a risk that funding will not be used to
the best advantage.
123. The overriding goal must be to establish an environment where the standard and level of
urban services to the citizens of Sialkot and Sahiwal is improved in a sustainable manner. The
Program Loan should provide the mechanism and funding to improve the skills and capability of
staff; the organization structures; procedures and working practices, and to ensure that the total
use of resources in the urban sector is used to maximum advantage.
124. Improvements in the urban planning process will not, however, be achieved simply by
restructuring. They require changes in organization culture, or “the way things are done”. The
vision for TMAs must be that in a few years they have advanced to the stage where they can
successfully manage many of the urban planning activities themselves.
125. Instead of rigid urban master plans, which are usually un-implementable and encourage
sprawl, the aim should be to prepare integrated urban development strategy for the towns of
Sialkot and Sahiwal that will include a sector policy statement, a time bound action plan for
institutional reforms, a prioritized investment plan and a financing plan through a participatory
process.
City Development Planning and Implementation
126. A lot needs to be done to remove institutional weaknesses and build capacities of local
government institutions particularly TMAs. Some of the present constraints are listed below:
Lack of Development Control
127. Lack of development control and indiscriminate land use changes without TMA’s
approval are causing not only substantial revenue loss to TMAs, but also resulting in haphazard
expansion of built-up areas, wastage of prime agricultural land, admixture of non-compatible land
use, ribbon developments along main communication routes and environmental degradation.
Outdated Master Plan
128. Development control tools and land use regulations are of little value, unless there is a
plan to implement. For the regulations to be meaningful, it is essential to have an up to date plan,
rather than following an obsolete plan prepared in early 1970s, which is the case in Sialkot.
Indiscriminate Commercialization
129. Commercialization has become a fad. Originating from Lahore, this is being spread
throughout Punjab. Due to resource crunch, it is a handy tool to generate revenue. But
indiscriminate use of this tool is creating problems in terms of increased traffic, parking problems
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and environmental degradation. Commercialization needs to be allowed with dexterity, on caseto-case basis, and only where it is appropriate and environmentally permissible. Parking
provisions must be an integral part of any commercial establishment.
Lack of Inter-Departmental Coordination
130. To ensure proper planning control, the concerned authorities should not approve the
electricity, telephone, gas connection etc. unless the approved building plan is attached with the
application. At present this is not the case.
Untapped Revenue Generation
131. TMA Sialkot has significant unexploited potential to enhance their sustainability through
better revenue generation. In most cases, potential sources of revenue have not been effectively
tapped. In general, revenue collection should be more affective at local level, as the potential
sources of revenue are better known. Besides, taxpayers are usually more willing to pay taxes as
the utilization of money is obvious to them, and the public entities managing such tax revenue
are within their reach in terms of political supervision and control. Decentralized management of
public funds creates an opportunity not only for increasing total revenue but also for spending
these funds more wisely and more effectively, including benefit to the disadvantaged groups,
provided systems of adequate checks and balances are institutionalized.
Rigidity in Urban Plans
132. A Spatial Plan should aim at providing framework for orderly and organized growth of
human settlements over a number of years. The individual projects or schemes (physical
infrastructure and others) should stem from the strategic spatial plan. In practice however, this is
not the case, since Sialkot like most TMAs have no long-term strategic spatial plan.
Lack of Public Consultation
133. At present there are no public consultations for planning and development of projects in
TMA Sialkot. For encouraging public participation, TMA requires support in community
mobilization, community empowerment, participatory reflection and action.
Lack of Land Use-Infrastructure Integration
134. Land use planning and infrastructure investments should be integrated otherwise land
use planning is bound to fail. Spatial planning can make substantial differences. The guidance it
can give regarding the timing, location, quality and size of an infrastructure project offers more
than greater efficiency and effectiveness when investing the scarce resources. The motives for
spatial planning are not to control but to provide knowledge of opportunities and costs. It seeks to
be alert and responsive to the occasions when its advice can be of value, especially during the
selection and prioritization of urban infrastructure projects.
Lack of Concept about Human Resource Management
135. Most government officials do not understand the concept of Human Resource
Management in TMA Sialkot like other TMAs. There is little or no experience of human resource
(HR) management, either at the corporate level, or within the service areas, i.e. departments in
TMA.
Lack of Planning Staff
136. There is only one qualified Town Planner in TMA Sialkot. The ratio of planners to
population in Sialkot is therefore about 1 per 500,000 persons, whereas in a typical city in the
developed world it may be on the order of 1 per 10,000 persons, giving the developed world city
50 times the capacity of Sialkot. Besides, only about 20% of building projects are being
submitted for review, therefore, further illustrating the ineffectiveness of the present system. The
posts of 83% management staff and 92% of other staff are filled.
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Y.
Chapter III
Urban Infrastructure and Service Delivery
137. The key competitive constraints facing this sector are multiple. TMA Sialkot faces
challenges of capacity, financial resources and equipment for improving the services and to
respond to residents’ and industry’s needs for infrastructure and service delivery. The city is
unable to cope with the demands placed on its resources, nor offer suitable solutions and
institutional arrangements.
Z.

The capacity to shift the focus from simple extension of infrastructure to
improvement of service is limited by an institutional framework that offers no
accountability to customers or financiers. Staff qualifications and capabilities are
mostly oriented towards engineering design, and technical staff pays little attention
to day-to-day operational needs or the wider concepts of service provision.

There is lack of a systematic approach to collection, recording, collating, updating
and processing of data. For example, in relation to water supply and quality
considerations, no information is available on the incidence of waterborne and
hygiene-related disease. Data shortfalls are mainly due to the lack of institutional
capacity at the TMA level.

In order to improve urban transport service delivery in Sialkot, there is a need for
doing fewer but larger projects through pivotal non-physical and physical
investments to promote structural change and transformation. Structural change and
inclusiveness require an enabling environment for the private sector; credible
regulatory frameworks; efficient financial intermediation; critical infrastructure and
services; and institutional effectiveness and capacities.

The SWM department is poorly resourced and significantly understaffed in the
management and skilled labor categories, resulting in inadequate planning capacity,
poor information and weak financial management. Institutional roles, responsibilities
and operational functions are fragmented, lack a clear division of responsibilities
and suffer from inadequate planning, management and enforcement capacity.

The institutional framework for the delivery of transport services and infrastructure
in Sialkot is confused, with numerous agencies having overlapping and sometimes
conflicting roles. The resulting problems are compounded by a shortage of capacity,
in particular technical capability, and limited budget.

There is also a lack of institutional coordination mechanisms to integrate decisionmaking processes regarding budgets, and infrastructure improvement and
development with those of land management. It is important to provide nonphysical support to undertake capacity building activities to strengthen the TMA
for better provision of urban infrastructure.
Operations and Maintenance
138. Many of the municipal services provided in Sialkot do not generate sufficient revenue.
Revenues from user charges are insufficient to cover even operations and maintenance (O&M)
costs of service provision, because of low tariffs, high technical and commercial losses and poor
collections. This could suggest that operations of the facilities are inefficient, requiring private
sector partnerships to reduce costs. The Sialkot Administrator indicated he has been able to
raise water tariffs from 35% of what is needed to 50%. Political resistance prevents higher cost
recovery.
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Chapter III
139. Collections are erratic, and operations are financed mostly through operating subsidies
and development grants from the provincial government. Good cost recovery performance
of the municipal water supply operations provide a good basis for the introduction of
private sector partnership corporatization initiatives.
140. In practice, repair and maintenance costs are not budgeted for and the costs are met
from development expenditure. There is a need for automated maintenance management
system as well as computerized maintenance management system to establish a dynamic asset
inventory.
AA.
Financial Management and Procurement
141. Collection against demand and investment in services is good but does not meet O&M
costs. User charges are insufficient to cover operation and maintenance costs ─ for example;
collections are erratic, and operations are financed mostly through operating subsidies and
development grants from the provincial government. Improvement in municipal services will have
impact on city financial outlay, service delivery improvement & improved health of citizens and
less strain on the sewerage capacity. This has significant impact on urban poor who rely on the
public sector water supply and sewerage and solid waste improvement.
BB.
Transparency and Governance
142. Transparency, or rather the lack of it, is a major development constraint not unique to
Sialkot. In Sialkot’s case, it impedes rational urban planning decisions, limits development
control, impacts collection of fees, limits implementation of regulations aimed at safeguarding the
urban environment and is generally a major constraint on Sialkot’s ability to develop in a
sustainable manner. Noted examples include extensive property development without official
planning approval in line with approved plans; failures to pay development fees and other taxes
to support the city’s operations; encroachments on environmentally-sensitive lands that should
not be developed with limited power to remove, etc. In an environment where institutional
capacities are limited and the culture of adhering to rules, regulations and approval processes
not fully institutionalized it creates the situation where political agendas easily over-ride technical
advice; and other development/business “obstacles” can be easily overcome by informal
payments. In short, corruption remains one of the major impediments to orderly, sustainable
urban management, and all suffer the consequences.
143. Sialkot’s top officials fully recognize this problem and are taking measures to improve the
way it responds to the needs of its citizens and involves them in decision making. Historically, the
approach adopted by city officials has been to limit the access provided to ordinary people of
Sialkot on the way the city does its business. This only serves to widen the gap and respect
between citizens and government. Sialkot is working on improved IEC programs (Information,
Education and Communication) as part of its efforts to address many issues including pollution
and dumping of refuse. There are other efforts to open up communication and participation.
Local NGO initiatives are working with the TMA and introducing participatory budgeting as one
example. There is an improvement in complaint of the TMA’s management system and some
attempts for improvement in the services and mapping of the system aimed at better planning
and management.
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Chapter III
Initial Climate-Change Resilience Assessment
CC.
Introduction to Climate Change
144. Climate change is no longer a distant possibility but a current reality, substantiated by
scientific documentation. Global temperatures have recorded unprecedented increases. The
length and timing of seasons are changing. The frequency and severity of floods and cyclones
accompanied by rising sea levels are increasing. In short, climate change has become one of the
most important challenges of this century for policy-makers, industry, and civil society. It is now
an overarching development parameter, which affects most sectors in all countries.
145. There are also natural variations of weather patterns within limited time periods, which
cannot be characterized as climate change, and which have always been experienced and
coped with. The ICDS concentrates on the long-term climate-change related impacts and
resilience needs, as they will affect the overall future strategic development of Sialkot.
146. This Section must be read in conjunction with the accompanying Climate Risk
Vulnerability Report (CRVA) being concurrently prepared and in much greater detail as part of
the PICIIP.
DD.
Purpose and Scope of the Initial Resilience Assessment for Sialkot
147. The key objective of the Initial Resilience Assessment for Sialkot is to identify the
particular vulnerability towards climate change impacts, which affect Sialkot’s urban management
and built environment now and in the coming 25-30 years. This 25-30 years’ timeframe is
deemed to be in accordance with the horizon for the City Development Strategy to be proposed
by the ICDS Team and for the investments, which are expected to follow as a result of the
PICIIP.
148. Resilience building measures include policies, planning principles, design standards and
proposals for physical constructions. However, the ICDS Team will focus on measures that are
applicable to the strategic development themes including sustainable urban development forms
and enhancement of the city’s competitiveness rather than detailed technical engineering
aspects.
EE.
Climate Change Threats and Impacts for Sialkot
Natural and Climate Conditions of Sialkot
149. The Province of Punjab is located in the northeastern part of the Indus River plain and
the climate is semi-arid. In general Sialkot shares the basic natural and climate conditions that
prevail in Punjab.
150. Relatively low-lying plains characterize the terrain of Punjab with several rivers traversing
the area from northeast to southwest feeding into the Indus River. The rivers drain the high
mountainous region of Kashmir. Table III-24 presents climatic data for Sialkot.
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Chapter III
Table III-24: Average Monthly Temperature and Precipitation in Sialkot
Jan
Feb
Mar
Apr
May
Jun
July
Aug
Sep
Oct
Nov
Dec
Temp. (C)
11.6
13.8
18.6
25.0
30.0
32.2
29.8
29.0
27.9
23.7
17.8
12.8
Précis.
(mm)
41.1
43.8
53.7
30.1
28.0
65.6
288.4 259.1 94.1
14.5
9.1
30.4
151. As can be seen, the summer monsoon rainfall is substantial in July and August. Both
months have more than 3 times the average monthly rainfall of approx. 80 mm, and together
these two months account for more than 57 % of the annual total rainfall.60
Climate Change Threats and Impacts for Sialkot
152. The main climate change threats and impacts facing Punjab Province and Sialkot are
higher temperatures and increasing monsoon seasonal rainfall along with increasing frequency
and intensity of extreme weather events.61.
153. A slight increase of 1.13% (± 3.95) of annual precipitation by 2080 for Northern Pakistan
is projected62 63 along with increased variability of monsoon rains and enhanced frequency of
heavy rainfall.
154. The projected temperature change will likely be more significant, increasing in the range
of 4.4 to 4.9 °C by 2080 for Northern Pakistan.
155. An analysis of data from 52 meteorological stations in Pakistan over a 40-year period
(1961-2000) shows that the frequency of occurrence of highest daily temperature and heaviest
rainfall events in 24 hours have increased in the past decades (GCISC, 2009)64.
156. The heavy monsoon rainfall in Pakistan, which historically have caused severe urban
flooding and led to damages and failures of the urban infrastructure systems, will continue and
intensify for Sialkot as well as for other cities in Punjab. In addition, heat waves with extremely
high temperatures will also continue and intensify.
Impact of Temperature Increase
157. In general, higher temperature causes impacts on natural environments, agriculture,
forestry and fishery, which have impacts on urban economies. Higher temperature is also a
threat for Sialkot, but not considered as leading to serious impacts for the city in general.
However, higher temperature may increase discomfort and lead to increased energy
consumption for cooling. It also represents an added health risk, particularly for the elderly and
other vulnerable groups. The increased energy consumption will further constrain limited
electricity supply.
158. The so-called “heat island” phenomenon, which occurs during particular hot periods in
large, densely built cities with extensive use of air-conditioning, can have serious health impacts
for the population. But these characteristics do not apply to a medium size city like Sialkot. Thus,
higher temperature is not considered to be a main climate change impact for Sialkot.
60
Source: Sialkot Weather Forecasting Centre in “Sialkot CDIA Application and Assessment Form”
CVRA Draft Inception Report: “08312015 CRVA Inception Report ver 4”
62
Green house gas
63
The scientific calculation models, which are used in projections of future climate changes, build on trend
analyses of past climate observations and take various GHG emission reduction scenarios into consideration
64
Quote from CVRA Draft Inception Report
61
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Chapter III
Impact of Increased Monsoon Seasonal Rainfall
159. The monsoon seasonal flooding in Sialkot occurs when the rivers running through the city
and surrounding areas overflow due to extreme and unusual volumes of rain in the upstream,
mountainous regions of Kashmir.
160. The impact of this flooding in Sialkot is probably exacerbated by the fact that an
increasing proportion of the city area in recent years has been covered by impenetrable surface
materials such as asphalt and concrete, thus reducing the absorption capacity of the city soil
compared with earlier. More importantly, flooding events are exacerbated by drains and natural
water courses and ponds being blocked by irregularly dumped solid waste. Sialkot has no
separate storm water system. The drains along main roads are designed for storm water but
actually carry both storm and waste water, and are also used for irregular disposal of solid waste.
Section III.10 discusses the state of Sialkot’s solid waste management. Institutional capacity
supported by political will is the key to resolving this issue as demonstrated during the 2015
monsoon season. Following 3 years of record floods, Sialkot’s newly appointed Administrator
initiated a vital drainage course waste removal program with the result that urban flooding was
largely averted during 2015.
FF.
Initial Vulnerability Assessment
Elements Being Assessed
161. Referring to the strategic development themes of sustainable urban development,
enhancement of the competitive qualities and urban consolidation, there are three types of
elements in Sialkot, for which resilience is of key importance:



Existing assets
Future growth areas
Particularly exposed and vulnerable communities
162. The existing assets include infrastructure components: the road network, storm water
drainage, solid waste management facilities, water supply systems, sewerage and other
sanitation systems and power supply networks; as well as all built commercial, social,
institutional and residential facilities.
163. The resilience of future growth areas should be much easier to achieve than retrofitting
existing areas with awareness of climate change issues now fully integrated into City
Development Strategies including where and in what form that growth should occur.
164. The communities particularly exposed to flooding are obviously priorities for resilience
initiatives. Particularly exposed communities include informal settlements (katchi abadis), where
the inhabitants do not own the land and have built houses illegally. Informal settlements often
occur on marginal, flood-prone locations with houses often of poor standard. The areas are often
not connected to water supply and sanitation networks further increasing vulnerability. If some
areas are left vulnerable, it may create social tension as other neighborhoods of the city develop
and flourish. Sustainable urban development prescribes social justice, inclusiveness and
equitable development.
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Chapter III
Flooding Vulnerabilities in Sialkot
165. Figure III-25 is an example of an existing flood-prone community. Figure III-26 illustrates a
preliminary GIS assessment of those areas of Sialkot most likely to be impacted by a 1-meter
plus flood event. It can be assumed that without significant remedial actions, these areas of
Sialkot will experience increasingly severe flooding in the coming 25-30 year. The potential
vulnerability threat to existing assets is clear, especially to water supply as a considerable
numbers of tube wells and filtration plants are located in the flood prone areas. Two of the 6
existing disposal stations are in the western flood prone area, and the remaining 4 are just on the
edges. Further detailed topographic analysis is required to more accurately determine the extent
of potential impact. Much of the local flooding is caused by a vicious circle of poor drainage and
solid waste management leading to even worse drainage and solid waste management issues. A
key starting point for introducing strategic resilience building measures is therefore to reduce
those human induced factors that add to the flooding, e.g. covering with impenetrable surface
materials and drain blocking. In addition, the basic urban service systems that do exist should not
be allowed to further deteriorate and lag behind the rapid urban development, which
characterizes Sialkot.
Figure III-25: Flood-Prone Community
Source: base photo - Google
Microclimate and Temperature Management
166. As discussed above, increased temperatures will become a reality and felt strongly in
urban areas. Microclimates develop with the combination of hard surfaces, reflective buildings,
vehicle and building heat emissions, lack of shade and lack of urban green. Figure III-27 clearly
shows the lack of vegetation within urban Sialkot. Improving Sialkot’s green environment will
make major contribution to enhancing the city’s livability.
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Chapter III
Figure III-26: Indicative Flood-Prone Areas
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Chapter III
Figure III-27: Sialkot Vegetation Coverage
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Chapter III
Summary of Diagnostics
167. The main issues, opportunities and constraints confronting Sialkot as it desire’s to develop
its future in a more sustainable and resilient manner can best be captured by analyzing inputs
received from a cross-section of residents in Sialkot: public sector, private sector and NGO. A
dynamic, participatory Workshop held in Sialkot during preparation of the RUA highlighted:

Municipal (TMA) institutional capacity to manage a prosperous, safe and healthy city
needs to be strengthened.

Urban sprawl must be contained.

Developments need to happen in accordance with plans and transparent approvals.

Water and power services need to provide 24/7 services.

Better management or roads is required to relieve congestion.

Industrial and domestic pollution of waterways, ground water and the general urban
environment must be eliminated.

New technologies and locally trained technicians are required to retain Sialkot’s
competitive advantage.

Sialkot needs a clear vision to guide development of its future.
Figure III-28 captures all the comments received during a key multi-sector Stakeholder Workshop.
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Chapter III
Figure III-28: Sialkot Diagnosis
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REG-8556
Pakistan
CHAPTER IV
Climate Risk and Vulnerability
Assessment (CRVA)
April 2016
project’s design
Chapter IV
Introduction
1.
The Punjab Integrated Cities Improvement Investment Program (PICIIP) is an initiative of
the Asian Development Bank (ADB), which aims at improving the quality of life of the residents
living via improved quality of urban services available to the residents of selected cities of Punjab
(city populations between 250,000 and 1,000,000) in Pakistan. One important component of
PICIIP is the urban infrastructure development. The objective of CRVA is to carry out climate
change impact assessment to serve the broad PICIIP objectives. This report summarizes the
CRVA findings for the city of Sialkot. The Sialkot urban population is expected to be double by
the middle of this century. The lag-behind urban infrastructure and weak capacity in integrated
urban planning and poor response mechanisms have made Sialkot in high risk to future
enhanced climate hazards. Climate change will likely exacerbate the climate risks. The public
infrastructure system is the foundation for a city’s socio-economic activities. However, climate
risks threaten the normal operation, or even cause substantial damage to the infrastructure
system, particularly for systems that have already been outdated or poorly maintained. One of
the primary objectives of the PICIIP is the design and construction of climate change resilient
infrastructure. The purpose of the CRVA assignment is characterizing and quantifying the
projected impacts and associated risks from climate change on Punjab’s intermediate cities and
on important urban service delivery sectors, in order to assist the efforts of PICIIP in promoting
climate resilience of its investment projects.
2.
A top-down approach was adopted in the impact assessment. Based on the IPCC AR5
GCM outputs and historical observation, quantitative climate scenario projections and their
associated uncertainty for the key climate variables were generated. From such quantitative and
other relevant information, it is possible to identify adaptation options that could enhance the
resilience of the climate sensitive project components of PICIIP at design and construction. This
study conducted a sector-by-sector assessment of climate change impact on city energy system,
water resource, solid waste management, human health and transport system. Several
adaptation options are discussed based on the impact assessment and other relevant
information. Cost-benefit analysis (CBA) of the flood protection was carried out. It was found that
the adaptation together with upgrading the outdated flood protection system will bring in
substantial net benefit to Sialkot by reducing the flood damage. Cost-benefit analysis could be
applied to evaluate other adaptations when supporting data is available.
3.
Sialkot is Pakistan's 12th most populous city. The latitude of the urban center is 32.50°N
and the longitude is 74.53°E. The estimated total population of 2015 is about 596,000. Sialkot is
well known for its sports equipment and surgical instruments manufacturing industry. It is
Pakistan's second largest source of foreign exchange earnings after Karachi, through its exports
and remittances from the overseas manpower.
4.
Sialkot features a humid subtropical climate, with annual average precipitation around
1000 mm. The precipitation is characterized by strong seasonality, with the rainfall of monsoon
season in July and August accounting for more than 50% of the annual total. The annual average
daily temperature is 23C. Sialkot is traversed by three seasonal streams, comprising Aik Nullah,
to the south of the city, Bhaid Nullah, between the Cantonment and the rest of the city, and Pahlu
Nullah, to the north of the Cantonment. Urban flooding occurs frequently during monsoon
because of the outburst flood from the three nullahs, particularly Bhaid Nullah. The inadequate
storm and sewer system within city worsens the flood at the urban area.
5.
The city sits over abundant shallow and deep groundwater aquifers that benefit from the
Chenab River flows to the northwest, and the Marala-Ravi Link Canals flow to the west. The
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Chapter IV
groundwater is used and extracted via wells by both the city water supply system and inhabitants
for their water supplies. The water is pumped directly from tube wells to supply pipes. The aquifer
is recharged from the Chenab River, which is located some 20 km northwest of the city center
and from the water channels and bodies within the city. The water channels were originally
seasonal water courses but now carry wastewater from the city throughout the year. Local water
bodies are heavily polluted.
6.
Sialkot wastewater system is served through a combination of sewers that are open and
covered drains. The sewers are in poor condition and blocked in many places. The main system,
servicing the center of the city and the area to the west, discharges to a diameter trunk sewer.
Three pumps at various locations lift the wastewater into the Bhaid Nullah. The historic core of
the city is served by open drains that convey wastewater to the Aik and Bhaid Nullahs. The
roadside drains along main roads are used as storm drains, but it actually carries both storm and
foul flows.
7.
Sialkot currently generates about 287 tons of municipal solid waste daily, or about
104,851 tons/year, but only half of the solid waste enters the municipal waste system, leaving
another half without waste collection. Practically all municipal waste is burned, dumped or buried
illicitly on vacant land throughout the city, causing significant environmental damage and
potential health hazards. Due to its population growth and increases in its economic activity, the
solid waste daily generation is destined to accelerate to about 195,000 tons/year by 2020, and
then to about 300,000 tons/year by 2030. Cumulatively, from 2010 to 2030, Sialkot will generate
about 4.3 million tons of municipal waste in addition to a significant quantity of hazardous
industrial and medical waste. As it is, the current municipal system will collect progressively less
and less of the total percentage of municipal waste; thus forcing households, commercial and
institutional establishments to handle their own waste disposal.
Methodology
8.
The construction of a climate change scenario involves the development of the baseline
climate condition and the future climate projections. The future climate projection is subject to
considerable uncertainty. The impact adaptation criteria by which decisions are assessed must
take careful account of the degree of uncertainty, the longtime horizons and the range of possible
outcomes. One important aspect in CRVA is to comprehend such an uncertainty range in
decision-making and policy planning process. A combination of different Representative
Concentration Pathways (RCPs) and climate sensitivities could be used to characterize the
future climate change scenario as well as associated uncertainty range (Table IV-1). To account
for the uncertainty of the difference between GCM simulations for given regions or locations, a
pattern scaling method was adopted and applied.
Table IV-1: Three climate projections and their input conditions represent
the uncertainty ranges
Climate projection Representative Concentration Pathways
Climate sensitivity
Mid scenario
RCP6.0
Mid
Low scenario
RCP4.5
Low
High scenario
RCP8.5
High
9.
Site specific climate change scenarios with finer temporal scale are required for impact
assessment at city scale. The site-specific temperature change scenario was constructed by
perturbing the station observed daily data using the normalized GCM monthly pattern value for
the GCM grid where the climate station is located. Pattern scaling, together with the general
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Chapter IV
extreme value (GEV) distribution function, was also used for scenario generation for site-specific
extreme rainfall analysis.
10.
For a target project component, it is also quite possible that a range of adaptation options
could be identified. Though the effects of engineering based adaptation options could be easily
accounted, it is generally difficult to quantify the effects of non-engineering ‘soft’ adaptation
options, particularly when they are combined with other adaptation options. Nevertheless, it is
commonly agreed that the ‘soft’ options could provide equally efficient but cost effectively
adaptation as the ‘hard’ options, so that requires similar attention in adaptation identifying.
11.
The economic evaluation is required to prioritize the adaptation options. Economic
justification must be an integral part of urban development plans, evaluations and decisions for
the implementation of structural and non-structural measures. All adaptation options except few
require continuous actions such as maintenance and repair of engineering structures. The key of
the sustainability of an adaptation is hence relying on the continuous buy-in of its stakeholders. It
is then important that the cost and benefit of the adaptation results are equally shared. Therefore,
economic evaluation is firstly needed to ensure that a planned adaptation option is indeed
reaches the intended beneficiaries. Secondly the economic evaluation determines economic
feasibilities, which in turn provides the basis for efficiently distributing costs and benefits to
different users and project purposes.
12.
The cost-benefit analysis (CBA) is an effective tool for organizing the pros and cons of
any planning project, especially for long-term capital-intensive urban development projects. The
CBA, if properly conducted, will identify the winners and losers from a public project because it
includes estimates of social and environmental gains and losses.
Climate Change Scenarios
13.
Temperature and precipitation are the two key climate variables for CRVA. The annual
mean rainfall is projected to increase for Sialkot. By mid of this century, the annual mean rainfall
is likely to increase by 4.8% with uncertainty range of 3.7 to 10.5%; the annual average mean
temperature is likely to increase by 0.8C with uncertainty range of 0.6 to 1.8C. In terms of
temporal pattern change inside a year, the temperature increase is likely to be consistent and
unified. In the contrast, the rainfall increase for the wet months of July and August is much more
pronounced than the increase of the rest months. Some dry months are projected to have
decreased rainfall, including the January, December. This indicates an enhanced flood risk
during the monsoon season on the one hand and an increased drought risk on the other.
Climate Change and City Development
14.
The climate change impact assessment was conducted for sector by sector that is
relevant to PICIIP, i.e., energy, water, solid waste, transport and human health. Although the
assessment was carried out for each sector separately, it should be noted that impact
consequences are often cross sectors. For example, flood not only causes damage to housing
and transport system, but also is highly related to human health issues through the link with
vector and water borne diseases. Thus climate change impact on one sector will most likely have
cross sector consequences. Therefore, any adaptation measure will possibly lead to shared
benefit by multiple sectors too.
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A.
Chapter IV
Climate Change and City Energy Systems
15.
Climate change can impact on both energy supply and demand. Without considering
climate change, the electricity demand will increase ca. 81% for Sialkot by 2030. The climate
change requires a further demand increase by 0.7 to 2.0%. With regards to energy supply,
climate change will impact on hydroelectricity generation through its influence on the river
discharge (see next section). It was reported that a 1% reduction in stream flow can reduce
electricity output by roughly 3% (Laghari, 2013). Generation rates will be high in the spring but
lower in the summer, when energy is most needed for cooling. Furthermore, careful attention
should be paid to the impact of hydropower sites to the regional environment and ecosystems.
B.
Climate Change and Water
16.
Climate change is likely altering the regional hydrological cycle, hence has profound
impact on the water scarcity and floods in Pakistan, which will bring in additional challenges in
the current already complex water resources management task. The current water demand of
Sialkot is 19 Millions of Gallons per Day (MGD) (71,923 m3/day). Population growth will dominate
the future water demand. However, the economic development and temperature increase have
additional effects on water demand. Table IV-2 lists the results of water demand change
considering both the population size and the temperature changes. By 2035 the population
growth will lead to water demand increase by 57% without considering the climate change.
Further 5 to 13% more water may be needed by 2035 due to the temperature increase (midrange projection is about further 6% increase from the baseline).
17.
Two factors affect the water supply: the available water resources and the supply
systems. In terms of water resources, the water supply of Sialkot relies completely on
groundwater. Sialkot is situated in the Upper Rechna Doab bounded by the Ravi and Chenab
rivers. Three seasonal streams traverse the city: Aik Nullah to the south, Bhaid Nullah between
the Cantonment and the city, and Pahlu Nullah to the north of the Cantonment. Water is pumped
from tube-wells directly to a supply system comprising distribution pipes. The groundwater
aquifer is recharged from three sources. The Chenab River is the most important recharge
source for the groundwater. The climate change will likely impact on the groundwater recharge in
Sialkot region through its impact on the glacial melt and then the Chenab River discharge. It has
been reported that the groundwater has been exploited above its safe yield (up to 400 mm more)
already and a slight water table drop has already been observed. The combined effects from the
climate change impact are most likely pointing to continuing groundwater resource depletion.
Table IV-2: Water demand of Sialkot: present and future projection
Consumption rate
2015 demand
2035 demand projection
(m3/day/person)
Demand Demand
with
Popu2035 projection
Water
without
climate
change
Popu
lation
Basedemand
climate
(x1000 m3/day)
-lation
projectline
(x1000m
change
(x1000) 3
tion
/day)
(x1000m Low Mid High
Low
Mid
High
(x1000) 3
/day)
0.121 0.125 0.126 0.131 694
84
1090
132
136 137 143
18.
Climate change will likely impact on urban water consumption from both the demand and
supply. A water shortage is likely to emerge for Sialkot due to climate change impact (Table IV3). Thus adaptation options should be identified for both demand and supply sides as well. The
rate of increase in domestic per capita water use could be reduced by continuing improvements
in the efficiency of water use. In addition, the water use legislation and tax systems are important
in the water demand control. On the supply side, to meet the future water demand, careful water
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Chapter IV
supply infrastructure planning and management is required to maintain a safe urban water
supply.
19.
Efforts should also be made to maintain the groundwater levels. Artificial recharge has
been experimented. With the current socio-economic setting untouched, it will be very hard for
the groundwater to restore to a sustainable level. Agriculture is the sector that uses the largest
amount of groundwater. Thus great effort should also be made to improve water use efficiency
in agriculture production. International tested advanced water saving technologies should be
studied and introduced for crop production.
Table IV- 3: Gap between water demand and supply of Sialkot: baseline and projection
Current
Water
Production
(m3/day)
109777
2035 scenario
Rate
(m3/day/person)
Gap (m3/day)
Baseline Without climate
Low
change
Mid
High
0.121
0.121
0.134
0.141
0.151
-26498* 22712
36340
44289
55267
**Negative value means surplus.
C.
Climate Change and Flood
20.
Urban flood happens because of inadequate storm and sewer system within Sialkot.
Fluvid flood from Aik Nullah, Bhed Nullah and Phalku Nullah is a major calamite for Sialkot
(DDMA, 2008). Sialkot has uneven land gradient, which results in small catchments and localized
ponding when flood occurs. Figure IV-4 shows the flood-prone area and the main corresponding
floodwater source around the Sialkot urban area. Most central city is under the threat from the
heavy storm. Palkhu Nullah causes flood in the northeast, while Bhaid Nullah causes flood in the
northwest of the city. The Aik Nullah caused flood in the south and southwest of the city.
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Chapter IV
Figure IV-4: Urban flood in Sialkot: the flood area and the source of flood
water (Source: Urban Unit, Government of Punjab)
Climate change impact on storm induced urban flooding
21.
Table IV-5 lists climate change impact on storm for Sialkot, based on the analysis of the
annual maximum hourly rainfall. As shown in Table 4, the current 5-year ARI hourly rainfall is
55.81 mm. The median change projection of such an event is 60.27 mm by 2050 and 64.65 mm
by 2100, which represents 8.0% and 15.8% increase in rain intensity. The uncertainty range of
the projection is 6.8% to 16.3% for 2050 and 8.0% to 38.5% for 2100. For 20 year ARI hourly
rainfall, the average intensity increase is 8.7% for 2050 (range from 7.0% to 17.7%) and 17.1%
for 2100 (range from 8.6% to 41.2%). Besides the enhanced rain intensity, climate change
impact also implies increased frequency or more frequent flood event. The current 50 year ARI
(corresponding to rain intensity of 89.67mm/h) will almost become 25 year ARI event in 2050’s
low scenario (rain intensity of 90.62mm/h), which implies a doubled occurrence of such an event.
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Chapter IV
Table IV-5: Sialkot GEV results of annual maximum hourly rainfall
projections
Annual maximum rainfall (mm)
ARI
2050 scenario
2100 scenario
(year)
Baseline
Low
Mid
High
Low
Mid
2
36.78
39.26
39.4
42.05
39.4
42
5
55.81
59.63
60.27
64.9
60.26
64.65
10
69.91
74.76
75.77
81.89
75.75
81.48
25
84.7
90.62
92.03
99.73
92
99.16
50
89.67
95.95
97.49
105.73 97.46
105.11
100
105.86
113.34 115.31 125.3
115.27 124.51
Change percentage (%)
2
6.74
7.12
14.33
7.12
14.19
5
6.84
7.99
16.29
7.97
15.84
10
6.94
8.38
17.14
8.35
16.55
20
6.99
8.65
17.74
8.62
17.07
25
7.00
8.72
17.91
8.69
17.22
50
7.07
8.93
18.36
8.89
17.62
100
8.28
10.60
21.86
10.56
20.92
and its future
High
49.66
77.27
97.88
119.6
126.91
150.84
35.02
38.45
40.01
41.20
41.53
42.49
50.50
Climate change impact on urban flooding in Sialkot from Aik Nullah.
22.
In Pakistan, low and medium floods pose no immediate threat, but the exceptional high
flood has potential to cause substantial damages. The limit of the type of floods by Federal Flood
Commission is presented in Table IV-6.
Table IV-6: The flood discharge of Aik Nullah and Palkhu Nullah corresponding to each
flood class (m3/s)
Name of Place
Low
Medium
High
Very
High Exceptionally
Nullah
Flood
Flood
Flood
Flood
High Flood
Aik
Ura
57
255
368
453
934 and above
Palkhu
Wazirabad
71
88
142
708
736 and above
23.
In this study, the EPA Storm Water Management Model (SWMM) was used for the
rainfall – flood modeling. A Log-Pearson Type-III distribution function was applied to simulate the
observed and climate change impact on the annual maximum discharge of Aik.
24.
The Exceptional High Flood of Aik Nullah (934 m3/s) is almost equivalent to modeled 25
year ARI peak discharges (901 m3/s), thus the climate change impact on 25 year ARI flood is
analyzed in detail. As showing in Table 6, the 25 year ARI flood intensity will likely to increase by
7.7% by 2050 according to the mid scenario projection, with uncertainty range from 4.6% to
14.8%; it will likely be further enhanced to 14.2% in 2100, with an uncertainty range from 7.7% to
34.5%. On the other hand, the model result indicates that the 25 year ARI event will become an
event of 18 year ARI and 14 year ARI by 2050 and 2100 respectively, according to the mid
scenario projection. That implies almost 40% and 80% more frequent Exceptional High Flood
event for Sialkot.
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Chapter IV
Adaptation
25.
Based on the analysis of fluvial flood of Aik Nullah, the expected damage caused by its
exceptional high flood to Sialkot could increase by 40% by 2050 and 80% by 2100. The expected
damage will almost certainly higher because continuous socio-economic development during that
period. Flood protection is essential to reduce the damage and, ideally, to prevent disastrous
consequences.
26.
For Sialkot, the engineer’s report points out that, part of the areas in south and north
does not have storm drain system. For areas that covered by the urban drain, the total capacity
of these drains is approximately 420000 m3/h, which is considerably inadequate, even unable to
respond to baseline 2 year ARI hourly rain. At first, Sialkot requires rehabilitation of its current
drain systems, such as provision of storm drains in uncovered areas and dredging of blocked
river channels. Secondly, the existing system needs additional capacity to cope with high
intensity storms. It is also important to introduce interceptors along the nullahs for continuity of
the system as levels of water in nullahs exceeds the invert levels of disposal points of drains and
sewers, city needs well planned storm water management practices.
27.
Along with the city development, new flood protection infrastructures have to be
introduced. This may include a new water diversion channel upstream of the urban center, new
flood storages and pumping stations to lift floodwater into nullahs etc.
D.
Climate change and wastewater
28.
Sialkot has a separate system for wastewater and storm water management. There are
28 sewers of varying sizes and two types of drains. All sewers mainly discharge to nullahs by
gravity or by pumping without treatment. Sialkot has at least 264 tanneries, 244 leather garment
producing units, 900 leather sports goods producing units, 57 rice husking mills and 14 flour mills
in the city. These industries produce a large amount of highly polluted wastewater, so is a huge
risk to the local water resources and human health. In fact, the groundwater quality of Sialkot has
been continuing deteriorating.
29.
Even though separated, the wastewater and storm water systems are not completely
operated independently. During the flood event, the wastewater system is used for floodwater
drain as well. However, the floodwater drain by the wastewater systems is much less than the
storm water drain systems. Therefore, the climate change impact on the wastewater system is
mainly reflected by the potential of pollution and threat of water borne diseases during floods
when the wastewater system becomes overloaded, if proper climate change impact adaptation
actions are not taken.
Table IV-7: Discharge of Aik Nullah at Ura: with and without climate change
Climate Change (m3/s)
Baseline
2050 scenario
2100 scenario
ARI
(m3/s)
Low
Mid
High
Low
Mid
High
2
670
683
694
708
694
708
748
835
5
850
869
901
868
900
996
978
10
1018
1044
1099
1044
1095
1249
1249
25
1314
1350
1436
1349
1430
1652
1502
50
1580
1620
1722
1620
1714
1989
1771
100
1865
1912
2044
1911
2033
2385
2081
200
2198
2254
2419
2296
2405
2851
Change percentage (%)
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2
5
10
25
50
100
200
2.0
1.8
4.1
5.1
5.2
5.3
5.6
Chapter IV
3.7
4.0
6.7
8.1
7.9
7.9
8.3
5.7
7.9
12.3
14.9
14.7
15.4
16.2
3.7
3.9
6.7
8.0
7.9
7.9
10.3
5.6
7.7
11.9
14.4
14.1
14.8
15.6
11.7
19.2
27.7
32.2
32.5
34.7
37.0
30.
On general, the wastewater drain system has sufficient capacity. The biggest issue is the
lack of treatment and overloading during flood events. The possible climate change impact on
wastewater management is, therefore, from its impact on flood.
Adaptation
31.
As aforementioned, the wastewater issue is related to flood, so climate change
adaptation options on flood prevention will also benefit the wastewater management. For Sialkot,
interceptor should be installed along the nullahs to avoid surcharging of sewers during storm
events. The size of the interceptor should be designed according to future climate change, and
more importantly the socio-economic development trend, so that in the heavy flood event when
overtopping inevitably happen, the wastewater should be diluted sufficiently to a safe level. To
prevent the water pollution, industrial wastewater should be separated from residential flows from
sewerage or to provide waste, oil and grease traps at entry points of industrial waste. A further
wastewater treatment plants (WWTP) are highly recommended for both cities. Furthermore, the
government wastewater discharge legislation and policy must be effectively implemented, with
support of regular monitoring scheme.
E.
Climate change and solid waste management
32.
Climate change impact on solid waste management is mainly reflected in flood impact on
the disposal site location selection and disposal plant design. Flood prone areas, either present
or under future climate conditions, should be avoided. The solid waste disposal location should
be prevented from flood. The flood protection must be established according to the suitable
facility standard, though currently there is no clear regulation of constructing flood protection in
solid waste disposal in Pakistan. As a reference, the solid waste disposal regulation in China is
that it must be prevented from 50 year ARI flood, and in design the volume of the leachate pond,
the maximum 7 day 2050 projected rainfall should be used to verify the sufficiency of the pond
capacity, in order to avoid storm caused overloading.
F.
Climate change and urban transportation
33.
Transport systems are the lifeline for a city’s socio-economic activities. The quality of
transportation planning and management is critical for the functioning of a city, and thus issues of
urban climate change adaptation and mitigation require attention. Within the Pakistan
intermediate cities, transport is mainly referred to land based road systems, so the climate
change impact assessment is focused on the road systems in cities. In Punjab, the impact of
climate change on transport is primarily from temperature and rainfall related change. High
temperature places stress on road infrastructure, softens the asphalt causing traffic rutting and
potentially resulting in pavement cracking. Extreme heat can also stress the steel in bridges
through thermal expansion and movement of bridge joints. In comparison to temperature, the
rainfall related water damage is generally more severe and difficult to manage. The intensified
and more frequent flood can damage the subgrade or even completely wash away a road section;
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Chapter IV
overload drainage system resulted in flooding on roads causing more wear and tear of the road
infrastructure.
34.
The climate change information needs to be related to road infrastructures that are
sensitive to the climate, to support the vulnerability assessment and adaptation options selection.
In this context the target climate variables that affect sensitive infrastructure components include:



Change in maximum temperature;
Change in the heavy rainfall intensity which will affect the drainage design; and
The change of 100 year ARI flood water level and 50 year ARI flood height, which are the
criterion generally applied for key transport infrastructure design such as big bridges.
35.
Extreme heat places stress on road infrastructures, softens the asphalt causing traffic
rutting and potentially resulting in pavement cracking. The pavement temperature has a linear
relationship with the air temperature, so the increase in air temperature will lead to increase of
pavement temperature. The potential increase of heat wave risk in future is significant.
Furthermore, transport system needs to be equipped with sufficient drain capacity for floodwater.
G.
Climate change and human health
36.
Heat wave is a continuous stretch of persisting temperature above certain threshold for a
specified time period. Heat wave is related to temperature and humidity. There were 13 heat
waves during the 8 years from 2006 to 2014, with the most severe one happened in 2012, which
lasted for 16 days. By 2050 and 2100, the number and length of heat wave are both projected to
increase. Table IV-8 lists the assessment results. Based on the mid scenario projection, the heat
wave changes from average of 1.6 times per year to 2.5 times per year, and is also longer
lasting.
Table IV-8: Heat wave of Sialkot: baseline and future projection
Heat wave frequency (times/year)
The longest heat wave period (days)
2050 scenario
2100 scenario
Baseline
Baseline
Low
Mid
High
Low
Mid
High
1.6
2.4
2.5
6
16
16
22
28
103. The second climate related health threat is vector borne disease. Mosquito-borne
diseases are rapidly spreading during the last decade, threatening thousands of people due to
prevailing peculiar socio-economic conditions and epidemiological situation in Pakistan. Since its
first major outbreak in Pakistan during 1994–1995, dengue fever has emerged as disaster and
repeatedly reported in many cities of Punjab (Lahore, Faisalabad and Sialkot) and Sind province
(Karachi). Climate change impact on dengue fever is mainly reflected on vector habitat condition
changes. Dengue is transmitted by several species of mosquito within the genus Aedes (Ae.).
Suitable temperature and humidity is critical for mosquitos to survive and breed. The influence of
temperature on the vectors can be described by four temperature criteria: the lower and upper
temperature tolerance (T min and T max) and lower and upper optimum temperature (T opt low
and T opt high). Certain heat accumulation is needed during warm months in a year for the
vectors to complete each stage of the reproductive cycle. Rainfall provides water for breeding
sites as well as required humidity, hence plays an essential role in the lifecycle of mosquito
species. In Pakistan, the highest numbers of hospital admissions for suspected dengue cases
are seen in September and October following the monsoon season. This timing can be attributed
to increased mosquito breeding due to ambient temperature and humidity present in the
preceding months.
104. Climate change will likely increase the dengue fever risk at Sialkot. From a simple
analysis based on the monthly normal temperature projection, February will cross the T min
threshold for Ae. aegypti and March will become optimum in terms of temperature. The climate
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Chapter IV
change induced enhanced flood events will also in favor of the vector breeding and survive. On
the other hand, May to July temperature is generally over optimum range. By 2050, climate
change will likely make August not optimum for Ae. Aegypti, which may reduce dengue risk.
105. Another human health risk for Sialkot is the water-borne disease. Water pollution has
become a very serious problem because of the rapid growth in population and the growth of the
industrial sector. Water is unsafe for human consumption due to both bacterial and chemical
contamination. The most common sources of water contamination are a result of human activity
such as discharges from factories, leaky and rusty underground water pipelines, storage tanks,
cross-connections between the leaking water supply lines and sewerage drainage pipelines
(Haydar and Qasim, 2013), improperly treated sewage disposal, agricultural chemicals and
pesticides trickling and seeping in to underground water aquifers. Climate change impact on
water-borne diseases is highly related to water supply and wastewater management, which are
discussed previously.
106. Climate change impact on human health is a typical crosscutting issue hence requires
integrated solution. Besides human behavior change, to be able to access cool environment and
sufficient clean water is the key to alleviate the heat wave effects, which is related to the energy
and water issues. Similarly, vector-borne disease and water-borne disease are also closely
related to energy clean water access and human behavior changes.
Economic Evaluation of Adaptation Option
108. Adaptation is costly, and could be expensive sometime for those engineering based
‘hard’ options. Hence the implementation of an adaptation option must be economically justified.
Based on available data, this section conducted the economic evaluation for the flood protection
project as an adaptation option for the Sialkot.
H.
Method
109. A major decision-supporting tool commonly used for economic evaluation of projects is
cost-benefit analysis (CBA). CBA is used to organize, appraise and present the economic costs
and benefits, and inherent tradeoffs of projects taken by public sector authorities like local,
regional and central governments and international donor institutions to increase public welfare
(Kopp 1997).
110. As aforementioned, flood has been singled out to be the most severe climate hazard in
Pakistan and has caused colossal economic damages to the local, regional and national
economy – thousands of houses were destroyed, physical infrastructure was wrecked, and
hundreds of lives were lost due to floods. The impact of flood is cross multiple sectors from
transport to human health. In this study a risk-based top-down approach was used for the flood
protection project evaluation. The cost includes the project investment (capital cost) while benefit
is due to risk reduction because of the project, as discussed in detail by Mechler (2005).
I.
Cost-benefit analysis result
111. After 2014 flood, the GoPb evaluated the damage to the flood protection infrastructure
and identified inescapable works to address disaster against coming floods, with a total
investment of PKR 338 million for the Lahore Zone. No investment was available specifically for
work on Sialkot. The Lahore Zone flood control plan, however, covers Sialkot. The Lahore Zone
works were used to illustrate the economic analysis of the flood investment. Because the works
covers the Lahore Zone, the benefit would not be just limited to the city of Sialkot. Thus even
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though the benefit of Sialkot was used in the following economic analysis, the total benefit will
incur from other areas and will be more than used in calculation. The reconstruction and
rehabilitation provide an excellent opportunity to upgrade the flood protection infrastructure to an
appropriate level as well as to address the future climate change impact. The upgrading and
adaptation will incur extra cost in additional to the planned investment. On the other hand, the
benefit, which is the difference between damages and reduced damages, can be calculated
based on the loss without upgrading/adaptation and loss reduction estimates. The loss/benefit
values are in constant 2015 values, hence the net benefit represents the un-discounted value. As
this value is discounted over the project lifetime it will decrease.
112. In a standard economic project appraisal, benefits and costs are discounted over time in
the calculation of the net present value (NPV), benefit/cost (B/C) ratio or internal rate of return
(IRR). One important issue is the selection of the discount rate, which the 12% is used in project
practice following the ADB guideline. Another issue is the selection of the lifetime of a project: the
longer a project can be assumed to be in existence, the higher the benefits will be, assuming that
the project is still delivering benefits; and assuming that costs of its maintenance and
replacement do not overtake benefits. For flood protection, a 35-year lifetime is a reasonable
value, as such a flood protection system is exposed to adverse weather elements and needs to
be maintained continually.
113. Discounting benefits over time and subtracting investment costs leads to the net present
value. Summing net benefits over the years would thus lead to a net present value (NPV) of PKR
1097.9 million over the whole lifetime of the project. The NPV of taking adaptation measures
against climate change impacts was PKR 1191.5 million over the whole lifetime of the project.
Thus substantial positive returns in terms of the reduction of potential adverse disaster impacts
were calculated for upgrading and adapting the current system. Efficiency calculations rendered
a B/C ratio of 3.9 (PKR million of 1475.9/378) and an IRR of 30% for upgrading the system, and
PKR 1191.5 million, a B/C ratio of 3.6 (PKR million of 1641.5/450) and an IRR of 25% for the
adaptation measures. As mentioned, there are a number of uncertainty factors relating to data,
future changes and also concerning the appropriate discount rate to use. As discussed
throughout this report, there are a number of important uncertainties associated with this study:
the analysis is only based on the direct damage to the public sector; the climate change
projections, the estimation of construction and adaptation cost; the appropriate discount rate
used. Thus, caution must be exercised when using the CBA results; the calculations can only be
understood as approximations.
114. Monetary measurement, which is at the heart of CBA, is easier for projects with “hard”
data (e.g., the value of avoidance of loss of physical structures) compared to less tangible
benefits such as enhancement of human health, gain in productivity, and a perceived increase in
the feeling of safety due to emergency plans. In order to do a more comprehensive economic
evaluation, some of the following data have to be collected:
115.
 more meteorological and hydrological data for historical flood events;
 more comprehensive data of the damage information, including private sectors and
indirect damage cost, etc.;
 more information of social effects, such as loss of life and increase in diseases after
flood;
 data of the cost of engineering project for flood protection.
J.
Summary of the Economic Evaluation study
125. As discussed by Mechler (2005), there are several limitations to CBA. At first it is difficult
to account for nonmarket values. Secondly it is the lack of accounting for the distribution of
benefits and costs in CBA. Thirdly there is the question of discounting benefits and costs.
Applying high discount rates expresses a strong preference for the present while potentially
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shifting large burdens to future generations. It is then recommended that the CBA and economic
efficiency considerations should not be the sole criterion for evaluating projects or policies, but
rather be part of a larger decision-making framework also respecting social, environmental,
cultural and other considerations. It is then recommended, if necessary, to include uncertainty in
parameter estimates into the analysis. Furthermore, we assume a linear relationship with
associativity between the broad citywide damage estimation and the flood intensity in the CBA.
This assumption may only hold for some simple flood protection systems but modern flood
protection infrastructure is rather complex and the damage function may very likely be nonlinear.
Detailed damage and its associated flood information are required to build a more accurate
damage – flood relationship for economic analysis. Nevertheless, CBA is a useful tool, which has
its main strength that it is an explicit and rigorous accounting framework for systematic costefficiency decision-making (Mechler, 2005). As implied by this study, even though more data may
be needed for a deeper analysis, it is quite likely that substantial net benefit could potentially be
acquired by modest increase of initial investment or additional adaptation input for nullahs flood
protection reconstruction/rehabilitation.
126.
In principle, the methods discussed in this section can be applied to evaluate other
climate change adaptation options when the required observed hazard and damages data is
available, hence a climate risk profile can be reasonably established. Besides the ‘hard’
engineering based adaptation measures, it is envisaged that the method can be applied to “soft”
ones such as implementing capacity building and flood early warning systems, given the
monetary values can be reasonably assigned to the nontangible and indirect impact effects, as
well as the benefit obtained.
Conclusion
127. The report was organized in a sector-by sector approach with qualitative and quantitative
climate change information that is likely to be of practical benefit for city planners. The advent of
inevitable climate change will likely have negative impacts on every key city sector. Climate
change will lead to increase in energy demand and potentially increase GHG pollution if a
shortsighted solution was sought. The water sector will heavily impact by climate change with
increased water demand due to temperature increase but decreased groundwater resource as
the supply due to the effects of shrink of glacier to the river discharge; increased urban flood risk,
either resulted from enhance heavy storm or more frequent fluvial flood from nullahs, put urban
housing and other city infrastructure and agriculture sector under threat. Cities are subject to
unique health risks since larger populations and higher population density amplify the potential
for negative outcomes. Climate change is likely to exacerbate existing heat wave, water-borne
disease health risks and the vector-borne disease risk in Sialkot.
128. One specific reason that the intermediate cities of Punjab are most vulnerable to climate
change impact is resulted from their lag-behind, inadequately planned and poorly maintained
urban infrastructures. The insufficient storm drain in both cities, non-functional portable water
storages, leakage in water supply systems, non-existence of wastewater and solid waste
treatment etc. have all contribute to the vulnerability of the city to climate change impact. Given
the financial constraints and other social limitations, effective and efficient adaptation is the only
way for the cities to accomplish a sustainable and prosperous in future development. Adaptation
in new infrastructure development is relative easy and straightforward: an embankment project
could use the 2050 flood information to determine the design flood discharge and water height; a
new road development could rely on 2100 flood projection for bridge height design and 2050
temperature in selection of the proper heat-resistant asphalt, which are just a few examples.
However, adaptation on existing urban infrastructure is more difficult. It perhaps can be best
achieved through stages by rehabilitation of present infrastructure at first, but keep the
designation of other remedial measures for future when and where the condition becomes
possible. The key of this process is that the rehabilitation and future design should be performed
in a manner that integrates adaptive responses to climate change with sustainable environmental
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Chapter IV
stewardship and minimization of the adverse effects of urbanization. Adaptation is also a
crosscutting issue, which requires joint efforts from governments at various levels and dialogues
between different sectors. For example, the solution of the future city water crisis may come from
the reform in agriculture sector. Agriculture is the biggest groundwater consumer in Sialkot.
Climate change impact and indiscriminate pumping for agriculture in the area may drop water
levels to unsustainable level. Any improvement in water use efficiency in agriculture may
dramatically improve the water safety in city. Put restriction on agriculture irrigation will not only
help the groundwater resource conservation, but also increase the water use efficiency as whole
for the local community, because the water use productivity is usually higher in other sectors
than agriculture. However, a careful designed compensation mechanism must be in place to
ensure the equal sharing of the cost as well as benefit for such an adaptation implementation.
129. In order to make the best use of the limited resources, the economic evaluation of an
adaptation is often required. In this study, we present a method for Sialkot flood protection
systems upgrading and adaptation implementing evaluation based on the cost-benefit analysis.
From the available flood damage data and the future climate change scenarios, the preliminary
result indicated that positive outcomes are almost guaranteed for proper flood protection system
upgrading and climate change impact adaptation measures implementing. In principle, the
method can be applied to other adaptation options evaluation, either structural or non-structural,
as long as monetary values can be assigned to the damages due to climate change impact and
benefit gained from the adaptation actions.
130. Cities are also generally the biggest GHG emitters, hence is also responsible for cutting
back GHG to mitigate climate change. Because of a city’s natural setting, its urban form and built
environments are relatively static factors, but they are subject to future modification through
urban planning and management. It is in this planning and management, new concept and
advanced technologies should be taken on board. Future cities should thrive on low-carbon
society and low-carbon communities with green construction materials, easy access public
transport system, renewable energy and sustainable ecosystems. Cities under PICIIP have the
good opportunity not only being able to access necessary funds for long-waited urban
infrastructure improvement, but also to readjust the ways of city’s life so that economic
development and sustainable management can be combined.
131. This report is based on the best available information and research results up to this
writing. However, climate change impact, being multi-sectorial and multi-faceted issue, requires
in-depth data/information on different meteorological, scientific, social and institutional aspects.
There is limited scientific data and information available with regards to precipitation, temperature
and other associated aspects including river flows, economic damages etc. More efforts should
be made to collect and analyze the relevant data to support CRVA and subsequently the
sustainable city development for the PICIIP cities in the future.
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REG-8556
Pakistan
CHAPTER V
(ICDS)
April 2016
project’s design
Chapter V
Introduction
1.
The Governments of Pakistan and Punjab recognize the importance of well-developed
urban centers for the future social and economic health of the nation. A number of forwardlooking policies are in place guiding urban growth, and the Government of Punjab (Gob) must
now put those into practice. Intermediate cities are considered to be of particular importance. The
introduction of an Integrated City Development Strategy (ICDS) approach as a framework for
urban planning, implementation and management is a first step. GoPb, through the Department
of Planning and Development and the Urban Unit is preparing the first two of these for the cities
of Sialkot and Sahiwal. Furthermore, GoPb recognizes the need to incorporate measures to
strengthen climate change resilience into all aspects of urban development, and is preparing a
parallel Climate Risk and Vulnerability Assessment (CRVA). Both the ICDS and CRVA provide
integrated guidance to an initial series of proposed infrastructure investments in the two cities
supported by a Pre-Feasibility Study (PFS). This City Development Concepts and Strategies
for Sialkot is the third phase of the ICDS and was finalized during January 2016 following
completion of the Inception Report, Rapid Urban Assessment (RUA) and Draft ICDS Report.
2.
Punjab’s background urban situation is outlined in Chapters I and II along with the
overall goals and objectives of the Program. Figure 0-1: Sialkot Location
Objectives of an Integrated City Development Strategy
(ICDS)
3. An Integrated City Development Strategy (ICDS) provides the short, medium and long-term
umbrella frameworks for social economic and climate-resilient city development, while promoting
the concept of cities that are competitive, green, inclusive and livable. More specifically, the
ICDS, through a participatory process, begins with the city’s “vision” and establishes the
integrated, strategic framework and prioritized actions and investments, both hard and soft,
required to achieve that vision.
Policy Context
4. The City Development Concepts and Strategies are prepared within the context of a number
of higher-level Government policies and guided by ADB and CDIA development policies as
presented in Chapter I.
Approach and Methodology - City Development Concepts
and Strategies
5. Preparation of the City Development Concepts and Strategies continue to build on the
participatory stakeholder process initiated during the Inception and RUA stages with addition
participation sessions held with residents, TMA and Cantonment officials. Inputs were sought
from a wide range of interest groups, fieldwork was continued, and more examples of global best
practices woven in with appropriate adaptations for the Punjab context.
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Chapter V
Urban Development Principles & Concepts
6. This Chapter presents a series of urban best practices and principles applicable to all cities
in Punjab and Pakistan. Then at a more specific level, it presents a series of Sector Development
Strategies applicable to both Sialkot and Sahiwal. These are the “building blocks” for preparation
of the overall City Development Strategies. The Sector Development Strategies are designed to
be applicable to upgrading the existing city; incorporating and formalizing surrounding peri-urban
areas, and planning new expansion areas.
A.
Urban Development Best Practices & Principles
7. Preparation of this Urban Development Strategy is guided by a series of Global Best
Practices, internationally applied Urban Development Principles, a series of typical urban
development processes and appropriate development concepts for the Punjab context.
8. A number of guiding "Best Practices" are currently accepted worldwide as fundamental to
successful and resilient urban development. These apply equally to the urban centers of Punjab
as they strive to achieve their visions of healthy, competitive, inclusive, livable and resilient.
Figure V-1 illustrates some components of a successful city.
Figure V-1: Successful Cities
Source: HABICO
9. Application of the following Guiding Principles will further ensure that Punjab’s cities
achieve their vision. These may also serve as monitoring and evaluation references to
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Chapter V
check that individual planning and development proposals are supportive of individual city’s
goals.
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Cities must be "inclusive" by making appropriate provision for all socio-economic
groups.
Plan preparation must be consultative and participatory involving a full range of
stakeholders.
Plan preparation must integrate planning and development needs across all levels of
government, civil society and the private sector.
Plan preparation must integrate all sectors: social, cultural, economic,
environmental, institutional, financial and physical (land, infrastructure, building).
Planning proposals must be locally appropriate, acceptable, implementable and
affordable.
Planning proposals must recognize the needs of the full spectrum of socio-economic
groups.
Planning proposals must provide for the needs of the full range of both formal and
informal economic sectors.
Planning proposals must encompass consideration of environment, gender,
sustainability and resilience.
There must be a balance between development and nature to protect the health of
all.
There must be a balance between heritage and development;
Development must provide convenient access for all to a full range of economic
opportunities and social amenities;
Planning proposals must recognize that a city needs a “heart and soul" in addition to
roads, pipes and buildings.
Planning proposals should build on the good to take full advantage of existing
strengths.
Maximum use should be made of existing (or rehabilitated) infrastructure in existing
built-up areas before new land is developed. i.e. urban sprawl should be minimized;
Development must be strictly managed in all parts of the Plan Area to eliminate
inefficient land use, destructive invasion and ad hoc expansion;
Elements of a city must be integrated so that the goals of one sector support the
goals of another.
10.
Another set of Principles to be considered that focus more specifically on sustainable and
resilient urban development include: 65
 Sustainability (Resilience): committing to environmental management;
 Accessibility: facilitating ease of movement;
 Diversity: maintaining variety and choice for all;
 Open Space: maintaining natural systems to make cities green;
 Compatibility: maintaining harmony and balance;
 Incentives: to renew and redevelop declining areas;
 Adaptability: able to accommodate change;
 Density: design compact cities with appropriate transit;
 Identity: create and preserve a unique sense of space.
B.
Sustainability and Resilience
11.
Pakistan and Punjab are particularly concerned with developing strongly resilient cities to
address both climate change and economic impacts. This is also one of three main points of
ADB’s Urban Operational Plan 2012-2020. One set of resilience/sustainability goals applying not
only to cities, but nations as a whole is illustrated in Figure V-2.66
65
66
"City Building", Kriken, John Lund, 2010
Urban Gateway
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Chapter V
12.
The UN describes 4 Pillars of Sustainable Cities67 (Figure V-3), all of which have a direct
application to the future of Sialkot and Sahiwal, and the Development Strategies prepared to
support them.
Figure V-2: Sustainable Development Goals
67
UN/DESA, Development Policy and Analysis Division
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Chapter V
Figure V-3: UN Pillars of Sustainable Cities
C.
Urban Development Form & Processes
13.
All urbanizing areas grow in two fundamental ways: densification and expansion.
Sustainable cities grow through a managed combination. Within these two broad categories are
a number of more specific development processes influencing growth and the form of the city.
The following describes examples of common development processes that will be found in
various combinations and proportions in all Growth Strategies. Figure V-4.
Figure V-4: Urban Growth Processes
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Chapter V
The Drivers
14.
Urban areas grow as a result of social and economic demands driven by formal/informal
private sector interests, desirably with public sector support. The benefits of close proximity and
collective synergies are what allow cities to exist and thrive. Trying to keep a balance between
public and private initiatives is the underlying key to efficient, sustainable urban management,
and will clearly be seen as an underlying theme throughout this document.
Upgrading and Rehabilitation
15.
One of the key principles of sustainable urban economics is to make maximum use of
existing investments in infrastructure and serviced lands. This mandates that already serviced
properties be put to best use in order to justify the costs of infrastructure and create the capacity
to pay property taxes and service fees - assuming the required municipal management practices
are in place. Large portions of built up and previously well-serviced areas in both of the Project's
urban centers have been allowed to decline through failure to adequately invest in infrastructure
management and maintenance, or development controls. Along with service decline comes a
decline in the quality of development on the adjacent properties with accompanying challenges to
the overall health, safety and economic well-being of residents.
16.
In general, upgrading and rehabilitation is the most cost-effective way of improving urban
social, economic, physical and environmental conditions. However, for many under-resourced
local and provincial government agencies, and for many funding agencies, rehabilitation is
considered too complex to coordinate and not politically attractive enough to be a priority. New,
easier, more visible, but typically more expensive ‘green field’ developments are chosen instead.
Redevelopment and Regeneration
17.
Redevelopment may apply to individual property improvements, i.e. buildings, or to whole
sections of a city including infrastructure, public spaces and buildings. In many situations
throughout the Project's urban centers poorly constructed, dilapidated, under-utilized, incomplete
or abandoned structures occupy otherwise well-serviced and potentially productive sites. These
structures represent poor use of infrastructure investments, may be health or safety hazards,
reduce the vitality of a community and are generally an impediment to efficient and sustainable
urban growth. There are numerous reasons for the abundant number of these structures
including limited owner resources, limited access to development finance, weak land
management and development control, and lack of property tax motivation. However, putting in
place mechanisms to encourage the redevelopment of underutilized sites either for their original
purpose or something more appropriate in current conditions is essential to affordable and
sustainable urban development. The more holistic regeneration of sections of the city will
enhance city revenue potential and improve residents’ quality of life.
Infill
18.
Returning to the fundamental principle that economically efficient urban development
must make maximum use of existing infrastructure investments, it is imperative that serviced
urban lands be put to the most productive use. Many sites sit vacant in all parts of all the
Project's urban centers. The reasons are varied and include traditional cultural values.
19.
Urban areas cannot afford to support empty land while forcing new developments to
spread outwards with the associated infrastructure costs, inconvenience and environmental
impacts. An overview look at both Sialkot and Sahiwal (without detailed calculation) suggest
that much of projected urban population growth in the two over the next 15-20 years could quite
easily be accommodated within the current built-up boundaries if vacant or underdeveloped
lands were fully utilized.
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Chapter V
Densification and Floor Area Ratio (FAR)
20.
Densification simply refers to maximizing the use of existing land and infrastructure by
increasing the resident or working population in a given area. This inevitably means more
building and vertical building, and is tied to the infill, redevelopment and regeneration methods
discussed above. The economics of densification are based on making the best and maximum
use of a given piece of land and its supporting infrastructure. Densification is controlled at a
planning level through allowable FAR, which also limits building heights. A FAR of 1.0 on a site of
1,000m2 allows construction of a total floor area of 1,000m2, which may be divided, over a
number of floors depending on height restrictions. Allowable FAR obviously affects the value of
the land as it controls an investor’s potential return. Increasing allowable FAR is a tool to promote
urban density, increase property values, investor returns and potential tax revenue. Properly
managed densification also contributes to the viability and vitality of urban life, infrastructure,
services and other commercial activities. Restrictions of FAR lead to sprawl as development
must go out rather than up. FARs in Punjab cities are currently very low and vertical living is not
yet part of the culture, but a review of current policies is needed.
Expansion
21.
Regardless of the amount of rehabilitation and infilling, there will always be legitimate
requirements for some amount of urban expansion. At some point population growth will exceed
the amount of developable land within the current built-up area, or new opportunities not
anticipated in previous planning and appropriate for expansion lands will emerge. Typically,
expansion should either be contiguous with existing built-up areas, infrastructure and services for
economic sustainability, minimized new transportation needs, etc. or clearly defined and well
planned satellite development. Random sprawl must be avoided. Long-term planning for urban
development must take this into account by exerting some level of control over a broad adjacent
‘Planning Area’ to ensure that ad hoc development does not preclude orderly expansion and
economic servicing when the need arises. The current situation in both Sialkot and Sahiwal is
one of ad hoc sprawl, which is going to present difficulties for future managed, competitive and
resilient growth.
Satellite
22.
Satellite development refers to going outside of an existing built-up urban area, skipping
over an area of undeveloped or underdeveloped land, and establishing a new development
node. This may be functionally specific as in the development of an industrial satellite, or it may
take the form of a ‘New Town’ comprising the full range of social and economic amenities
required by the new local population. The concept of "satellite" developments is sometimes
perceived as a solution to the problems of existing built-up areas and the complexities of trying to
rehabilitate them: ignore past mistakes or inefficiencies and attempt to start over again. However,
it is typically far more economically viable to rehabilitate than it is to start over again.
23.
The urban centers of Punjab are already seriously lacking in municipal resources to
maintain existing infrastructure and services. Developing a new satellite means full new
investment in complete infrastructure, housing, and social and economic amenities - something
that Punjab is ill prepared to afford at the moment. However, new capital expenditures and their
related large-scale contract opportunities are typically, and unfortunately, more attractive to
decision makers than rehabilitation and maintenance expenditures. In other instances, there may
be a particular economic opportunity that lies outside of the main urban area and development of
a supporting satellite makes sense. This is certainly the case with desired industrial development
and improvements in both Sialkot and Sahiwal. These are discussed under their respective
Development Strategies.
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Chapter V
Consolidation
24.
This term applies to the combination of upgrading, rehabilitation, infilling and
redevelopment. Collectively it is typically the most socially, economically and environmentally
viable first approach to addressing the needs of an urban area. Consequently, consolidation
features prominently in the Cities Development Concepts and Strategies.
D.
Two Elements of Urban Development
25.
Urban development includes the two elements of "software" and "hardware" which must
be carefully integrated.
Software
26.
Software - refers to the institutional components: governance at all levels, management,
administration, political will, legal, regulatory, and community involvement. These are the most
important but difficult components of sustainable and resilient urban development to establish
efficiently and maintain. Consequently, they are often the most ignored and the most easily
abused.
Hardware
27.
Hardware - includes the physical components such as roads, water supply, sanitation
systems, power supply, drainage channels and buildings. These are essential capital expenditure
items, the most common requests and usually the focus of urban development. These cost a lot
and require constant management and maintenance to protect the investments and ensure
continued benefit to the community. These are also the easy parts and the ones most politically
attractive.
28.
The Development Strategies presented here illustrate more of the hardware, but stress
the fact that without fully established, institutionalized, trained, dedicated and adequately
resourced institutional components, the hardware elements will fail to deliver the desired social
and economic benefits.
E.
Urban Development Components
29.
Figure III-2 in Chapter I above illustrates the major integrated components comprising a
city. To develop a resilient, competitive and inclusive city all must be developed and mutually
support one another. The “glue” to hold these together is institutional capacity and political will,
while the process is based on participation. Strategies for developing and integrating these
sectors are presented in Chapter V.
F.
Urban Development Project Cycle
30.
Every project or program, including those proposed by PICIIP, requires attention to the 3
stages of Plan, Implement and Manage. Figure V-6. The “Manage” stage includes ongoing
monitoring and evaluation, which identifies beneficial modifications and puts the process back
into the Plan stage for improvement before continuing to implement. Too many urban projects
are considered and funded only through the first two stages. The result is a rapid depreciation of
capital assets through lack of maintenance, and/or continuation of projects/programs that are not
being successful. Resilience, inclusiveness and competitiveness are threatened. Adequate
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Chapter V
attention, resources and political will are essential for all stages. As stressed throughout,
institutional strength and institutionalization of processes is the key. The next section discusses
Urban Management.
Figure V-6: Urban Project Cycle
G.
Urban Planning, Institutions & Management
31.
The urban institutional structures, capacities and processes, as stressed throughout the
PICIIP, are the keys to successful cities. This Chapter reviews the current Institutional Structure
identifying issues and opportunities; discusses “governance” at both formal and informal levels;
pays specific attention to Land Management recognizing that land is the foundation for urban
development; and presents some suggested revised structures for institutionalizing urban
management consistent with the proposed paradigm shift to an Integrated City Development
Strategic approach.
H.
Governance
32.
Governance of a city happens at a range of levels, formal and informal (Figure V-7). All
must be considered if the city is going to respond inclusively to its full set of needs. The stress on
“participation” during the planning and development process is a reflection of this.
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I.
Institutional Development – A Tool to
Gain Competitive Advantage
Chapter V
Figure V-7: Urban Structure
& Governance
33.
The institutional situation is directly linked with City
Competitiveness and ‘ease of doing business’.
34.
Investors desire a location with a clear, transparent,
consistent,
predictable,
regulatory
and
approvals
environment. That currently does not exist in Punjab’s cities.
There is also a need to tie functioning Institutions to
sustainable urban management: full and sustainable tax and
user fee collection, budgets based on reality and actually
used/managed as planned – that would set the base for both
city and private sector growth.
35.
It is therefore important to address the issue of
institutionalizing the ICDS and finding a ‘home’ to entrench
the ICDS into the province’s and cities’ planning/
development processes. Efficient integrated planning and
development has not been occurring and the CDS is
suggesting “go forward” improvements. These will take
place within existing (or revised) legislative instruments
including:
Local Government Ordinance - 2001
36.
Past performance of TMAs across the country has
not been satisfactory. Headed by an elected Nazim
(presently appointed Administrators in absence of elected
House), under whom are a Tehsil Municipal Officer, and four
Tehsil Officers: an Engineer, Urban Planner, Finance Officer
and Regulations Officer 68 , and the staff below them. The
existing, typical city TMA Organization Chart is presented in
a simplified form in Chapter I (Figure III-15) and illustrates
four departments that tend to work in isolation with little
interaction or coordination. In the present set-up, there is no
centralized Planning & Coordination Department, nor any
monitoring and evaluation system to support a paradigm
shift to Integrated Strategic Planning.
37.
Many of the provincial functions have been devolved to local level. However, a crucial
deficiency is the lack of capacity of TMAs to carry out these functions. The Government is
reverting back to Pre-2001 Local Government System under Local Government Ordinance 2013,
which is closer to Local Government Ordinance of 1979.
Punjab Local Government Act 2013
38.
The Provincial Government intends to establish an elected local government system to
devolve political, administrative and financial responsibility and authority to the elected
representatives of the local governments. This in turn should promote good governance, effective
delivery of services and transparent decision-making through institutionalized participation of the
68
Their official designations in the same order are Tehsil Officer Infrastructure, Planning & Coordination, Finance
and Regulations.
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Chapter V
people at local level; and, to deal with ancillary matters. The municipal institutions under the Act
have not yet been established and the old system continues.
39.
The ‘municipal services’ to be provided under this act include urban planning and
development control, all intra-city infrastructure networks, fire-fighting, roads, bridges and
pedestrian ways. Parks and public green spaces are also municipal responsibilities.
40.
Districts are divided into urban area and rural areas in the following categories:
 Metropolitan Corporation
 Municipal Corporation (Population more than 500,000)69
 Municipal Committee (Population 30,000 to 500,000)
 District Council for the rural area of a District
41.
Some functions may be further devolved to Union Councils for improved and efficient
service delivery to the citizens. Similarly, a local government may assign any of its functions to a
public or private organization or enter into public-private partnership for efficient performance of
any of its functions.
42.
Of particular importance to the adoption and implementation of the strategic CDS
approach to city management is the need to formally and consistently coordinate plans between
the various levels.
43.
Detailed responsibilities of the various local bodies are contained in the Local
Government Act 2013 and need not be repeated here. A summary of their potential roles,
responsibilities, and integration into the ICDS process is presented in Table V-8. Responsibilities
in the structure of local bodies under the Local Government Act 2013 is discussed below:
Table V-8: Municipal Governance & the ICDS Approach
Union
Councils
Relation to
ICDS
Municipal
Committees
Relation to
ICDS
Community
ICDS Process mobilization for IEC Unit
maintenance of
UC level
Infrastructure.
Prepare spatial
plans for the
local
government,
ICDS Process – Approve spatial ICDS Process –
Land use cell
plans, master
Physical
plans, zoning,
Planning Unit
land use plans
tree plantation
& landscaping
execute and
manage
development
plans;
ICDS Process – environment
Planning &
control,
Development
environment,
Cell
ICDS Process Environmental
Management
Unit.
ICDS Process – urban design,
Development
urban renewal
Control Unit
ICDS Process –
Physical
Planning Unit
Management
Unit.
Prevention/rem ICDS Process – exercise land
oval of
Development
use and zoning
encroachments Control Unit.
control
provide and
maintain rural
water
supply/sources
of drinking
water in
coordination
69
ICDS ProcessInfrastructure
Services Cell
Municipal
Corporations
Provide/maintai ICDS Process – ecological
n public open
Physical
balances;
spaces,
Planning Cell
graveyards,
public gardens
and
playgrounds;
Relation to
ICDS
Environmental
Management
Unit.
At divisional headquarter, an urban area having a population less than five hundred thousand to be a Municipal
Corporation, and an urban area having a population less than thirty thousand to be a Municipal Committee.
Page 141
Union
Councils
Chapter V
Relation to
ICDS
Municipal
Committees
Relation to
ICDS
Municipal
Corporations
Relation to
ICDS
Arrange for
registration of
births, deaths,
marriages and
divorces
ICDS Process Social services
for public health
and welfare.
enforce all
municipal laws,
rules and byelaws regulating
its functioning;
ICDS Process – implement rules ICDS Process –
Magistrate,
and bye-laws
Physical
Legal aspects. governing land Planning Unit
use, housing,
markets,
zoning,
support relief
measures in the
event of
emergencies/
natural
calamities.
for public health
and welfare.
regulate affixing Development
of sign-boards
Control Unit
and
advertisements;
identify
deficiencies in
delivery of
services
ICDS Process – provide,
Infrastructure
manage,
Services Cell.
operate,
maintain and
improve the
municipal
infrastructure
and services
with community
organizations,
Entire City
Administration
Execute
ICDS Process –
development
IEC Unit
works in the
prescribed
manner; and
maintain such
statistics and
data as may be
prescribed and
disseminate
information on
matters of
public interest.
prepare budget,
approve taxes
and fees;
manage
properties,
assets financial
statements and
present them
for internal and
external audit in
the manner as
may be
prescribed;
Planning &
Development
Unit,
Finance &
Taxation
ICDS Process – prevent and
ICDS Process –
Infrastructure
remove
Development
Services Cell
encroachments; Control Unit.
regulate affixing
of sign-boards
and
advertisement
firefighting;
parks, play
grounds, open
spaces and
arboriculture;
slaughterhouse
s;
ICDS Process – provide,
Physical
manage,
Planning Cell.
operate,
maintain and
improve the
municipal
infrastructure
and services,
ICDS Process –
Infrastructure
Services Cell
prevent and
remove
encroachments
ICDS Process – environmental
Development
control, urban
Control Cell
design and
urban renewal
programs;
Management
Unit.
prepare budget
and long term
municipal
development
programs
ICDS Process –
Planning &
Development
Cell
Management
Unit.
maintain a
comprehensive
ICDS Process GIS Section
conserve
historical and
cultural assets;
undertake
landscape,
Page 142
Union
Councils
Relation to
ICDS
Chapter V
Municipal
Committees
Relation to
ICDS
Municipal
Corporations
Relation to
ICDS
data base and
information
system
under Physical
Planning Cell
approve taxes
and fees; collect
approved taxes,
fees, rates,
rents, tolls,
charges, fines
and penalties;
ICDS Process –
Financial
management &
taxation
establish and
maintain
regional
markets and
commercial
centers;
ICDS Process –
Planning &
Development
Cell in
coordination
with District
Government.
manage
properties,
assets and
funds vested in
the local
government;
ICDS Process – maintain a
Financial
comprehensive
management & data base;
taxation
ICDS Process –
GIS under
Physical
Planning Unit
develop and
manage
schemes,
including site
development;
ICDS Process – infrastructure
Physical
and public
Planning Cell
utilities;
ICDS Process –
Infrastructure
Services Cell
maintain
municipal
records and
archives;
ICDS Process –
GIS under
Physical
Planning Unit
conserve
historical and
cultural assets;
Management
Unit.
assist in the
provision of
relief in
emergencies/
natural
calamities,
for public health
and welfare.
exercise control ICDS Process –
over land-use, Physical
landPlanning Unit
subdivision,
land
development
and zoning
Entire City
Administration
prepare
ICDS Process –
financial
Finance &
statements and taxation
present them for
internal and
external audit in
the prescribed
manner.
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J.
Chapter V
Cascaded Urban Planning
The – integrated - part of ICDS also includes setting an individual city plan within the context of a
hierarchy of cascading plans. Plans cannot operate in isolation, but must be informed by policies
and plans at both higher and lower levels. Figure III-3 illustrates the cascading planning context
within which the Sialkot and Sahiwal ICDSs and subsequent PICIIP project investment plans are
set. Plans must be consistent with those above, and experience gained below must be fed back
up the hierarchy to make appropriate revisions as conditions change. Failure to institutionalize
the process results in the ad hoc approach to development that dominates at present. The
process of preparing, operationalizing and enforcing a cascaded planning regime is a critical
institutional requirement that cannot be over-emphasized for the successful achievement of
PICIIP’s desired outcomes.
Figure V-9: Cascaded Urban Planning
K.
How is ICDS Integrated and Institutionalized?
44.
ICDS sits under the umbrella of two Departments:
i)
Department of Local Government, which is ICDS’s ‘Policy Home’, and
Page 144
ii)
Chapter V
Department of Planning & Development, (Urban Unit), which is ICDS’s ‘Technical
Implementation Home’.
The ‘Operational Home’ of ICDS is in the cities with an important need to integrate
planning and development with their respective Districts (Figure V-10).
Figure V-10 Integrating ICDS
L.
Proposed ICDS Municipal Management Structure
45.
The afore mentioned process must be translated down to the District and City levels with
City-level detailed suggestions for re-structuring presented in Figure V-11.
46.
At present the Local Government Ordinance 2001 in force is soon to be replaced by the
Local Government Ordinance of 2013. This is an opportunity to introduce further CDS-supportive
amendments.
47.
The Provincial Government has established three transition teams (Provincial, Divisional
and District) to guide the transition of local governments to the new proposed one (Metropolitan
Corporation, Municipal Corporation, Municipal Committee, District Government etc.)
48.
The transition teams have representation from a full cross-section of different provincial
departments. These teams will:



finalize the new administration setup,
finalize organizational chart for local governments,
establish parameters for distribution of assets and liabilities amongst successor local
governments,
Page 145

Chapter V
finalize the parameters for the deployment plan for the adjustment/ distribution of
existing employees in local governments, and employees of health and education
department in the authorities.
49.
The existing municipal management structure is not conducive to a policy driven,
integrated, strategic development approach to urban development. The current structure results
in ad hoc activities without the coordination vehicles in place. This is an opportune time to
introduce suggested restructuring to achieve those goals while transitional plans are being made.
50.
Figure III-5 illustrates a proposed municipal structure that will support a strategic and
integrated planning and development approach. The necessary umbrella structure is suggested
to promote integration and inclusive thinking. The proposed Planning and Development unit,
something that is missing in the current structure, will have the major technical coordinating role.
Three other new key units are being introduced: A Strategy and Policy Unit; a Communications
unit to develop and implement a robust IEC (Information, Education and Communication)
program within government agencies, key decision makers and the general public promoting
participation; and an Economic Development Unit to serve as a city promotional unit as well as a
one-stop-shop for interested investors.
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Chapter V
Figure V-11: Proposed ICDS City Management Structure
Page 147
M.
Chapter V
Union Councils and Mahallah Level Governance:
51.
In urban areas, Union Councils comprise of Mahallah or wards. There are formal wards
at Union Council level, but there can also be informal community based organizations to address
local issues. These informal Mahallah level organizations are an important part of city
governance. Community leaders, be they Masjid Imams, school teachers, retired soldiers etc. are
important, and for many people may be more relevant and part of daily life than formal city
government is. Detailed functions of the Union Council are given in the Local Government Act of
2013.
N.
Land Management
52.
Land is the physical foundation for urban development and managing it requires
consideration of a complex mix of hard and soft factors (Figure V-12). It is largely the
deficiencies in institutional capacity to deal holistically with land management that has led to the
root problem of urban sprawl facing both cities now. As institutional capacity building proceeds,
considerable attention will be required on land as a starting point.
O.
Participatory Budgeting
53.
Participatory budgeting is a process of democratic deliberation and decision-making, in
which ordinary people decide how to allocate part of a municipal or public budget. Participatory
budgeting allows citizens to identify, discuss, and prioritize public spending projects, and gives
them the power to make real decisions about how money is spent. If Participatory budgeting is
taken seriously and is based on mutual trust, local governments and citizens can benefit equally.
It may even raise people's willingness to pay taxes. Participatory budgeting generally involves
several basic steps: (1) Community members identify spending priorities and select budget
delegates (2) Budget delegates develop specific spending proposals with help from experts (3)
Community members vote on which proposals to fund (4) The city or institution implements the
top proposals.
54.
The purpose of institutional reforms under PICIIP-ICDS is to strengthen local city
governments. This will be achieved through (1) enhanced and gender sensitive enabling
environment for local governments and citizen participation; (2) more effective, inclusive,
responsive and equitable local government decision-making and resource use and management;
and (3) improved, accessible, accountable and sustainable service delivery at the local level.
55.
In Local Governments there has always been a deficiency in developing, implementing
and sustaining an effective planning and management system. Most of the development planning
and decision-making is based on how much development funding these governments receive
from the provincial government. More often than not, the annual budget allocations set the
direction for development schemes without due consideration of citizen needs and priorities. At
present (and in the past) resources available to the local government are not allocated as to
where and how to spend. As a result, all local governments (regardless of their fiscal resources)
are at loss when it comes to the development needs of the area, and funds are utilized in a
manner that does not always correspond to citizen needs. This will change under an ICDS
process.
Page 148
Chapter V
Figure V-12: Land Management
Source: HABICO, Inclusive Cities, India, ADB
Page 149
P.
Chapter V
Participatory Budgeting and ICDS – A Policy Framework
56.
The City Chairman should invite City Council members (who are also chairmen of the
Union Councils falling in the city jurisdiction) to submit proposals for development initiatives for
their respective UCs. These proposals should be based on discussions with residents in their
respective Union Councils. The list of proposed initiatives should then be forwarded to the City
for compilation before submitting to the City Council for consideration, and inclusion in the
Annual Development Plan of the City. At all stages the public must be encouraged and enabled
to transparently follow the process. An important part of the review and approval process will be
relating proposals back to the overall direction of the ICDS to ensure they are contributing in an
integrated and forward manner.
Q.
Sustainability & Urban Revenue Generation
57.
Urban areas have significant unexploited potential to enhance their sustainability through
better revenue generation. In most cases, potential sources of revenue have not been effectively
tapped. In general, revenue collection needs to be more effective at the local level where the
potential sources of revenue are better known. Taxpayers are also more willing to pay taxes if
the utilization of their money is obvious to them, and the public entities managing such tax
revenue are within their reach in terms of political supervision and control. Decentralized
management of public funds creates an opportunity not only for increasing total revenue, but also
for spending these funds more wisely, inclusively and effectively, including benefit to the
disadvantaged groups. This, however, requires adequate systems of checks and balances to be
institutionalized.
58.
The current sources of revenue include property taxes, land use change/registration fees,
signage & hoarding, building permits and service user charges. The main source of revenue
should be property taxes. However, these are nominal at present, not applicable in rural areas
and are currently politically difficult to levy at the rate required for sustainable urban growth and
management. Addressing this issue is likely the key to on-going resilient and competitive growth.
Contributions from other sources as listed above are not significant, but have the potential to be
increased subject to political will. Property Tax is administered under the Urban Immovable
Property Tax Act of 1958. However, rates and processes require an overview and updating to be
more robust and reflective of the increased urban requirements.
Sector Concepts & Strategies
59.
A city is the composite of a series of sectors as discussed above. Each have their own
physical as well as institutional needs, and each must consider integration with the others. The
following presents a schematic series of Sector Strategies applicable to the typical, largely
residential, UC and Mahallah in any Punjab city. Inner city business core UCs are slightly
different and are discussed under the respective city strategies. The Mahallah level is not a
notified planning level, but is selected for these strategies because it is the urban level that
residents live in and most closely relate to. If Mahallah concepts align with people’s needs and
aspirations, the resulting higher-level official plans will also. The Mahallah-level Sector Strategies
also go beyond purely government responsibilities and address those aspects of urban
development and management that should really be the responsibility of individuals, their
communities or the private sector.
Page 150
R.
Chapter V
Basic Urban Structure
60.
Officially, Punjab cities comprise a series of administrative Urban Council Units.
However, the real life of the city takes place within the cultural norm of “Mahallah” neighborhoods. These are where people live, interact, do much of their shopping, play and
possibly work. They take all sorts of physical forms but are typically centered on the mosque with
some nearby commercial areas, a community hall, a school, perhaps a health facility, and in the
fortunate ones, some recreation space. The Strategies developed for Sialkot and Sahiwal use
the Mahallah as the building block, while knowing that they are comprised of neighbors and
families, and in turn make use of UCs and Tehsils. A strong sense of “community” is the key to
development, and paying attention to community-level needs is fundamental to building a
resilient city (Figure V-13)
Figure V-13: Conceptual UC - Mahallah Structure - The Base
Page 151
S.
Chapter V
Mobility (Transport) Strategy
61.
The ease of movement of people and goods - mobility - is key to social and economic
development. The infrastructure supporting mobility is also typically the main physical framework
of a city. Inclusive and competitive cities must acknowledge and accommodate a variety of
mobility/transport modes: motorized and non-motorized. Sialkot and Sahiwal are, for the most
part, struggling to manage the full range of transport modes, with the motor vehicle dominating
and pedestrians relegated to whatever space they can find.
62.
Figure V-14 schematically illustrates an inclusive Mobility Strategy providing segregated
spaces for motor vehicles, public transit, non-motorized vehicles and pedestrians in a network
that provides easy inclusive access to the social and economic amenities that citizens need.
Details of how this can be physically accomplished by “managing the street space” are
conceptually illustrated in the next Chapter.
Figure V-14: Mobility Strategy
T.
Green Public Space Strategy
63.
Public green spaces serve a number of critical functions within a city, but are often
sacrificed due to a municipal government’s inability to dedicate the resources in the face of other
priority needs such as water supply. Without a strong sense of community, or in the absence of
development control, public awareness and other supporting services, intended open green
spaces tend to become dumping grounds or are encroached on for other purposes. However, a
good network of open green spaces can serve as healthy community meeting spaces, add to the
“lungs” of the city with vegetation, can play important functions in storm water management and
generally contribute to a more livable city. Figure V-15 illustrates a Green Space Strategy that
Page 152
Chapter V
also integrates with the Mobility Strategy. The creation and retention of public green spaces
needs to start with physical planning and be valued by residents. They can also be a good PPP
opportunity for private sector entities to adopt and maintain in exchange for some advertising
rights.
Figure V-15: Open Green Space Strategy
U.
Social Development Strategy
64.
Social Development is the underlying reason for focusing attention on city development.
All other strategies are aiming to support this. Very specifically, the Social Development Strategy
is concerned with key elements of community, housing, health, education and recreation. At the
physical planning and development level this first requires provision of space for the desired
facilities. Mahallah Centers either need to be planned in new parts of the city or created within
existing parts of the city to serve as the social hubs. The mosque is central for most. Related and
nearby should be space for other Mahallah meetings, a primary school, local health facility and
recreation space. The Mahallah Centers support stakeholder participation in the affairs of the
city, support inclusion of all members of society, serve as both formal and informal IEC
(Information, Education, Communication) centers. Figure V-16.
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Chapter V
65.
Housing - safe, healthy, affordable, appropriate - is perhaps the first social need for a
family and may be considered a basic human need and right. Housing and its related
infrastructure typically cover 60-70% of a city’s built-up footprint and is one of a city’s major
challenges. It is housing that is largely responsible for the uncontrolled sprawl that presents
Sialkot and Sahiwal with their most challenging issue. Housing must be inclusive and serve a fullrange of socio-economic needs. The housing component of the Social Development Strategy
calls for providing a range of densities and housing typologies to reduce sprawl, provide options,
focus development around infrastructure for more efficiency, reduce travel distances and
generally put cities into more sustainable and resilient positions. Higher density housing
development/redevelopment is proposed around major transportation corridors and hubs, around
major economic, employment centers, and at a smaller scale close to Mahallah Centers.
66.
At the present time, the provision of health and education services is a District
responsibility, but space must be logically provided through city-level planning. It is also
suggested that basic Public Health services become part of a city’s responsibilities providing
Mahallah-level health education and awareness, and perhaps special local services for children,
the elderly and other vulnerable groups who are not mobile.
Figure V-16: Social Development Strategy
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V.
Chapter V
Economic Development Strategy
67.
The Mahallah-UC level Economic Development Strategy is aimed at two inter-related
dimensions:
1. supporting the local everyday needs of residents, including employment and access to
goods and services; and
2. promoting the city’s level of competitiveness within the province, the country and
international markets.
Being “competitive” revolves around creating an attractive “ease-of-doing-business” environment.
The quality of that environment is determined by both the quality of physical infrastructure, land
available, and the ease, efficiency, completeness and transparency of institutional elements
including legal and regulatory, taxation, physical planning, development approvals, and security.
Pakistan ranks 128th out of 189 surveyed countries in 201570 so individual cities are starting from
a challenging position. On the positive side, of the 13 Pakistan cities surveyed, the top 3 were all
in Punjab: Lahore, Faisalabad and Multan, although Sialkot ranked 11th. Sahiwal was not
surveyed. City-level Economic Development Strategies are discussed in Chapter V.
68.
Figure V-17 conceptually illustrates a Mahallah-level Economic Development Strategy.
The guiding principle is that formal spatial and service provision must be made for both the
formal and informal economic sectors. Traditional urban planning, and decision making, typically
ignores the inform sector considering street vendors and hawkers as inconvenient intrusions in
the city. However, the reality is that 70% of Sialkot’s and 76% of Sahiwal’s employment is in the
informal sector71. Although no statistics are available, it is likely that an even greater percentage
of the cities’ total economy rests in the informal sector with 100% of the population somehow
involved. From an urban planning perspective at the Mahallah-UC level, the Economic
Development Strategy includes:




69.
70
71
Convenient access to employment opportunities, goods and services at city,
Tehsil, District, Mahallah and home levels is fundamental.
Formal, appropriately serviced urban space for the informal economic sector is
required to both support their livelihoods and reduce the street congestion
caused by not having a space to operate close to their market. Many cities have
attempted to relocate the informal sector to remote locations, which never work. It
breaks the proximity link between provider and customer and would deprive
vendors of their livelihood if they accepted the move. However, they cannot afford
to accept relocation and are typically soon found back in their original, carefully
assessed location. The solution is not relocation, but acceptance and
management.
Infrastructure and services as discussed in other strategies are obviously
essential support for economic activity and all should be aiming at affordable 24/7
services.
Transparent and equitable preparation and institutionalized application of
regulations, licensing and inspection services are essential for both formal and
informal sectors. The informal vendor’s licensing process should not consist of
paying the local policeman on a daily basis.
A discussion of the city-level Economic Development Strategy is presented in Chapter 5.
World Bank Ease-of-Doing Business Survey, 2015
Punjab Development Statistics 2014
Page 155
Chapter V
Figure V-17: Economic Development Strategy
70.
There are several wholesale and retail levels in the informal sector supply chain. Each
one needs urban space, good connectivity (Mobility) and varying levels of supporting services.
Figure V-18.
71.
Managing and providing for the informal sector is also key to improved Mobility. Much of
the current street congestion in Punjab’s intermediate cities is due to conflicts between traffic and
vendors who have no other space in which to operate. The provision of formal space for informal
economic activity will help both. Figure V-19 is a schematic of how this space can be created
while also providing enhanced public space.
W.
Water Supply Strategy
72.
The proposed UC and Mahallah level Water Supply Strategy is based on the overall goal
of delivering 24/7 safe and healthy water. It also takes guidance from the existing system and
system improvements being proposed by the overall PICIIP program with the further addition of
longer-term climate-change resilience components.
73.
The existing water supply system is already locally based on a series of tube wells and
overhead reservoirs rather than relying on one large water treatment facility and major trunk main
distribution. The locally based system lends itself well to a more sustainable, resilient and
affordable water supply that integrates nicely into the UC-Mahallah base for other proposed
sector strategies. It has the flexibility to expand or be rehabilitated without worry about a single
main supply facility.
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Chapter V
Figure V-18: Informal Sector Hierarchy
Figure V-19: Providing Space for the Informal Sector
Source: HABICO
Page 157
Chapter V
74.
The main concern is the climate change impact on the water source as Himalayan and
Karakorum glaciers melt, rivers become less reliable and aquifers drop. This is projected to be
accompanied by increasingly severe and unpredictable storm events. These will present a
flooding and damage threat, but should also be considered an opportunity to harness a new
water source as a resilience response. For this, the Water Supply Strategy encourages the
introduction of rainwater harvesting. Demonstrating and promoting the potential should be led by
the public sector with installations made on public buildings, and encouraged for individual
households. Sialkot and Sahiwal both have a dynamic private sector that is already responding
to environmental standards required by international customers and are another excellent
demonstration point. Public demonstrations of rainwater harvesting could be integrated into the
suggested PPP Green Space initiatives helping to re-charge aquifers. Mahallah Centre rainwater
harvesting should be the starting point as they will be visible to all, are of a manageable scale
and can demonstrate benefits for mosques, schools, green spaces, commercial facilities, with
excess going to aquifer re-charge. Figure V-20 illustrates the integration of both approaches.
Integral to sustainable water supply and the cities’ climate change resilience response is public
awareness and education. This is partly why a Communications Department is proposed within
the new City Management Structure, and why Public Health initiatives are proposed to be added
to city responsibilities.
Figure V-20 Water Supply Strategy
Page 158
X.
Chapter V
Sanitation & Sewerage Strategy
75.
The main Strategy point is that cities must start to fully treat their sewage and industrial
effluents before disposing of them into water bodies or allowing them to percolate back into
underground aquifers. The existing high level of pollution being directly discharged into the
environment is unacceptable and unsustainable. The proposed Sanitation and Sewage Strategy
follows the current smaller locally based treatment facility approach, as opposed to a shift to one
large central system (Figure V-20). The city-specific ICDS (Chapter V) creates special Industrial
Parks where industrial and domestic effluent can be separately treated, as is currently the case.
The benefits of smaller, local systems include ease of expansion by adding small systems as
new Mahallah/UCs are developed. This would be less costly, and easier to devolve
maintenance/management responsibilities. Technical details of what is required in terms of
system upgrading, replacement or expansion are covered in the accompanying PFS Report.
76.
In order to integrate this infrastructure component into the overall ICDS approach to
planning and development, it is proposed that the city develop a Public Health Department with
Mahallah-level offices. Its role would be to to promote good health, hygiene, awareness of using
and maintenance of the sanitation and drainage infrastructure, and addressing health aspects of
water use and solid waste management systems. This can be done through the schools and
special community events.
Figure V-20: Sanitation & Sewage Strategy
Page 159
Y.
Chapter V
Drainage Strategy
77.
Much of the flooding occurring in urban areas is the result of degraded or non-existent
storm water drainage systems. The infrastructure itself has been allowed to deteriorate or be
modified by adjacent property owners, who through a lack of awareness or other SWM options,
use drains as garbage dumps. Both hard and soft components of the issue need to be
addressed. At the same time, there are opportunities to transform storm water from a problem to
an opportunity by introducing storm water retention/management ponds throughout the city.
These can be used for small-scale irrigation at the Mahallah level to reduce consumption of
treated water, and/or as contributions to aquifer re-charging.
Z.
Solid Waste Management Strategy
78.
The absence of efficient and effective SWM systems in these intermediate cities has
negative health, environmental, social and economic impacts. Addressing SWM is a priority and
one that can be accomplished relatively quickly at a reasonable cost. An appropriate hierarchy of
waste collection steps fits very nicely into the Mahallah/UC structure used as the ICDS building
block. The existing narrow streets in many locales do not permit large vehicle entry so smallscale, perhaps private operators are required to gather solid waste to central points for truck
collection (Figure V-21). This also provides opportunities for separation at source or at the
Mahallah collection points for re-cycling. Re-cycling is already extensively practiced by the
informal sector, but significant revenue potential is being lost by not formalizing the processes at
Mahallah, UC or City levels. Re-cycle revenue could do a lot to support Mahallah-level social
facilities and activities. Technical details are presented in the accompanying PFS Report.
AA.
Resilience Strategy
79.
At the Mahallah-UC level, increasing resilience to climate change starts with a robust
program of public awareness and support from local political leaders. The concept of increasing
the prominence of social facilities at Mahalla centers is directly related to improving Mahallah
residents’ interaction and communication.
80.
At the technical level, increased resilience depends on implementing the coordinated
combination of the various small initiatives outlined under each sector. In turn, these must, of
course, be integrated into the overall city-level components of the same sectors.
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Chapter V
Figure V-21: SWM Strategy
BB.
Expanding the City - New Mahallah
81.
At some point the city will have to consider formal expansion. Advance planning is
essential to prevent the continued ad hoc development that characterizes the cities today. When
all of the principles, concepts and sector strategies are combined from the beginning it will be
much easier to develop inclusive, resilient, livable, and competitive Mahallahs. Figure V-22 is a
conceptual example with size based on easy walking distance to all facilities.
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Chapter V
Figure V-22: Conceptual Example of a New Mahallah
Source: HABICO
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Chapter V
Sialkot Urban Development Strategy - Context
82.
Sialkot’s existing situation and its role as a leading industrial export city in Punjab,
Pakistan is presented in the accompanying Sialkot Rapid Urban Assessment. The following
Summary presents highlights upon which the proposed ICDS for Sialkot is based. It should be
kept in mind throughout, that overall guidance in the preparation of this Strategy is drawn from
the main principles stressed in Punjab’s Urban Development Sector Plan 2018 of supporting
cities to be “engines of growth” based on being “dense” and “agglomerate”.
CC.
Summary Sialkot SWOT Analysis
83.
Table V-23 presents a summary SWOT analysis resulting from fieldwork and stakeholder
participation sessions held in Sialkot. Other details are presented in the accompanying Rapid
Urban Assessment Report for Sialkot.
Table V-23: Summary SWOT Analysis - Sialkot
Strengths
Weaknesses
Opportunities
Threats
Historically strong and
unique exportoriented private
sector.
Traditional industry
based on low-cost,
highly skilled manual
labor that is in decline.
Well-established
industrial base.
Underdeveloped
municipal
infrastructure: water
supply, power,
drainage, sanitation
and public transport
restricts
competiveness.
Sprawling, unplanned
urban growth hindering
efficient infrastructure
provision,
unsustainable landuses and loss of
agriculture.
Limited urban planning,
development and
management, reduces
institutional capacity at
city level.
Develop a model of
public-private
collaboration for
sustainable urban
development.
Demonstrate proactive, integrated
climate change impact
resilience mitigation
measures as a model
for Pakistan.
Loss of
competiveness to
other international
producers as hi-tech
replaces manual skills.
Climate change
impact on future water
supply, flooding.
Implement a model
ICDS approach to
urban management.
Failure to remain
competitive in
absence of strong
supporting
infrastructure.
Develop a model of
improved “good
governance”, revenue
generation,
sustainability,
resilience adaptations
Declining skilled labor
resources.
Strong public-private
sector partnerships
effectively
demonstrated.
Solid urban support
available from the
Punjab Urban Unit.
Limited local revenue
generation to support
urban services
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DD.
Chapter V
Sialkot’s Vision
84.
Based on the SWOT analysis, the residents of Sialkot have started to formalize a Vision
for their future as the over-riding guide to future development. Some of the suggestions that have
been put forward as possible components of a Vision include:
“Become Pakistan’s Export Leader”
“A city with climate resilient infrastructure”
“A city with better public transport and fewer cars”
“A city balancing vertical and horizontal development”
EE.
Sialkot - Existing Situation - Summary
Urban Form
85.
Sialkot’s official boundary currently encompasses an area of 20.17 km 2. However, the
actual ‘urbanized’ area is quite different as illustrated in Figure V-26. Uncontrolled, low-rise
sprawl is the easiest way to describe the city’s urban form and one that is central to most of its
planning, development, sustainability and resilience challenges.
Demography
86.
Sialkot City’s population in 2015 is 516,92772 and projected to reach over 730,000 by
2035 (within the current boundary). Note that Urban Boundaries are being revised as discussed
in Section VI-C and this captures more existing population with the result that the total urban
population by 2035 is estimated to be 1,390,536 (this includes Cantonment). At the same time,
Punjab’s urban population will increase from 32% to 40% (59 million out of 150 million). Within
the urban area this translates into an average density of 113 persons per acre, which because of
the predominant low-rise building form, is congested. The average household size is also quite
large at 6.2 persons73.
Employment
87.
More than 3,000 factories in Sialkot and its environs74provide the majority of employment.
This has a particular significance on present and future Sialkot. The following summary points
are of particular interest with respect to Sialkot District:75
87.1. Overall labor force participation is below national average: 45% compared to 53.5
nationally
87.2. Share of employment in the informal sector is close to the national average at
69% for Sialkot compared to 72.9% nationally
87.3. Distribution of employment by major occupation groups is similar to national
averages except with respect to “Craft and Related Trades Workers” where
Sialkot exceeds all other Districts and at 33.9% is more than double the national
average of 14.8%. This clearly reflects Sialkot’s unique and historical industrial
activity.
72
Punjab Development Statistics 2014, extrapolated.
Poverty and Social Impact Analysis, 2008, for Urban Unit by Semiotics Consulting (Pvt) Ltd.
74
Sialkot Chamber of Commerce
75
District Level Employment Trends 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics unless noted.
73
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Chapter V
Figure V-26: Sialkot’s Existing Urban Form
Urban Poverty
88.
The Poverty and Social Impact Analysis (PSIA), 2008 76 assesses conditions in urban
Punjab, putting urban poverty at 26%, almost equivalent to the national average. Sialkot is not
specifically assessed, but there is little reason to indicate the conditions are significantly different
despite the high level of industry.
Housing
89.
Housing and related infrastructure occupies approximately 60% of Sialkot’s urban
footprint. According to the PSIA only 30% of Sialkot’s housing is provided through the formal
sector with the other 70% developed informally and primarily on converted agricultural land
without planning approval. Only 15% of the informal housing is through infill and densification
within the city boundaries. 80% are owners, 18% renters and 2% shared accommodation. The
high level of ownership is a solid start for wealth accumulation and investment opportunities if the
land registration and supporting documentation systems are functioning efficiently. According to
the Sialkot TMA, the vast major of properties are officially titled with records currently being
digitized. These will be tied into the Urban Units extensive GIS database. Future housing
demand needs are assessed in Chapter V.
76
For Urban Unit by Semiotics Consultants (Pvt) Ltd.
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Chapter V
Economy and Role in Punjab and Pakistan
90.
Sialkot is the third largest economic hub in Punjab after Lahore and Faisalabad. The city
generates 10% ($1.8 billion) of the nation’s annual industrial exports, according to the Sialkot
Chamber of Commerce. This translates into a per capita average 25 times that of the nation as a
whole77. A long history of working with leather, wood and metal developed the valued hand labor
skills that make Sialkot a unique global leader in many products, exporting directly to Europe and
other international markets.
91.
Sialkot also plays an important regional role as an agricultural processing and shipping
center, supplier of goods and services to surrounding smaller urbanizing and rural areas, and
generates significant employment in surrounding settlements as a result of the contracted work
system favored by many of the manufacturers.
92.
The Sialkot Chamber of Commerce is particularly active, leading development of a
number of PPP infrastructure projects as well as those mentioned above. Members are actively
involved in, and concerned about, urban issues. The Chamber currently has over 5,000
members.
93.
As with every urban center in Pakistan and in most emerging economies the informal
sector likely accounts for the majority of the economic activity, although by its very nature
statistics do not usually capture this. A simple look at any street is indicative of the high level and
importance of the informal sector in which 69% in Sialkot District 78 are actively engaged and
probably 100% participate. At the same time, their dominant presence in the urban setting is
ignored from a planning perspective with the resulting street chaos evident everywhere. The
ICDS pays particular attention to the inclusive needs of this major group by providing appropriate
formal urban space and encouraging their participation in planning and development decisions.
Competitiveness Enablers
94.
Sialkot has a very pro-active and entrepreneurial private sector interested in the city,
leading its industrial economic base, and ready for more PPP participation to move the city
forward. The city has Pakistan’s only privately developed and operated international airport,
which is a strong attraction for its international customers. Road and rail transport connections
exist and are in the process of being improved.
95.
However, Sialkot needs to continue making improvements to maintain its competitive
advantage in its unique export areas. Industry struggles with a declining labor force, nontransparent planning and development approval processes, unreliable power and water supplies
and lack of municipal public transit for easy worker commuting. Compounding the situation is
Sialkot’s degraded environment with international customers insisting on higher standards.
96.
International competition is increasing as technology slowly replaces the hand labor skills
that built Sialkot’s position. The city needs to work hard to establish a more competitive
environment. Suggestions include development of dedicated industrial parks providing worldclass infrastructure, services and demonstration of leading-edge environmental responsibility.
Not only will this help competitiveness, but will simultaneously address some of Sialkot’s urgent
climate-change resilience adaptation needs.
77
78
Express Tribune, 1 September 2014
District Level Employment Trends - 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics
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Chapter V
Sialkot Urban Development Strategy
97.
This Chapter is structured with an initial discussion of the overall growth option concepts
that could be pursued by the future Sialkot. Each is presented with its advantages and
disadvantages in the Sialkot context concluding with a recommended growth option. The option
is then developed and presented in greater detail as Sialkot’s proposed Integrated City
Development Strategy (ICDS). Key features of the ICDS are discussed. Behind the ICDS are the
sector building blocks described in Chapter IV.
FF.
Physical Development & Growth Options
98.
The generic set of urban growth options are presented in Chapter IV. In this Section they
are reviewed within the specific context of Sialkot.
Continued Multi-Directional Expansion
99.
This approach would, in essence, see a continuation of the current situation and is not
sustainable. The built-up footprint of Sialkot is already 2 or 3 times that of its official boundaries.
As pointed out, unplanned sprawl is environmentally degrading, very inefficient and expensive to
service. It consumes valued agricultural land, creates long and costly travel for residents,
reduces the ability of the city to manage a robust program of building resilience to climate change
impacts and generally prevents Sialkot from attaining the inclusive, green and competitive status
it is striving for. This option will not be pursued.
Densification
100. The Punjab Urban Development Sector Plan 2018 stresses the importance of “density”
and “agglomeration” for cities if they are to achieve their roles as leading “engines of growth”.
Pursuing this principle underlies the ICDS. Density is the key to providing affordable
infrastructure and services; sustaining viable public transit; reducing the built-up urban footprint
thereby preserving agricultural land and other natural habitats; makes the best use of land that is
built-up; provides proximity to social and economic amenities without lengthy and costly travel
and creates sustainable markets for commercial activities. Increasing density is recommended as
one of Sialkot’s growth options.
101. There are several mechanisms for increasing density in Sialkot while also improving the
quality of life for its residents. These include regeneration, redevelopment, infill and upgrading.
Concentrated & Managed Expansion
102. Although densification can and should accommodate a significant amount of urban
growth, there will also be a need at some point for expansion as populations increase, new
economic opportunities develop, or, as in the case of Sialkot, the relocation of some current land
uses. The key to expansion is careful planning and management to ensure resilient,
environmentally sustainable and compatible site selection, ease of servicing, access to the
transport required for the intended land use, and proximity to other social and economic
amenities appropriate for the expansion. As a general rule, expansions should be contiguous
with existing development for efficiency of land use and infrastructure provision. Expansion
should not be used as a replacement for efficiently managing the inner core. Too often cities
attempt to “leap-frog” over their problems planning to start over in a new location. This is seldom
a socially, economically or environmentally sustainable approach.
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Satellite
103. Developing a satellite center or “new town” is an expensive option for accommodating
growth, but may sometimes be appropriate. A satellite normally requires another full set of
investments in all forms of infrastructure, social and economic facilities, and perhaps even
separate administration. Again, it should not be seen as a “leap-frog” solution to existing city
woes.
104. Sialkot, however, presents a situation where satellite development may be appropriate.
The private sector has already established an international airport, dry port and free trade zone
at some distance from the main city near the settlement of Sambrial, and there is a need to
relocate 4-500 incompatible and polluting tannery industries from the inner city to a consolidated
site where appropriate services can be provided and the highest level of effluent treatment
undertaken. Efforts to do this have been on going between government and the private sector for
some time, with the proposed site being near Sambrial.
Combination of Densification and Expansion
105. Every growing city is likely to need a combination of densification and expansion to
adequately address all of its needs and opportunities. Sialkot is no different, but a balance is
needed. One rule of urban management tied to land and infrastructure economics is that
maximum use should be made of existing land and infrastructure before expansion is
considered. This means a concentration on densification as a priority first step. Densification may
be more difficult to achieve given the need to have in place a strong strategic plan; fully
functioning land market; appropriate taxation; the ability to upgrade infrastructure as needed
(though typically less expensive than building new infrastructure); ability to attract the private
sector investment that will implement densification; full institutional support and understanding;
and a robust communication and stakeholder participation process. However, the longer-term
resilience, sustainability and therefore competitive advantages are considerable. Two city-level
planning regulations that affect densification are height restrictions and Floor Area Ratio (FAR)
limits as discussed above.
GG. Preferred Development Option and the Strategy
106. Following an assessment of Sialkot’s situation and aspirations, the potential growth
options available to it, and participatory reviews with Sialkot and Urban Unit officials, a preferred
growth option was decided upon for development into the Sialkot Development Strategy. Five
major prioritized elements are included, all in support of achieving an inclusive, competitive,
resilient, green and livable city:





107.
Managing upgrading, redevelopment, regeneration and densification of the city’s core
Upgrading and selective redevelopment and densification of existing Mahallahs as
the key community-based urban building block;
Selective incorporation and upgrading of surrounding unplanned Mahallahs;
Limited and contiguous expansion with well-planned and serviced new Mahallahs;
Industrial Park and logistical support development including the Sambrial Satellite.
Figure V-27 conceptually illustrates these 5 elements.
108. The overall Development Strategy comprises a series of sub-strategies similar to those
presented at the Mahallah-UC level, but expanded to a citywide scale.
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Chapter V
Figure V-27: Sialkot Development Concept
HH.
Revised Urban Boundary
109. A key step in beginning to implement a new urban strategy is to clearly define an urban
boundary - the line within which new investments and developments will be concentrated. This
does not correspond to the currently existing official Administrative Boundary. The components
of the new proposed urban boundary are illustrated in Figure V-28 with the final urban boundary
for Sialkot illustrated in Figure V-29. The boundary is based on the key principles of densification
and agglomeration with calculations of land required to accommodate population growth with
their required social, economic and infrastructure needs, and projected industrial growth. For
Sialkot, the new land requirement is based on Scenario 2, as presented below in Section VI-C,
which assumes 50% of population growth will be accommodated within the existing built-up area,
and 50% accommodated on new serviced lands. It must be noted, however, that this proposed
Urban Boundary still remains conceptual. To confirm a boundary in detail requires an extensive
technical exercise combining fieldwork, City-District-Provincial consultations and a careful
assessment of existing Mauza79 boundaries, which will be used to establish the detailed final
boundary.
II.
Sialkot Inter-Jurisdictional Joint Planning
110. At present there is little or no planning coordination between TMAs and their surrounding
District. One of the consequences is the proliferation of un-planned and under-serviced
settlement sprawl around cities, including Sialkot. It is strongly recommended that an InterJurisdiction Joint Planning mechanism be established to manage that interface between urban
and the largely rural surrounding District. All planning and development decisions that may affect
the other require consultation and joint agreement.
79
The smallest revenue/census land unit.
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Chapter V
Figure V-28: Proposed New Urban Boundary Components
Figure V-29: Proposed Sialkot Urban boundary – 2035
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JJ.
Chapter V
Urban Form Strategy
111. Figure V-30 conceptually illustrates the proposed Urban Form Strategy including the
Sambrial Satellite. Figure V-31 illustrates the proposed Urban Form Strategy around the main
part of the city within the new proposed Urban Boundary.
112. The overall urban form strategy, as discussed several times elsewhere is based on
“density” and “agglomeration”. The existing city is given priority attention to upgrade, regenerate
and redevelop for maximum compactness and best use of land and infrastructure. Expansion is
achieved through selective absorption and upgrading of adjacent Mahallah, and in the longerterm, new contiguous Mahallahs will be formally developed.
113. To help maintain and build Sialkot’s industrial competitiveness, a series of planned and
serviced Industrial Parks are proposed. Environmentally “friendly” ones located close to potential
employee housing and other social and economic amenities, while those with greater
environmental challenges, or needing particular logistical support located in a formalized
Sambrial Satellite close to the airport. This builds on a number of ad hoc initiatives already taking
place in the vicinity and will help give them some order and coordinated infrastructure.
114. Fines for encroachments and non-compliance with buildings by-laws etc. are low and the
recovery rate is poor. Fines need to be enhanced with more effective mechanisms for recovery.
In summary, collection against demand and investment in services does not meet O&M costs.
115. Cities also need to improve the way in which they openly respond to the needs of its
citizens in a transparent fashion. To date, the approach adopted by many city officials has
typically been to limit the access provided to residents to the way the city does its business.
There are examples of improvements in Sialkot and Sahiwal in the complaint management
systems, and some attempts at improvement in the services and mapping of the system that can
be further developed to enhance transparency and stakeholder participation. As a start, physical
access to TMA offices should be open, prominent, inviting and celebratory of their prime role in
managing the city. This is not the case in either Sialkot or Sahiwal.
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Figure V-30 Sialkot’s Development Strategy - Urban Form - Greater Sialkot
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Chapter V
Figure V-31: Sialkot’s Development Strategy - Urban Form - Main City
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KK.
Chapter V
Urban Regeneration
116. The social, economic and environmental benefits of giving priority to urban regeneration
including renewal, redevelopment, infill and densification are discussed above. The overall desire
is to maximize the potential of inner city lands and infrastructure while improving the living
environment and quality of life. Sialkot has one low layer of development spreading across the
city with many land parcels undeveloped, underdeveloped or in derelict condition. There is
significant development potential here if the environment is in place to encourage that
mobilization of capital. At present there is little incentive and numerous disincentives to private
sector investment in many of these areas. Low taxation creates no need to develop. The
congested streets, lack of public transport and poor condition of other infrastructure and services
do not invite investment. However, Sialkot will have trouble resiliently and sustainably developing
in a competitive manner unless it begins to address these issues.
117. Sialkot is growing and has a growing need for developed real estate. Land taxed at its full
potential value based on an adopted Land Use Plan will create the incentive to either develop or
sell to one who can. Figure V-32 illustrates one of many situations where core land in a prime
location is being poorly utilized and has potential to make a major contribution to improving the
city.
118. Figure V-33 illustrates an example of how a typical existing Mahalla can be upgraded
with minimal redevelopment to provide improved social and economic amenities, infrastructure
services and enhanced quality of urban space and environment. These initiatives are all in
support of making Sialkot more livable, green, and therefore more sustainable, resilient and
competitive. By targeting upgrading at the Mahalla level across the city, investments will also be
inclusive providing benefits to all socio-economic groups.
119. An Approach to Urban Regeneration: The skills and resources required to undertake
comprehensive urban regeneration typically exceed those available at municipal/TMA level.
Global practice favors the establishment of separate Urban Regeneration Companies, or similar
special purpose vehicles to undertake these complex initiatives through a variety of PPP
arrangements. Funding urban regeneration requires strong public-private partnerships merging
the resources of both for sustainable implementation. The public sector brings the planning and
regulatory frameworks, prime infrastructure and potentially seed capital to the partnership, while
the private sector provides technical and managerial skills and collective access to far more
financial capital than Punjab’s cities have on their own. There are numerous global examples of
Urban Regeneration programs 80 established by provincial, regional or city governments to
promote urban regeneration by providing seed capital and an integrated umbrella under which to
operate. Focal areas include infrastructure, public spaces and housing. One of the key
requirements for implementation of these programs is well functioning, transparent, equitable
planning and approval processes in order to gain the confidence of private investors.
80
Examples: UK, “Homes and Communities”, a series of housing and infrastructure support funds; Australia:
“Infrastructure Partnership Australia”; Canada, “Places to Grow Implementation Fund”
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Chapter V
Figure V-32: Sialkot Inner-City Redevelopment Example
Existing Situation
Potential
Page 175
Chapter V
Figure V-33: Upgraded Mahallah
LL.
Infrastructure
Mobility - Transportation Strategy
120. There are three components proposed under this strategy in addition to the generic ones
discussed in Chapter IV:
Street Management - Livable Streets
121. Addresses the management of the wide variety of activities that take place in the city’s
street spaces: public transit vehicles, motorized private vehicle traffic, non-motorized vehicle
traffic, parking of both, pedestrian traffic, informal sector commercial activity, access to formal
sector commercial activities, and social interaction. The streets are also, typically, the corridors
for other urban infrastructure including water, sewerage, drainage and power. These are all
legitimate street activities but can be in conflict of each other if it is not given its own space, rules
and supporting equipment. At the moment there is very little street management other than some
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Chapter V
attempts to manage the vehicle component of it. The Strategy calls for re-structuring some of
Sialkot’s major street arteries to provide designated space for each activity. Figure V-34 is a
conceptual illustration of how this may be achieved with little expense while greatly improving the
quality of life along those streets for all involved.
Figure V-34: Conceptual Street Management
Traffic Management
122. Improved traffic management can only be effectively achieved when the streets are
properly managed. Details of proposed intersection, signage and related management details are
discussed in the accompanying PFS Report.
New Transport/Mobility Modes and Facilities
123. A number of specific new initiatives are proposed as part of the strategy to improve
Sialkot’s competitive advantage and the overall urban environment:






Develop efficient urban public transit (refer to PFS Report);
Establish a new multi-modal rail-road-air transport hub in the Sambrial Satellite;
Re-locate current rail freight activities out of the city center to the new multi-modal;
Develop new long-distance bus terminals at two major entries to the city connected to
improved urban public transit;
Develop a small-scale, local public-transit hub adjacent to the current rail passenger
terminal for inter-modal ease;
Develop new by-pass connecting the main Lahore highway directly to the new
Sambrial Satellite.
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Chapter V
Water Supply
124. The main objective is to provide residents of Sialkot with a reliable 24/7 healthy water
supply for domestic and industry use, to boost its competitive advantage within Punjab, Pakistan,
and in the unique case of Sialkot, internationally. Detailed proposals for technical and managerial
improvement of Sialkot’s water supply are discussed in the PFS Report. From the broader
Development Strategy and climate-change resilience perspectives, Sialkot has an opportunity to
start looking at alternative, longer-term water sources. The traditional Himalayan glacier sources
are melting as a result of climate change and more intense storms and increased rainfall are also
forecast. To tie the two together, while helping manage increasingly likely flood events, Sialkot
should be working with the District and Province to develop a series of upstream watershed
storm water catchment/harvesting facilities to serve as future water supply and help control urban
flooding.
Sewerage and Sanitation
125. As with water supply, the overall sanitation strategy is to provide 24/7 safe, healthy and
environmentally sound services. At the moment there is little or no functioning sewage treatment
with effluent being discharged directly into nalahs (canals) with all related negative environmental
and health impacts. Industrial effluent is a particularly serious problem because of Sialkot’s
tannery industries, and is currently either mixed with domestic waste or discharged directly into
drains and water bodies; unacceptable and unsustainable, and fully recognized as such by the
residents and leaders of the city. Sialkot’s international export clients are demanding of higher,
international environmental standards, and Sialkot must respond to keep its competitive
advantage. Developing planned, serviced and managed Industrial Parks is one proposal to
address this issue so that industrial effluent can be segregated and properly treated. Adding a
community-based Public Health service as part of the city’s responsibilities is another. Technical
details of other sanitation recommendations are presented in the accompanying PFS Report.
126. One of the stated stakeholder visions for Sialkot is to have “a clean city”. The proposed
strategy for solid waste management (SWM) is simply based on that. SWM challenges continue
to grow in magnitude with increased population and consumerism, and crosscut a wide range of
urban concerns: health, urban image, quality of life, drainage and environmental degradation
among them. A great part of the challenge is to instill a culture of collecting. That culture is
missing, for the most part, in all Punjab cities where the tendency is to simply toss waste into the
drains, onto the street or into the landscape. Public awareness and an attitude shift is the first
step. Secondly, SWM logically breaks down into a hierarchy of steps that can be quite easily
implemented starting at a household and community-based level. The Mahallah-UC strategy for
SWM is discussed in Chapter IV and applies appropriately to Sialkot. The strategy also
recognizes the considerable re-cycling economic potentials with SWM. Considerable recycling is
taking place in Sialkot by the informal sector. Carts loaded with empty drink containers and
cardboard can be frequently seen. At some point these collections enter the more formal sector
as they are consolidated and transported to recycling facilities. Sialkot could be tapping into this
economic potential by beginning to formalize separation and collection at the Mahallah level
where revenue could then be directly applied back into improving Mahallah public services. In
general, solid waste must be taken out of the drains, off the streets and away from ad hoc
dumping. Technical details of SWM including the major engineering challenge of establishing a
properly managed disposal site(s) are discussed in the accompanying PFS Report.
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Chapter V
Drainage
127. In addition to the obvious need to have drainage systems working, maintained and not
used as garbage dumps, there are opportunities to enhance the approach to storm water
drainage in support of the city’s climate change resilience efforts. At the moment, storm water is
a problem and a loss. The introduction of upstream catchment area reservoirs would help control
flooding and also become an alternative source of water supply as the traditional ones disappear.
Storm water retention ponds can also be introduced throughout the city as a smaller-scale
version of the same control mechanisms with water used for urban agriculture and other nonpotable applications. The strategy also suggests the promotion of rainwater harvesting as
another climate-change resilience response at Mahallah and household levels, which would
further contribute, to both drainage management and water supply. The Sialkot CDS also
proposes that the 3 existing urban nalahs be rehabilitated from the largely sewer function they
serve now to public green space city assets as well as improved storm water and flood control
management. Figure V-35 conceptually illustrates this opportunity.
Figure V-35: Nalah Rehabilitation
Existing Situation
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Chapter V
Proposed
MM. Population, Housing, Land & Infrastructure
128. Residential land and associated infrastructure and services account for approximately
60% of a typical city’s land use. Consequently, the impacts of growth on land and infrastructure
are a major part of the CDS. The discussion on urban densification versus expansion comes into
play here. Table V-36 presents some facts and 3 sample growth scenarios. Figure V-37
illustrates the new serviced land requirements under the 3 scenarios compared to the size of
existing Sialkot.
129. In summary, if the same average settlement density is applied to accommodate all
projected population growth (based on 2015 city boundaries) on new serviced land it will require
a total of 2,2,483 ac (310 Kanal or 8.3 km2). Servicing this land is estimated at a total cost of
almost Rs 3.8 billion ($ 37 million)81, or an average of Rs 15,000 per person ($ 150) Table V-38.
If 50% of the new population is accommodated through densification, the amount of new land
required obviously falls in half, as does the need for new infrastructure and the environmental
impact. However, infrastructure cost per person is even lower, as the cost of providing upgraded
infrastructure for densification may be as little as 50% that of new infrastructure (highly variable,
depending on starting condition) and that infrastructure benefits all existing residents as well.
Cost per beneficiary in this case may fall to Rs 5,547 ($ 55) if 75% of new growth is absorbed
into the existing city. These are very indicative estimates only, but do illustrate the benefits of
densification over expansion.
81
Source: Lahore School of Economics, 2000, extrapolated to 2015 at 15% inflation
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Chapter V
Table V-36: New Residential Land Requirements
Conversions
Standards
Average urban lot size
Gov't. Project Max. Lot Size
Privat Project Max. Lot Size
Average HH Size (Persons
Land to Add for Infra/Services
Sialkot Population Growth
Population
New HH at 6.2/HH
Sialkot Urban Area (2015)
Sialkot Density (2015) p/ac
1 Marla =
1 Kanal =
1 ac =
1 km2 =
1 ac =
1 ac =
225.0 sf (urban)
4,500.0 sf
36,000.0 sf (Pak urban)
10,760,000.0 sf
Marla
Scenario 2:
50% Expan. 50% Densification
New Density Existing City p/ac
Popul. Absorbed in Existing City
Population on New Lands
New Existing City Population
Added Popul. as % of Existing
Total New Land Required
Scenario 3:
New Density Existing City p/ac
Sq Metres
0.05 Kanal (K)
20 Marla (M)
247 ac
8 Kanal (K)
160 Marla (M)
Acres
Kanal
Sq Km
7.5
20.0
40.0
6.2
40%
2015
497,648
2035
Pop. Change
732,262.0
234,614.0
37,841.0
4,982.0
20.17
100
Sialkot Land Required to 2035
Scenario 1:
Density p/ac
Land Req'd at Average Lot Size
Add 40% for Infra/Services
Sq Feet
20.9 m2
418.2 m2
3,345.7 m2
1,000,000.0 m2
Marla
Sq Feet
Sq Metres
Acres
Kanal
Sq Km
100
0
234,614
497,648
283,807
113,523
63,856,633
25,542,653
5,934,631
2,373,853
1,774
710
221.7
88.7
5.9
2.4
397,330
89,399,286
8,308,484
2,483
256
8.3
198,665
44,699,643
4,154,242
1,242
155.2
4.2
99,333
22,349,822
2,077,121
621
77.6
2.1
0
123
117,307
117,307
614,955
24
135
175,961
58,654
673,609
35
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Chapter V
Figure V-37: New Residential Land Requirements to 2035
Table V-38: New Infrastructure Cost Estimates
Infrastructure Costs
Land to Serv.
New Infrastr. Cost per ac
Average Cost/Person @ 100 p/ac per benefic.
Upgraded Infrastr. Cost per ac
assume 50%
New Land Infrastr. Cost(ac)
Scenario 1
Scenario 2
Scenario 3
Per Beneficiary Cost
Scenario 1: density 100 pers/ac
Scenario 2: density 123 pers/ac
Scenario 3: density 135 per/ac
Rupees
US$
1,500,000
15,017
750,000
15,000
150
7,500
2,483 3,724,970,262
1,242 1,862,485,131
621 931,242,566
37,249,703
18,624,851
9,312,426
per benefic.
per benefic.
per benefic.
15,017
6,076
5,547
150
61
55
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NN.
Chapter V
City and Regional Economy Strategy
130. All of the physical and institutional improvements discussed above contribute to a
stronger and more competitive environment for economic development in both formal and
informal sectors. All recommendations contribute to creating a more conducive “ease-of-doingbusiness” environment. Government’s own resources, their levels of human, technical and
financial capital, are dwarfed by those of the collective private sector. The Government’s role is
to establish a conducive environment in order to promote mobilization of the private sector capital
in all its forms: cash, creativeness, sweat equity, skills and entrepreneurship in both the formal
and informal sectors.
131. The proposed Economic Development Strategy strongly promotes a more inclusive role
for the private sector in city development. Sialkot in particular has a solid and almost unique
history of public-private-partnership (PPP) initiatives and this needs to be built upon. It is in the
private sector’s interest to have a well-functioning, resilient city. PPP cannot only benefit largescale infrastructure projects, but can support small-scale social facilities such as parks and green
spaces, and a wide range of community-building civic events. Municipal government capacity is
needed to effectively develop and implement additional PPP activities.
OO. Institutional Strategy
132. The ICDS-supportive institutional strategy for Sialkot is as described in Chapter III. It
warrants repeating that institutional capacity - human, technical and financial - and the full
institutionalization of all related policies, plans, regulations and procedures lies at the heart of an
ultimately resilient, sustainable, inclusive and competitive city.
PP.
Urban Design & Green
133. In addition to the various specific land use elements, infrastructure and facilities required
in a city, there needs to be an integrating sense of character, human scale, and features that
make life pleasant for its inhabitants.
Creating a City Centre - A Sense of ‘Place’
134. Every city benefits from having a recognized center, or focal points for residents and
visitors alike. Each neighborhood has a recognized center, informal as it may be, but Sialkot
does not currently have these in a strong way. The TMA office site is an obvious landmark choice
given its heritage value and roll as the center of formal governance. However, because it is on a
hill, it is isolated from the public, so serves as more of a ceremonial center than a real functioning
public space center. There are major intersection points that could be developed as more
meaningful focal points with perhaps PPP funding support. This should become an element of
future detailed urban planning and design.
Street Landscaping
135. Most of Sialkot’s main streets would benefit from focusing on the improved quality of
pedestrian space, adding urban furniture including benches and lighting, sculptures, landscaping,
controlled street crossings, and limited and carefully managed street vendors. This will all be
integrated with improved vehicle traffic flow and public transit facilities. Figure VI-8 presents a
conceptual illustration of a typical opportunity. The detailed planning, design and development of
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Chapter V
new roads and Mahallahs should continue to incorporate public green space and pedestrian
consideration.
Green Space
136. Urban green space is essential for the health of the community and enjoyment of the city.
Sialkot has an opportunity to revitalize a number of derelict open spaces with added vegetation
and public space facilities. Sialkot is short of vegetation, which naturally acts as a cooling, air
filtering mechanism, rainwater harvesting and flood control instrument, thereby countering
climate change and increasing the city’s resilience.
Heritage
137. Development needs to seek a balance with a place’s heritage, Sialkot is 5,000 years old
but this heritage is being lost in the chaos of the modern town. The city needs to develop a
program of managing, protecting and promoting its valued heritage assets.
QQ. Climate Change Resilience Strategy
138. A Climate-Change Resilience Strategy needs to be treated as an umbrella crosscutting
strategy rather than a separate initiative. It starts with the need for strong public awareness and
political commitment. The various contributing technical and administrative elements of the
Strategy are found in, and must be embedded in, every individual sector of the city’s planning
and development. Accepting the culture of climate-change resilience as an integral crosscutting
need is essential.
Sialkot - Strategic Summary
139. The overall goal of Sialkot’s ICDS is to promote a highly livable, economically strong city
equipped to manage the risks associated with climate change in a resilient, green manner while
strengthening its competitiveness regionally and internationally. This will be achieved in support
of Punjab’s recognition that urban centers are the engines of growth and must emphasize
compact, dense growth patterns to fulfill that role.
140. Sialkot will build on its unique industrial export base. The goal will be achieved through
strengthening the institutions responsible for the city’s planning, development and management,
the institutionalization of stakeholder participation and an ICDS approach. This involves
improving the infrastructure (transport, water, sanitation, SWM) required to support social wellbeing and expanded, modern industry including development of dedicated industrial parks; and
by providing social amenities thereby allowing all residents easy access to health, education and
recreation facilities in an improved urban environment.
141. Sialkot has the ambitious vision of becoming Pakistan’s export leader. To achieve
economic growth, it will need to maintain and strengthen its niche hold on its specialized
manufacturing sectors, while using those same entrepreneurial and technical skills to diversify
production. Increased attention must also be paid to the pending impacts resulting from climate
change that are threatening water supplies and causing property/infrastructure damage.
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Chapter V
142. Through activities highlighted in the many sub-strategies above, Sialkot must work to
increase its climate change resilience as well as its economic growth and competiveness
resilience. In order to achieve all of these goals improved municipal revenue collection, budget
management, development planning and control implementation and transparency are required.
A significant amount of new growth will be accomplished through urban regeneration,
redevelopment and densification of the city’s existing built-up areas. Consideration will be given
to establishing a special purpose Urban Regeneration entity to manage this complex process.
Implementation Plan - ICDS
RR.
Integration
143. Implementation of the Sialkot Integrated City Development Strategy is an on-going
process. It begins with the institutionalization of the concept and process; develops the
necessary capacity at all levels; and proceeds with a prioritized and integrated series of specific
sector initiatives beginning with more detailed physical planning and financial management.
Throughout is the need for continuous top-down and down-up coordination and dialogue,
particularly between Province, District, City and residents. Also essential are robust and on-going
IEC and Monitoring and Evaluation Programs. Together, these provide the mechanisms for midcourse correction to individual projects and ensure a continuous participation process by all
stakeholders. Figure VII-1 sets out an indicative Short, Medium and Long-term ICDS
Implementation Plan, subject to continuous monitoring and revision. This should be read in
conjunction with the overall Implementation Plan presented in Chapter VII.
SS.
ICDS and Supporting Plans
144. The ICDS is not a replacement for the traditional detailed land use and zoning maps
theoretically used to control urban development. A common concern of municipal officials used in
the historic processes is that the ICDS may contradict their present land use regulations. The
point of the ICDS is to instill a more inclusive, strategic approach to all aspects of urban
development. Existing land use plans, detailed plans and development controls may not support
the integrated ICDS approach and will have to be revised accordingly with the accompanying
paradigm shift. This will likely create some discomfort and concern amongst long-term civil
employees and require some training and transition time.
TT.
“Soft” Urban Budget
145. To enable the implementation of a first set of the softer urban improvements discussed
above including street management and enhancement, street pedestrianizing, and public green
space development, a budget of USD 6 million is included. The detailed selection and design of
specific soft components will be determined through further participation with the city, residents
and government officials.
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REG-8556
Pakistan
CHAPTER VI
Sector Assessment, Strategies and
Roadmaps
April 2016
project’s design
Chapter VI
Sector Assessment, Strategies and Roadmaps
Introduction to the MTIIPs
1.
Infrastructure investment is a key ingredient of successful growth and development in
developing countries. Improved transport infrastructure – roads, ports, airports and rail –
facilitates productive investment in agriculture and industry by connecting producers to markets.
More reliable and lower cost power, telecoms, water and other infrastructure services lower
producers’ costs and thereby raise producers’ incomes and reduce poverty directly.
2.
As noted in Chapter II and Chapter III, in Punjab there is far too little infrastructure
investment. The profitability of production for export and domestic consumption is held back by
the high cost and poor quality of infrastructure services. This in turn is contributing to the low
levels of investment in agriculture and agribusiness ventures in the rural Punjab economy as well
as in key niche sectors where cities like Sialkot and Sialkot have demonstrated a comparative
advantage.
3.
Over the past 40 years government-led efforts to build a stronger physical infrastructure
in Punjab have met with varying results and marginal successes. Despite major support from
donors, in many parts of Pakistan, infrastructure services in support of productive city activities
have not kept pace with urban needs or industrial demands. Public capital has been poorly
allocated, badly spent and many of the assets have deteriorated for want of adequate ongoing
maintenance.
4.
There are four key problem areas that have plagued infrastructure investment in the past.
These have been addressed by the proposed MTIIPs that follow in this Chapter.
4.1.
Co-ordination problems: The inter-dependency of investments along long
supply chains causes real problems for investments in each segment of the chain.
Investments in urban services require complementarity in a package of all urban utilities,
rather than investments in one sector or another. The entire portfolio of urban services
needs to be improved if cities like Sialkot are to be rendered more competitive. If each
link in the production-supply chain is successfully delivered on time, then all links are
predicted to be productive. However, if just one link fails then investment in each of the
links will fail.
4.2.
Front-end costs and risks: Most infrastructure investments require a
considerable amount of time and managerial commitment to pre-development activities
before major investments can be financed. Indeed, it is for this reason that the PFS
process is being embarked upon by the GoPb. Before financing can be arranged
agreements with governments, regulators and management organizations (as proposed
herein) must be negotiated and agreed. ‘Front- end’ project development activities during
this ‘pre-financial close’ periods such as those proposed in this PFS are subject to very
high risk for several reasons. First, because of the inter-dependency problem noted
above. The timing for reaching financial close on the infrastructure investment is often
reliant on developments in a number of complementary but separate investments.
Second, because the investor is captive to actions which the government and/or the
utility may or may not take late in the pre-development process.
4.3.
Legacy issues: Poor macro-economic and sector policies in the past have left a
legacy, which affects behavior by the Municipal Corporations/Cities, even if Provincial
government policies have subsequently improved. That legacy includes the perception of
high political and regulatory risks associated with certain services (i.e. Sewage
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Chapter VI
Treatment) The result of this is that: (i) it deters corporate investment because
organizations fear a change in the ‘rules of the game’ and regulations after capital has
been sunk; (ii) raises the cost of finance and therefore the charges that users are willing
to or will be forced to bear, often to levels that are unaffordable by poor urban residents;
and (iii) shortens the tenor of loans that lenders are willing to make, when what is needed
in municipal infrastructure is long term finance coupled with adequate cash-flow to
ensure a maintenance regime . Another legacy of poor macro-economic policies in the
past is often high local currency real interest rates which discourage borrowing in local
currency and cause investors to choose to finance in dollar terms, thereby increasing
exchange rate risks borne by Municipalities and GoPb and ultimately by users.
4.4.
Incentives and sustainability: The time has come for service users and
consumers to realize that urban service provision will cost money. Previous development
assistance and infrastructure was financed by provincial and national financing support.
A second equally predictable result is that grant supported activities often failed to be
sustainable – as soon as the grant support ended the activity degraded because there
was no longer the money to sustain it. Many grand infrastructure projects in Pakistan and
elsewhere built over the past several decades have suffered this fate. The third entirely
predictable result was corruption. Those with the power to hand out money that does not
have to be repaid will always be subject to the temptation to allocate it according to who
makes it most worth their while. The distortions induced by provision of grant funding
need to be addressed in the PICIIP, taking account of the affordability issues noted
above.
5.
The program of investments proposed herein therefore recommended a multi-pronged
approach improving the urban condition in Sialkot. This includes both technical assistance and
investment support. Overall the PICIIP proposes to use assistance to city and Provincial
government that will aim to tackle the bottlenecks associated with service delivery bottlenecks in
intermediate cities that cause further bottlenecks. The methods of intervention proposed in this
Chapter include technical assistance services; capacity building and training; knowledge sharing
platforms; and analytical research and dissemination. This will not be tied to the capital
investments made by GoPb. The approach to which the package of investments has been
determined is reiterated again in Figure VI-1 overleaf
.
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Chapter VI
Figure VI-1: Approach to Determining the MTIIP Package of Investments Proposed
INNOVATION &
CONSULTATION
ENABLING ENVIRONMENT
INADEQUATE CITY
RESOURCES
governance arrangements and drivers,
including regulatory framework, socioeconomic, financial & policy
implications
finance, appropriate technology,
planning & engineering issues
alternative financial and delivery
models and priorities set by key
constituents & stakeholders
ICDS and CRVA Assessments
What are the problems?
Underlying Causes
Who is affected and how?
What are the priority sector areas?
Why do problems occur?
DETERMINING APPROPRIATE URBAN SOLUTIONS
PRIORITIZATION : What is Important?
REVIEW, DESIGN AND PREPARATION OF INVESTMENT PACKAGES (MTIIPs) LIKELY TO LEVER GREATEST
CITY-LEVEL BENEFITS IN INCLUSION, RESILIENCE and COMPETETIVENESS
Design MTIIP Sub Projects for ADB Financing
Creating Rapid Consultation Mechanisms (RUAs)
Verifying Agreed Priorities with Cities, GoPb, Private & Third Sectors
SAHIWAL
Preparation of sub project investments resulting from critical analyses of Intermediate cities
based on:
vision of the city, Existing and emerging urban strategies
types of longer-term Investments required for ensuring competitiveness, inclusion, and
resilience
priority PICIIP investments & policy reforms in support of the above will change the landscape
Good Governanvce and
Municipal Management
Effeciencies
Improved Services and
Service Options
Improved Ability to Plan,
Manage, Finance and
Enable Desireable
Economic and Social
Development
Stakeholder Consultation: Improved Competitiveness via Priority Setting & Partnerships
Review and Prioritise
Stakeholder Priorites
Rapid Appraisal
TOWARDS IMPROVED REGIONAL and NATIONAL COMPETITIVENESS
Improved Awareness and Sensitivity to Role of Sahiwal in National and Regional Economy
Promotion of Intermediate Cities in Punjab for Cities as Engines of Growth
Protection from Vulnerability and Poverty
Opportunities for Protection from Adverse Effects of Climate Change / Adaptation to Climatic Irregularities
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Chapter VI
Sialkot Institutions and Governance
A.
Theoretical-Conceptual Framework and Historical Lessons
Decentralization: Lessons and Challenges
6.
The word decentralization implies a process of taking something that was previously
‘centralized’ and making it less central. However, the term is reserved for moving functions done
nationally or regionally to a more local form of government or perhaps from a federal level of
government to a state level of government in countries that adopt a federal system. The reasons
for adopting this policy vary from country to country. In Pakistan from 2000-2008 decentralization
was used to consolidate political power at the local level, as a counterweight to opposition forces
at the center. Notwithstanding this, some argued that the drive to decentralize and devolve
government in Pakistan at the time was unlike previous attempts. A greater effort was exerted in
ensuring the policy was implemented but its success remained questionable. Now that new local
government reforms are being ushered across Pakistan this will shape the policy environment in
which PICIIP will be implemented in Sialkot and Sahiwal.
International Perspectives
7.
Decentralization is seen as a panacea for better accountability, citizen participation,
effective resource management and improved service delivery.82 The UK Government’s DFIDs
work on voice and accountability in developing countries found that periodic elections are often
the sole means of citizen participation and accountability. This is inadequate, because often,
local elections have a tendency to be dominated by political elites and ethnic/tribal loyalties.
Evidence suggests a role for civil society to supplement local elections as a means of ensuring
participation and accountability.83 For instance, the Brazilian municipal experience of participatory
budgeting is a successful example of citizen participation. Though not without its own
shortcomings – it at least presents an opportunity for those on the margins of local government
decision-making to become part of the process.
8.
Countries that have embarked on decentralization face significant capacity issues
particularly in resource management. Most developing countries face problems with public
expenditure management (PEM). Traditional input based budgets are unrealistic with inflated
revenue forecasts, weak financial management and accounting skills.84 This is true of TMAs such
as Sialkot and Sahiwal. Investment in the capacity to manage resources more effectively should
be a key aim of PICIIP. Ultimately decentralization is about service delivery. International
agencies view decentralization as key to improved service delivery and essential to achieving the
Sustainable Development Goals and poverty reduction. This is premised on the belief that
decision-making is closer to service beneficiaries. However, evidence from a number of studies
from several countries including Pakistan shows impact from decentralization to be mixed.85 In
Pakistan political devolution and administrative decentralization are thought to have produced
better results than the last round of fiscal decentralization measures. However, evidence of
service effectiveness remains questionable.
9.
Other work on the impact of decentralization on poverty has reached similar conclusions.
An OECD-DAC review of twenty country studies concluded the impact of decentralization on
82
Local Democracy and the Challenges of Decentralizing the State: An International Perspective, Local
Government Studies 35,2 November 2006.
83
Decentralization and Local Governance: Comparative International Perspectives and the Pakistan Case;
Background Paper for the Commonwealth Secretariat, 2006
84
Ibid
85
J. Ojendal & A. Dellnas: The Imperatives of Good Local Governance: Challenges for the Next Decade of
Decentralization, UN University Press 2013
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Chapter VI
poverty was contingent on policy makers ensuring that devolution was pro-poor. It also
concluded, where states were failing to fulfill their basic functions decentralization could be
counter-productive. Where countries were fulfilling their responsibilities decentralization was a
powerful tool for poverty reduction, improving the representation of the poor and better targeting
of service delivery.86 These findings resonate with Pakistan’s experience of decentralization and
devolution in the past.
Pakistan’s Experience
10.
In 2000 Pakistan’s local government reforms were based on three key elements; fiscal
decentralization, administrative decentralization and political devolution. The aim being to
improve service delivery and planning by elected governments, through decentralization. In
essence the bureaucracy was placed under the authority of elected governments headed by
Nazims (mayors) at the district, tehsil/town (sub-divisional) and union council levels. District
elections at the union council level and reservation of seats for minorities and women provided
statutory representation for those traditionally ignored in local politics. While the arrangements
provided an opportunity for improved service delivery, policy and structural flaws undermined the
potential to deliver.
11.
Several years after implementation its impact was viewed as patchy. 87 Structural
impediments undermined the policy. Some of the most significant weaknesses included the lack
of decentralization of federal powers (such as taxation) to provincial governments. Secondly, the
lack of constitutional protection fed the perception – this policy is temporary. Thirdly, there was
no significant increase in fiscal powers for local governments. Large districts were heavily
dependent on provincial transfers for operational funds. These shortcomings undermined
confidence in the policy and characterized provincial-local relations. In key policy areas such as
HR (staffing, posting and transfers) decisions are made by the provincial government. This
presented challenges at the local level with respect to staffing. Senior members of the
administration cited their lack of enthusiasm for the policy on the basis that it lacked legal cover.
12.
Previous efforts to implement local government reforms showed resistance among the
bureaucracy and politicians. Firstly, those reforms were part of the wider strategy to centralize
power in the hands of the military. Secondly, holding local government elections on a non-party
basis excluded political parties from active involvement and thirdly, competition from newly
elected mayors (Nazims) to provincial politicians. The lack of political support weakened the
ability of districts, towns and tehsil governments to supply better services. Despite these gaps
there were successes, which should be drawn upon for the current round of reforms.
13.
There were notable successes in the 2001-2008 reforms. 88 It led to political
empowerment, fostered greater inclusiveness (increasing women’s participation) and provided
significant platform for community involvement. More importantly, local governments were given
greater social service planning autonomy. Decentralization also led to predictability in the flow of
funds, incentivized equitable distribution and more targeted social sector spending. In the last
decade of local government change, TMAs have been considered the weak link in the
governance chain. Responsibility for water supply and sanitation services, traditionally a function
of TMAs remained unclear in Pakistan. In Punjab most large-scale municipal water supply
schemes are run by independent water and sanitation agencies (WASA). Decentralization and
devolution made little difference to their operations. In Punjab and other provinces provincial
governments reclaimed control over delivery of rural water supply on the basis of inadequate
TMA capacity and service provision.
86
Decentralization and Poverty in Developing Countries: Exploring the Impact: OECD, Working Paper No: 236
August 2004
87
Morianni, F (2007): Is Decentralization helping to make Social Services work for the Poor? ADB Forum on
Inclusive Growth and Poverty Reduction in the New Asia Pacific
88
Naqvi, K and Robinson M (2004) Pakistan Drivers of Change: Synthesis and Policy Implications, Department
for International Development (DFID) UK
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Chapter VI
14.
Pakistan’s experience of decentralization echoed that of other developing countries.
Evidence points to impact being mixed. No single factor determines whether decentralization as
a policy instrument will be successful. Findings from Pakistan point to notable successes but also
deep-rooted challenges. These will come to the fore again as Pakistan moves in the direction of
resurrecting local government reforms.
New Public Management (NPM)
15.
NPM is described as a collective term for a set of management techniques and practices
mostly in origin from the private sector for use in the public sector.89 It has emerged as body of
managerial thought based on ideas generated in the private sector. With origins in the UK, NPM
seeks to replace traditional bureaucracies with market based public administration and
managerialism. Since 1980’s and 90’s NPM entrenched in theory has been advanced in many
developed countries (UK, Australia, New Zealand, USA and Singapore) and in the last decade
across developing countries.
16.
NPM emphasizes a cultural shift in public administration from an instructive mode of work
to performance, outputs and the three E’s of – efficiency, economy and effectiveness.90 Reforms
initiated in the UK and under the Thatcher Government concentrated on moving government
from being ‘administered’ to being ‘managed’. A similar agenda was deployed in the USA
(customer focus, more for less) with international organizations such as the OECD, World Bank
and IMF following suit. The imperatives for NPM reform are theoretically underpinned. Critics of
the state and the role of the public sector attacked the traditional Weberian model – the
bureaucracy viewed as a liability i.e. lack of responsiveness, expensive to maintain and unable to
deliver services effectively.91 This attack on the public sector was grounded in new economic
thinking espoused by the principal agent, principal-choice theories. Notions have questioned
whether traditional bureaucracies characterized by self-interest, poor incentives and lack of
monitoring could yield better performance or accountability. However, NPM is not without
criticism.
17.
Some have suggested that NPM is a passing fad, undermining accountability and failing
to improve services or efficiency. 92 However, other schools of thought suggest internal and
external drivers must be considered before assessing the impact of NPM based reforms and
these will vary from country to country. Notwithstanding the debate, on its value, some lament
that NPM puts a particular emphasis on seeking to solve problems to do with governance.
International Perspectives: Relevance for Sialkot TMA
18.
The polemics of NPM continue. Some view NPM in developing countries with skepticism
while others make the point that it offers important lessons and successes, especially from
Africa. Where management tools have been provided for operational efficiency the results have
been significant. In Pakistan, NPM prescriptions were successfully attempted in Faisalabad
(2004-2008) under the DFID Strengthening Decentralized Local Government in Faisalabad
District Project. Key elements focused on strengthening performance and management capability
at operational and service delivery level. However, challenges remained and it was unclear if
service effectiveness was ever achieved. The projects reform Program was halted and city and
provincial authorities failed to continue with the change management Program.
89
McLaughlin K Osborne, S and Ferlie E (2006) New Public Management: Trends and Future Prospects.
Routledge
90
A. E. Sarkar (2006) New Public Management in Developing Countries: An Analysis of Success and Failure,
International Journal of Public Sector Management
91
McLaughlin K, Osborne S and Ferlie, E (2006) New Public Management: Trends and Future Prospects.
Routledge
92
Ibid
Page 194
Chapter VI
19.
Other experiences suggest caution with NPM based reforms in developing countries.
Lamenting that NPM is in its infancy in many developing countries and it is too early to arrive at
any firm conclusions. Efforts to increase citizen participation have been widespread as part of
improving the quality of public services through better response mechanisms. In Brazil, Jordan,
Uganda and Pakistan initiatives such as Public Complaints Bureau and Citizen Charters have
been adopted following the UK model. There is however, suggestive evidence from at least two
countries that these Programs may not ultimately translate into service delivery improvements.
20.
Africa’s experience of NPM public sector reforms appears more positive. Efforts have
targeted inefficient state bureaucracies through public sector management reforms. These
reforms embraced privatization, capacity building, managerial efficiency and accountability. Many
countries including Angola, Botswana, Ghana, Kenya and South Africa have undergone
privatization Programs, resulting in a fall in the number of public enterprises in Africa by 37% in
the last decade.93 Training is viewed as integral to build capacity for reform. Many countries have
institutes dedicated to public administration or training their civil servants. Botswana for example
set up a specialized training center in productivity and quality improvement.
21.
Other reforms have centered on improving efficiency, employment measures and
accountability. In Botswana, Uganda and South Africa performance management systems aimed
at improving productivity and quality of public services have been introduced. This has included
making management more effective through better human and financial resource management.
Public service managers have been provided with better management information systems, interdepartmental communication systems and information technology.94 Similar reforms have been
attempted in Pakistan in the last 15 years with the support of different international agencies
(ADB, DFID and CIDA). The ADB provided a large assistance Program to support
decentralization efforts from 2004 – 2008. Currently, the World Bank is also supporting the
Punjab Cities Governance Improvement Project by strengthening resource planning, fiscal
accountability, public transparency and procurement practices across 5 large cities (Faisalabad,
Rawalpindi, Gujranwala, Multan and Lahore). These efforts demonstrate an appetite to transform
public sector management practices in Pakistan.
22.
The Government of Punjab’s reform initiatives with the help of international agencies and
the ADB PICIIP are theoretically underpinned by concepts of organizational change, new public
management and decentralization as a policy context. PICIIP will be grappling with attempts to
transform traditional public administrations i.e. TMAs in Sialkot and Sahiwal, in the Weberian
mold into modern public sector agencies governed by a new set of dimensions and principles. In
Pakistan, like elsewhere in the developing world, implementing decentralization policies is
controversial. Local governments struggle to come to terms with the pace of change needed to
deliver improved services and development impacts. Under-developed capacity and expertise
undermine reforms.
23.
There are several lessons for policy makers and practitioners alike when devising and
implementing municipal reforms as part of decentralization policies. These lessons draw on
Pakistan’s previous attempts to improve local governance and international perspectives.
Provincial dynamics is an important consideration for districts, tehsils and towns wishing to
embark on municipal reform. Provincial governments have continued to exercise command and
control over important policy areas like human resource and public expenditure management
including operational matters. In the new local government elections and structures it is
imperative that cities are given the freedom to liberate themselves and fulfill their potential as
modern public sector organizations when they can set their own policies and develop indigenous
performance management systems with appropriate structures. Once cities/towns have the
power to control front line activities, effective service delivery may materialize.
93
94
Sharma, C K (2007) New Public Management Challenges and Constrains: Botswana -University of Botswana
Rosta, M (2011) What Makes New Public Management Reforms Successful? An Institutional Analysis,
Corvinus University of Budapest, Hungry
Page 195
B.
Chapter VI
Relevant Institutions
24.
The bureaucratic machinery of the province is headed by a Chief Secretary who
coordinates and supervises functions of various Departments headed by Departmental
Secretaries except for Planning and Development which is headed by the Chairman Planning
and Development Board. All the Secretaries are assisted by Additional Secretaries, Deputy
Secretaries, Section Officers and support staff. The Departments have attached departments
and autonomous or semi-autonomous bodies to look after various functions. Province is divided
into 9 divisions with Sialkot Division being the newest and a total of 36 districts. Gujranwala
division consists of 6 districts and a total of 22 Tehsils.
25.
Overall institutional landscape of Punjab is reflected in Figure VI-2 and Figure VI-3
focusing on provincial, divisional, district and tehsil level departments / institutions responsible for
solid waste, water and wastewater, sanitation, urban transport and infrastructure development.
Key departments are discussed in the subsequent section.
Provincial Level
(i)
Planning and Development Board
26.
The Government of Punjab’s Planning & Development Department is the principal
planning organization at the Provincial level. It is headed by a Chairman. It is responsible for the
coordination and monitoring of the overall development plans of the Province. It coordinates and
monitors the programs prepared by the Provincial departments concerned with provincial
development. The department also prepares an overall provincial economic growth strategy,
urban sector plan, medium term development framework, the annual development program, and
public sector development programs (PSDP). It acts as a catalyst between different departments
in order to improve the pace and quality of economic development in the Province.
(ii)
The Urban Unit
27.
The Urban Unit was established in 2006, as a Project Management Unit (PMU) of the
Planning and Development department under the Government of Punjab. In 2012, it underwent
significant transformation and emerged into an independent private limited company, registered
with the Securities and Exchange Commission of Pakistan (SECP). The objective of The Urban
Unit is to provide guidance and support to the Government departments in developing urban
sector reforms and to coordinate the implementation of the reform program
28.
Thematic areas on which Urban Unit focuses includes GIS, urban planning and design,
solid waste management, water and sanitation, urban transport, municipal finance and urban
economics, information and communication technology, management information system,
capacity development and social and environment safeguards, and monitoring and evaluation
(M&E).
(iii)
Local Government and Community Development (LG&CD)
29.
The Local Government and Community Development (LG&CD) department is the
administrative department of local governments in Punjab and has an over-seeing role to ensure
that the local governments perform their functions within the provincial framework and adhere to
the federal and provincial laws. The Department is assigned with the responsibility to implement
Punjab Local Government Ordinance (PLGO) 2001 and its successor the Punjab Local
Government Act 2013.
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Chapter VI
Figure V-2:
Existing Institutional Framework of Sialkot
Chief Secretary Punjab
Provincial Level
The Urban Unit
Local Government and
Community Development
Punjab Local Government
Board
Provincial Local Government
Commission
The Walled City of Lahore
Authority
Punjab Saaf Pani Company
(PSPC)
Divisional Level
DG Local Government and
Housing, Urban Development
& Public Health Engineering
Department (HUD & PHED)
Finance
Communication & Works
(C&W)
Environment Protection
Punjab Housing and Town
Planning Agency (PHATA)
Transport Planning Unit
Public Health Engineering
Department (PHED)
Provincial Transport
Authority
Bahawalpur Development
Authority
Punjab Municipal Development
Fund Company
Academy, Lalamusa
Excise & Taxation
Industries, Commerce and
Investment
Home Department
Police
Other Provincial Departments
Agriculture, Auqaf and Religious Affairs, Chief
Minister’s Inspection Team, Cooperatives, Energy,
Food, Forestry, Wildlife and Fisheries, Health, Higher
Education, Human Rights and Minorities Affairs,
Information and Culture, Labour and Human
Resource, Law and Parliamentary Affairs, Literacy
and Non Formal Basic Education, Livestock and Dairy
Development, Management and Professional
Development , Mines and Minerals, Population
Welfare, Public Prosecution, School Education,
Services and General Administration, Social Welfare
and Bait-ul-Maal, Special Education, Women
Development, Youth Affairs, Sports, Archeology &
Tourism, Zakat and Ushr Irrigation
Divisional Director LG&CD
Cattle Market Management
Company Gujranwala Division
Regional Police Officer
Additional Commissioner
Coordination
Development and Finance
Revenue
Construction
Chief Engineer
District Coordination
Officer / District Collector of
1. Gujranwala
2. Hafizabad
3. Gujrat
4. Narowal
5. Mandi Bahauddin
Sialkot Chamber of
Commerce and Industry
DSP Traffic Police
District Coordination
Officer / District Collector
Assistant Director Local
Government (ADLG)
Executive District Officer
Health
District Officer
Finance and Budget
Education
District Officer Excise
and Taxation
Finance and Planning
District Officer
Planning
District Officer
Accounts
Agriculture
District Officer
Enterprise and
Investment Promotion
Additional District
Collector (ADC)
Roads
District Officer Roads
District Officer
Building
District Officer
Environment
Deputy District
Officer Roads
Deputy District
Officer Building
Deputy District
Officer Environment
District Regional Transport
Authority (DRTA)
Tehsil Level
Tehsil Municipal
Administration Sialkot
Tehsil Municipal Officer
Sialkot
Tehsil Officer Finance
UC Level
Board of Revenue
Commissioner Gujranwala
Division
District Government
Sialkot
District Level
Transport Department
Tehsil Officer Regulation
Tehsil Officer P&C
Cantonment Board Sialkot
Tehsil Officer Infrastructure
and Services (TO I&S)
Sialkot Waste Management
Company (SWMC)
Assistant
Commissioner (AC)
Sialkot Transport
Company (STC)
Union Council Administration
(at each Union Council)
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Chapter VI
Figure VI-3: Institutional Framework of Sialkot in The Punjab LGA 2013
Chief Secretary Punjab
Provincial Level
The Urban Unit
Local Government and
Board
Provincial Local Government
Commission
The Walled City of Lahore
Authority
Punjab Saaf Pani Company
(PSPC)
Housing, Urban Development
& Public Health Engineering
Department (HUD & PHED)
Finance
Transport Department
Excise & Taxation
Board of Revenue
Divisional Level
Industries, Commerce and
Investment
Communication & Works
(C&W)
Other Provincial Departments
Punjab Housing and Town
Planning Agency (PHATA)
Transport Planning Unit
Public Health Engineering
Department (PHED)
Provincial Transport
Authority
Bahawalpur Development
Authority
Academy, Lalamusa
Police
Commissioner Gujranwala
Division
Divisional Director LG&CD
Cattle Market Management
Company Gujranwala Division
Home Department
Agriculture, Auqaf and Religious Affairs, Chief
Minister’s Inspection Team, Cooperatives, Energy,
Food, Forestry, Wildlife and Fisheries, Health, Higher
Education, Human Rights and Minorities Affairs,
Information and Culture, Labour and Human
Resource, Law and Parliamentary Affairs, Literacy
and Non Formal Basic Education, Livestock and Dairy
Development, Management and Professional
Development , Mines and Minerals, Population
Welfare, Public Prosecution, School Education,
Services and General Administration, Social Welfare
and Bait-ul-Maal, Special Education, Women
Development, Youth Affairs, Sports, Archeology &
Tourism, Zakat and Ushr Irrigation
Punjab Municipal Development
Fund Company
DG Local Government and
Environment Protection
Development and Finance
Coordination
Regional Police Officer
Revenue
Construction
Chief Engineer
Assistant Director Local
Government (ADLG)
Cantonment Board Sialkot
District Collector
Sialkot
Sialkot Chamber of
Commerce and Industry
DSP Traffic Police
Municipal Corporation
Sialkot
Additional District
Collector (ADC)
District Level
Chief Officer Sialkot
Sialkot Waste Management
Company (SWMC)
Budget and planning, properties,
assets, internal and external audit,
taxes, fees, rates, rents, tolls,
charges, fines and penalties, small
and medium size enterprises,
Regulation of dangerous and
offensive articles and trades, licenses,
permits, grant permission,
encroachments, enforcement,
environment
Urban Union Councils
Spatial plans, master plans, land use
control, zoning, express ways, flyovers, bridges, roads, under passes,
streets, lighting, parks, playgrounds,
billboards, hoardings, firefighting,
slaughterhouses
District Regional Transport
Authority (DRTA)
Water sources and reservoirs , water
supply, sanitation, solid waste
collection and sanitary disposal of
solid, liquid, industrial and hospital
wastes, landfill site and recycling and
treatment plants
public transport, mass transit, traffic
planning, engineering and
management, parking places, stands
and terminals,
Assistant Commissioner
(AC)
District Education Authority
Sialkot Transport
Company (STC)
District Health Authority
Municipal Committee of
Daska, Pasrur and Sambrial
Urban Area Of Sialkot District
Rural Union Council
District Council
Sialkot
Rural Area of Sialkot District
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Chapter VI
30.
The department is also responsible for the formulation of public policy and its
promulgation, updating of laws, rules and guidelines for the working of local government
department, coordination with Federal/Provincial Government departments and allied agencies
as well as all the three tiers of local governments on the issues pertaining to the local
government system.
31.
The Department has 6 attached departments ‘Punjab Local Government Board,
Bahawalpur Development Authority, Provincial Local Government Commission, Punjab Municipal
Development Fund Company, The Walled City of Lahore Authority, and Directorate General
Local Government and Community Development.
32.
The Punjab Local Government board is responsible for the service matters of members
of Local Council Staff (LCS) and TMA cadre, postings/transfers of all officers in the TMAs,
conduct disciplinary proceedings against LCS/TMA cadre officers, recruitment by the
Government on the basis of written examination conducted by the PLGB, maintenance of
pension fund, and maintenance of accounts received from Local Governments.
(iv)
Housing, Urban Development and Public Health Engineering
33.
The Housing and Physical Planning Department (H&PP) was created in 1972 which went
through frequent changes and finally given the name of “Housing, Urban Development & Public
Health Engineering Department (HUD&PHED)” to depict Urban Development Authorities and
Public Health Engineering Department as its main organs.
34.
The Public Health Engineering Department (PHED) is a sub department of Housing,
Urban Development and Public Health Engineering they plan, design and implement water and
sanitation facilities in rural and urban areas, except areas under the oversight of WASAs.
Allocations for rural areas and some large projects are directly given to PHED, which is the
planning and executing agency for most WSS investments. The PHED’s Technical and
Community Development staff provides technical and management support to Community Based
Organizations (CBOs) who are operating & maintaining functional rural water supply schemes on
self-help and self-financing basis95.
35.
Punjab Housing and Town Planning Agency (PHATA), Development Authorities, Water
and Sanitation Agencies (WASAs), Traffic Engineering and Transport Planning Agency (TEPA),
and Parks & Horticulture Authorities (PHA) are also under the administrative control of Housing,
Urban Development & Public Health Engineering Department (HUD&PHED).
(v)
Punjab Saaf Pani Company (PSPC)
36.
The Punjab Saaf Pani Company (PSPC) was incorporated in March, 2014 under Section
42 of the Companies Ordinance 1984 to improve water supply in terms of, both, access and
quality of drinking water. It is mandated to conceive, plan, design, execute and manage projects
for provision of safe drinking water to the communities living in rural and peri-urban areas of the
province.
37.
It is currently preparing a Master Plan for sustainable safe drinking water solutions in a
comprehensive and integrated manner. This brings PSPC to the challenge of institutional
redesigning of the entire water supply sector in rural and peri-urban areas, which are not covered
by WASAs in metro cities, or by TMAs in small and medium-sized towns.
95
Investing Wisely Sanitation and Water Saving lives; Sanitation and Water for All (SWA) PAKISTAN Sector
Status Report 2012
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Chapter VI
(vi)
The Punjab Transport Department
38.
The Punjab Transport Department is responsible for public transport policy and planning
in the Province. It was established in 1987 under the West Pakistan Motor Vehicles Ordinance
1965. The current set-up of the transport department includes the secretariat, attached
departments, Transport Planning Unit (TPU) and Lahore Transport Company. The Transport
Planning Unit (TPU) is a technical body, which develops policy and oversees transport planning,
and implementation of plans, throughout the province.
39.
The department is responsible for the licensing of public transport services through the
Provincial Transport Authority (PTA). It is also responsible for the implementation of government
policies for provision of affordable, comfortable and efficient transport services across the
province, preparation and implementation of development plans, Initiation of special public
transport initiatives like subsidies, environment friendly transport, and fixation and regulation of
public transport fares.
(vii) Communications and Works Department
40.
This provincial department was set up in 1962 in compliance with the West Pakistan
Highways Ordinance 1959. It is responsible for planning, execution, development and
maintenance of all provincial roads and bridges through annual development program, sugar
cane access and foreign assistance. With regard to highways, it carries out the following
functions:
40.1. Defining standards and specifications for various types of roads and bridges;
40.2. Planning, designing, construction, maintenance, repairs and improvements of
roads, bridges, culverts, causeways and motorized launches;
40.3. Administration of road and bridge tolls and the lease of land for filling/service
stations;
40.4. Road research and materials testing;
40.5. Execution of works on behalf of other agencies; and
40.6. Engineering training.
(vii) Environment Protection Department
41.
Punjab is the first province where an Environmental Protection Agency (EPA) was
created in 1987. In 1996, a separate administrative unit, Environment Protection Department
(EPD) was formed under the Government of the Punjab. EPA Punjab was then detached from
the HP&EP Department and now works as a functional unit under the EPD, Punjab.
42.
Provincial Environment Protection Agency (EPA) is given statutory cover through the
Pakistan Environmental Protection Act (PEPA) 1997. According to PEPA Section 26 the Federal
Government may delegate any of its or of the Federal Agency's powers and functions to any
Provincial Government or any Government Agency. Moreover, the Provincial Government may
delegate any of its or of the Provincial Agency's powers to any Government Agency of such
Provincial Government or any local council or local authority in the Province.
43.
Under section 16 of the 1997 PEPA the Federal Agency or any Provincial Agency that is
satisfied that the discharge of any waste in violation of the provisions of the Act is likely to occur
or occurring are empowered to direct the responsible person to take necessary measures. The
provincial EPAs have been empowered to issue an Environmental Protection Order to deal with
an actual or potential adverse environmental effect following a violation of the provisions of the
Act. This may include immediate stoppage of pollution, installation of pollution control devices
and action for disposal of waste and restoration of environment.
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Chapter VI
Divisional Level
(i)
Commissioner Gujranwala Division
44.
The Commissioner’s office was abolished along with that of the Deputy Commissioner at
the time of the introduction of the local government system in 2001. However, the Punjab
Government, in October 2008, revived the post of Divisional Commissioner and proposed
amendments to various laws to make it an effective office of coordination and control.
45.
The Commissioner at the Gujranwala division level is the prime agent of the Provincial
Government, overseeing the functions of line departments. He is mainly responsible for three
important functions: coordination, magistracy and land revenue collection.
46.
He is supported by the District Collector (DC) and Additional DC for land revenue and
appellate matters at district and tehsil level. The District Coordination Officer who is the head of
district administration also holds the District Collector charge.
(ii)
Cattle Market Management Company Gujranwala
47.
Cattle Market Management Company Gujranwala is recently established at divisional
level under section 42 of Companies Ordinance 1984 to reform operation of cattle markets and
their management to discourage extortion, corruption, role of middlemen and official mafias. It
will take over the operations of the existing cattle markets from TMA Sialkot and other local
governments in Sialkot and others districts in Gujranwala Division. In total there are nine cattle
market management companies being established in each division.
District Level
(i)
Works and Services Department of District Government Sialkot
48.
Works and Services department of District Government Sialkot, under the Executive
District Officer, is conceived as the main agency responsible for the management of the urban
street system. Most of its senior staff were transferred from the Government of Punjab
Communication and Works Department and, in many ways, remain in closer coordination with
the provincial agency. The EDO Works and Service (EDO W&S) is responsible for the
construction, improvement and maintenance of all roads and public buildings in Sialkot City.
49.
The EDO supervises the functions of three District Officers, who look after roads,
buildings and environment. As he and most of his senior road staff had been transferred to
CDGF from the Provincial Communications and Works Department, it is perhaps natural that
their professional links remain closer with the Government of Punjab C&W Department than with
the local agencies.
(ii)
District Officer Roads
50.
The district’s road department is the sub department of Works and Services department
of District Government Sialkot, which is headed by District Officer Roads. The department is
responsible for the management of all primary roads in Sialkot as well as the secondary roads in
other Tehsils of Sialkot district. It is also responsible for the construction and maintenance of
roads, sidewalks and street lighting.
(iii)
Environment Department of District Government Sialkot
51.
The district’s environment department is the sub department of Works and Services
department of District Government Sialkot, which is headed by District Officer Environment. The
major functions of the department include:
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Chapter VI
51.1. To assist Provincial Environment Protection Agency (EPA) in the discharge of its
functions under the Pakistan Environment Protection Act, 1997
51.2. Regulate motor vehicles subject to the provision of the Pakistan Environment
Protection Act, 1997 and the rules and regulations made there under
51.3. To ensure, guide and assist the proponents of new projects in submission of
initial environmental examination (IEE)/ Environmental Impact Assessment (EIA) to the
DG Punjab EPA for approval.
51.4.
Identify the needs for legislation in various sectors of the environment
51.5. Ensure the implementation of environment protection and preservation measures
in all development projects at the district level and to sensitize government agencies on
environmental issues
(iv)
District Excise & Taxation
52.
The District’s Excise and Taxation department is the sub department of Finance and
Planning department of District Government Sialkot which is headed by District Officer Excise &
Taxation. It is responsible for the motor vehicles registration and payment of the token tax for the
entire Sialkot district. The motor vehicle registration and payment of the token tax in Sialkot is
computerized, along with all the districts of the Punjab province.
(v)
Sialkot Transport company
53.
The Sialkot Transport Company (STC), an autonomous organization; established under
the administrative control of the Secretary, Transport Department Government of Punjab. It is
managed by the Sialkot Chamber of Commerce and Industry (SCCI). It currently has a fleet of 20
buses, which are plying on the Sialkot – Pasrur route.
(vi)
The Deputy Superintendent of Police (DSP) Traffic Police, Sialkot District
54.
The Deputy Superintendent of Police (DSP) Traffic Police, Sialkot District is under the
District Police Officer (DPO). The Traffic Police has the primary responsibility to regulate and
enforce smooth flow of traffic and is also in-charge for the issuance of the traffic license for the
Sialkot District.
Tehsil Level
(i)
Tehsil Municipal Administration Sialkot
55.
Since the local government reforms in 2001, several of the services, which were
previously the domain of urban or rural local councils, have been spatially and functionally
integrated at the Tehsil level in Sialkot. Services provided by the Local Government and
Community Development (LG&CD) and the Housing, Urban Development (PHUD) and Public
Health Engineering Department (PHED) have been devolved from the Province to the Tehsil
level. The devolution of these departments has ensured that the provision of municipal services
is now the sole functional responsibility of the Tehsil Municipal Administration. Amongst them are
key municipal services such as water supply, sewerage, sanitation, and drainage schemes.
56.
Tehsil Municipal Officer (TMO), the highest-ranking official in the Tehsil Municipal
Administration, heads the executive branch of the tehsil government. The TMO performs
coordination functions similar to those of the DCO at the TMA level. The executive branch is
divided into 4 departments and a Tehsil Officer (TO) heads each of the departments (Finance,
Planning and Coordination, Regulation and Infrastructure and Services) to carry out its functions.
The Chief Officer and his staff are responsible for Operation and Management of Water and
Sanitation services. Details are as follows;
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Chapter VI
56.1. Tehsil Officer Municipal Regulations is responsible for licensing, management of
municipal lands, estates, properties, facilities and enterprises and enforcement of
relevant municipal laws, rules and byelaws.
56.2. Tehsil Officer Infrastructure and Services is responsible for water, sewerage,
drainage, sanitation, roads, other than Provincial and district roads, streets and street
lighting; firefighting, park services.
56.3. Tehsil Officer Planning is responsible for spatial planning and land use control;
building control; and coordination of development plans and projects with Union
Administration, Village Councils and other local governments.
56.4.
Tehsil Officer Finance is responsible for budget, revenue and accounts.
(ii)
Sialkot Waste Management Company
57.
Sialkot Waste Management Company (SWMC) is established under section 42 of the
companies’ ordinance 1984 on 12 July 2013. SWMC started its operation from 31st March 2014.
SWMC is governed by a Board of Directors (BODS), which is headed by a Chairman.
Professionals of different disciplines - for operations and management of solid waste - have been
hired in the company, which were lacking in the previous TMA. Management structure of SWMC
is mentioned in Figure VI-4.
58.
A Services and Asset Management Agreement (SAMA) was signed between TMA
Sialkot and SWMC. All the functions and assets related to solid waste management of TMAs
have been entrusted to SWMC. TMA has shifted their 673 solid waste management staff, the
budget, including 2 Sanitary Inspector, 18 Sanitary Supervisors and 653 Sanitary Works to
SWMC. However, not all the positions are filled and to fill the shortage of manpower at
operational level, the SWMC regularly employs contingent staff (daily wage).
Figure VI-4: Sialkot Waste Management Company Organogram
Chairman
0
Board of Directors
0
Chief Internal Audit
1
Managing Director
1
Mannager Audit
1
Company Secretary
1
Senior Manager Admin &
HR
1
Chief Financial Officer
1
Manager P&C
1
Manager Admin & HR
1
Manager Finance
1
Assistant Manager P&C
1
Assistant Manager Admin
1
Assistant Manager F&B
1
Assistant Manager HR
1
Assistant Manager
Accounts
1
Senior Manager
Operations
1
Manager Workshop
1
Manager Communication
1
Manager MIS
1
Assistant Manager
Communication
1
Assistant Manager MIS
1
Assistant Manager Audit
1
Auditors
2
Manager Dumpsite/
Landfill
1
Assistant Manager
Planning
1
Manager Operations
1
Assistant Manager
Operations
2
Source: Sialkot Waste Management Company
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Chapter VI
59.
Similarly, there are 25 driver’s workshop and 33 loaders workshop working informally
with SWMC. SWMC has recalled all sanitary workers which were on TMA payroll and transferred
to the company but working on special assignment with other departments or at government
official’s homes. To improve attendance, the company has installed a biometric attendance
system on a pilot basis.
60.
Sialkot waste management company and TMA Sialkot were required to develop key
performance indicators as part of a performance review. This was a prerequisite for any financial
disbursement from TMA. However, they are yet to be developed.
(iii)
The Cantonment Board Sialkot (CBS)
61.
Sialkot Cantonment is an area in Sialkot adjacent to the city area, which is managed by
the armed forces (under the Cantonment Act 1924) to provide civic facilities to its residents who
are typically serving or retired army personnel. Sialkot Cantonment Board is the administrative
body of Sialkot Cantonment. It covers an area of 6781.77 acres (27.445 km2).
62.
Sialkot Cantonment Board is under National Jurisdiction and has virtually no institutional
links with local and provincial agencies in Sialkot. The cantonment maintains its own
infrastructure of civic facilities
(iv)
Key Institutional Changes in the Punjab Local Government Act 2013
63.
On August 23, 2013, the Provincial Assembly passed the Punjab Local Government Act,
2013 (XVIII of 2013), by replacing the Punjab Local Government Ordinance, 2001, (XIII of 2001).
Later, on 13th September, 2013, vide Notification No. SOR (LG) 39-20/2013, issued under subsection (3) of section 1 of the aforesaid Act, all previsions of the Act except section 154 thereof
dealing with repeal of 2001 Ordinance were enforced with immediate effect. This is an interesting
notification, which on paper implemented new Punjab Local Government Act 2013, but section
154 is yet to become operational, meaning thereby that the Punjab Local Government Ordinance
2001 is still operational.
64.
The new legislation introduced several levels of Local Governments and Authorities at
local level in Sialkot district, and also created urban rural divide. Some of the key changes are
mentioned below and spatially presented in Figure VI-5 and Figure VI-6.
64.1.
64.2.
64.3.
64.4.
64.5.
64.6.
64.7.
Abolishment of District Government Sialkot
Abolishment of Tehsil Municipal Administration Sialkot, Daska, Pasrur and
Sambrial
Creation of Municipal Corporation Sialkot for urban area of Sialkot City
Creation of Municipal Committee for each urban area of Daska, Pasrur and
Sambrial
Creation of District Council for the rural area of Sialkot District
Creation of District Education Authority for Sialkot District
Creation of District Health Authority for Sialkot District
65.
A Mayor will be the executive head of the Municipal Corporation Sialkot. The Chief
Officer (CO), the highest-ranking official in the Municipal Corporation Sialkot will head the
executive branch of the Municipal Corporation. The Chief Officer will coordinate and facilitate the
performance of functions assigned to the Municipal Corporation under the supervision of the
Mayor.
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C.
Chapter VI
Political Accountability
Lack of representation
66.
A fundamental characteristic of the current structure of governance at tehsil level is the
lack of local representation. However, this is expected to change in 2016 with new local
government elections earmarked for late 2015. Without a political head or town Nazim, political
accountability is undermined. In the previous local government system, between 2001- 2008
Nazims were elected through an electoral college consisting of directly elected union councilors.
While the system was skewed in favor of politicians serving the interests of union councilors
rather than the wider electorate some semblance political accountability existed. A system was in
place allowing albeit a narrow constituency to hold those in public service to account for poor
municipal performance.
67.
New local government elections scheduled in December 2015 will take place on a party
basis and offer greater political accountability. Nazims at district and tehsil level will be able to
hold executive heads of government departments responsible and accountable for appropriate
service provision and delivery. It remains to be seen to what extent this will be exerted in
practice. Adequate representation and a clear mechanism for accountability will be essential for
effective reform of the local government system. The challenge will be to establish a system that
avoids elite capture and reflects broad-based representation - where union councilors represent
a concentration of local elite interests, as is common across Pakistan.
Mitigating competing interests
68.
The representative nature of local government will further be called into question by the
existence of powerful local political factions, in the shape of Sialkot’s MPAs and MNAs all of
whom will have strong traditions of holding political office and whose origins will be from
established political families and connections. With strong grassroots support, they may claim to
have greater popular legitimacy than the Tehsil Nazims, as was commonly the issues across
Pakistan in the previous local government system. From 2001- 2008 with considerable
resources and leverage at their disposal, MNAs and MPAs posed a significant challenge to local
government. They often carried out parallel development functions or lobbying heavily for local
government spending to be channeled in a given direction. Such tensions led to a breakdown in
cooperation and over development proposals, to the extent that both district and tehsil
governments often refused to provide infrastructure maintenance for projects funded through
MPA/MNA budgets.
69.
The new system and reforms could also face similar challenges for competing resources
and development initiatives. It will be important in the new system for TMAs/Municipal
Corporations to navigate these in a way that there is greater cooperation and consensus
between political representatives and municipal executives about Sialkot’s overall goals,
strategies and investment programs. It will be essential for all political and non-political agents to
plan accordingly. The troika of MCs, political representatives and private sector/citizens will need
to work together in Sialkot to achieve success.
Accountability of decision-making
70.
In spite of these challenges, a devolved system is more accountable than a non-devolved
one. Previously, town/tehsil Nazims reported to their counselors and councils directly. They were
empowered to hold TMA staff to account and were given the responsibility for monitoring service
delivery. However, it is widely acknowledged that this process was executed imperfectly and not
always in the spirit of the 2001 local government ordinance. Nevertheless, it gave ordinary
citizens a voice in the debate over issues of public service provision and substantially increased
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the channels for complaint. Issues raised at the union council level were debated at the tehsil
council level.
71.
Since 2008 TMOs have reported to a non-elected provincial secretariat through their
executive heads or administrators. The framework for citizen voice and public accountability was
weakened, though other channels such as the use of non-government organizations, MPAs and
MNAs remained routes for raising concerns around failing public services. However, this is
limited in scope and it is now hoped that new local government elections will offer ordinary
people and citizens of Sialkot the opportunity to hold to account newly formed municipal
corporations. It is essential to have a formal framework for accountable- decision-making as soon
as possible. The local government elections in December 2015 may usher in such a framework.
Provincial- local relations
72.
The character of the relationship between provincial government – local authorities varies
from time to time. From 2001-2008 substantial powers were transferred from the province to the
districts and tehsils, however, there was no devolution from the federal to provincial level.
Consequently, the responsibilities of the province were reduced, which was the cause of much
consternation between provincial and local authorities. In the current system, with administrators
in charge of key decision-making and framework planning, these relations have been far more
harmonious. The TMAs report to the provincial local government and community development
department.
73.
In Sialkot some officers have raised concerns on how the relationship will unfold once the
new municipal governments are in place and reporting/accountability mechanisms are redrawn.
A return to the pre-2008 environment is envisaged to some extent. From the perspectives of the
administrators there are no issues between province and local governments in Sialkot. The
provincial government is in the driving seat for new local government elections and reforms and
with the support of specialized entities such as the Urban Unit TMAs and in the future municipal
corporations will have considerable support from the province to implement new plans, Programs
and initiatives to improve public service provision. This is discussed in more detail in the
benchmarking section.
Excessive Powers
74.
The main focus of provincial-local tension is the authority retained at the provincial level
to determine staffing levels, transfers and promotions. This was true in the past and remains the
case today. DCOs, Administrators and TMOs and Nazims previously believe that the spirit of
devolution was never fulfilled and is unlikely to until the province devolves autonomy to the
TMAs/ Municipal Corporations for setting the size of its establishment. Sialkot TMA has been
particularly disadvantaged in this respect from the outset. Many positions remain vacant since
the TMAs sanctioned staffing at its creation in 1993. The provincial ban on recruitment which
followed in various stages over the last two decades has meant that the tehsils/towns suffers
from a legacy of trying to fulfill their functions and responsibilities with a staff workforce that
today, amounts to just 65 per cent of its sanctioned strength.
75.
The senior officials in tehsil administrations view the inability of provincial government to
fill key posts, as a serious challenge. There is a perception of a lack of responsiveness on the
part of the Services & General Administration (S&GA) and Finance departments to the problem
of filling the many vacancies that persist despite numerous representations by the TMAs.
Compounding this are the short-term horizons and lack of motivation that arise out of the
provincial propensity for transferring or promoting key officers, often inexplicably and at short
notice. Provincial line departments also exert considerable influence particularly in the
Infrastructure and Finance departments. Here, departmental contact with the province is primarily
through local MNAs and MPAs who are able to influence provincial departments to issue
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directives for the implementation of schemes falling outside the tehsil development plan. In
effect, the department finds itself trying to please two separate taskmasters – with plenty of
scope for conflicting interests to surface.
D.
Institutional Analysis
Legal Framework
76.
Constitutionally, Pakistan remains a two-tier federal state: the 1973 Constitution initially
did not recognize local governments as the third tier of government. This meant that local
governments do not have the constitutional right to a share of provincial revenues that the
provinces have to a share of federal revenues. Two factors have contributed to this. First, it was
not until 1958 (11 years after Pakistan's independence) that political leaders and parties agreed
on a constitution, which was subsequently amended twice. Second, the military took the
country's reins at several critical junctures and experimented with various forms of local
government, primarily surrogates for a parliamentary form of democracy. However, in 2010 the
18th Amendment to the Constitution of Pakistan made it mandatory. Article 140(A) of the
Constitution explicitly states – ‘each Province shall, by law, establish a local government system
and devolve political, administrative, and financial responsibility and authority to the elected
representatives of the local governments’.
Policy Framework
77.
In August 2001, Pakistan initiated its devolution Program with a set of changes to the
structure of local government that created some 6,500 new local governments with responsibility
for a broad range of devolved functions and services. The changes included the abolition of the
existing three levels of provincial administration (divisions, districts and tehsils) and the creation
of a new tier of local governments comprising districts & city district, tehsils & town (tehsil in
districts and towns in city districts) and union administrations, and the replacement of the existing
municipal bodies by these new local governments. These arrangements apply to all provinces,
but not to the Cantonment (military) areas of towns and cities, or the Federally Administered
Tribal Areas, or Jammu and Kashmir.
78.
The Commissioner’s office was abolished along with the Deputy Commissioner at the
time of the introduction of the local government system in 2001. However, the Punjab
Government, in October 2008, revived the post of Divisional Commissioner and proposed
amendments to various laws to make it an effective office of coordination and control. Thus
rendering local governments loyal provincial subjects, the constitutional protection to LGO 2001
was time barred. This meant that the Punjab province could not amend or change LGO without
seeking approval of the President. The constitutional protection to the current local government
system ended on 16th October 2009 and term of Nazims ended on the same day. However,
subsequent to that Punjab provincial government was free to legislate on the form of local
governments they sought to retain. Thus, with the change of national and provincial governments
after the elections in 2008, Local government elections were stalled across the province including
Sialkot.
Post 2008 Framework: 2013 Local Government Elections
79.
On August 23, 2013, the Provincial Assembly passed the Punjab Local Government Act,
2013 (XVIII of 2013), by replacing the Punjab Local Government Ordinance, 2001, (XIII of 2001).
Later, on 13th September 2013, vide Notification No. SOR (LG) 39-20/2013, issued under subsection (3) of section 1 of the aforesaid Act, all previsions of the Act except section 154 thereof
dealing with repeal of 2001 Ordinance were enforced with immediate effect. This is an interesting
notification which on paper calls to implement the new Punjab Local Government Act 2013 but
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section 154 is not operational, meaning thereby that the Punjab Local Government Ordinance
2001 is still in the field.
80.
This new legislation is more akin to the framework established in 1979, rather than the
devolution and decentralization system promulgated in 2001. It introduces several levels of local
government authorities as well as retaining several provisions of 2001 Ordinance, but no
administrative office has been devolved to the local governments and critically there appears no
provision for citizen voice. One of the key strengths of the 2001 Act was the provision of local
community organizations (CCBs) empowered and entitled to access funds for community
initiatives including the provision of community infrastructure. Though problems persisted around
the release of funds for CCBs and the considerable amount of funds that were underutilized,
there was a formal framework for citizen participation and voice. This is missing in the 2013 Act
and may undermine TMAs/Municipal Corporation credibility in the eyes of consumers and service
end users i.e. citizens. The onus will be on urban union councils in Sialkot to ensure they
adequately represent a broad electorate and hold the Sialkot municipal corporation accountable
for civic services.
81.
The new act affords local governments the ability to levy and raise local taxes and
financial control though there is little detail what this will mean for Sialkot as a municipal
corporation. The act says very little on the ability of the new municipal corporations to appoint
and remove staff from the executive. This historically remains the preserve of the provincial
government and it would seem it is unlikely to change in the near future.
TMA Sialkot Structure
82.
The local government re-organization in 2001 established three tiers of local government
in Sialkot at district, tehsil and union level. Each level of government is supported by an
administration. At Tehsil level the administrations comprise a Nazim, Naib Nazim, Tehsil
Municipal Officer (TMO), and staff in the Finance (F), Municipal Regulation (R), Planning and
Coordination (P&C) and Infrastructure and Services (I&S) sector.
83.
Since the local government reforms in 2001, several of the services that were previously
the domain of urban or rural local councils have been spatially and functionally integrated at the
Tehsil level in Sialkot. Services provided by the Local Government and Community Development
(LG&CD) and the Housing, Urban Development (PHUD) and Public Health Engineering
Department (PHED) have been devolved from the Province to the Tehsil level. The devolution of
these departments has ensured that the provision of municipal services is now the sole functional
responsibility of the Tehsil Municipal Administration. Amongst them are key municipal services
such as water supply, sewerage, sanitation and drainage schemes. This was a change from the
previous system, where these services were simultaneously provided by both the rural and urban
local councils and by the provincial line departments.
84.
The organizational structure of the TMA Sialkot is illustrated in figure 1. A Tehsil Nazim,
assisted by the Tehsil Municipal Officer, heads the Tehsil Municipal Administration Sialkot.
However, since 2009, local government in the Sialkot has remained in limbo. New elections were
deferred while provincial legislators talked about various options. In the absence of elected
representatives, the TMA Sialkot is headed by the post of ‘Administrator’ representing the
provincial government. This is likely to change when Municipal Corporations are established
following local government elections in December 2015. An elected Tehsil Nazim will replace the
Provincial Administrator. The executive position is likely to be taken by a Chief Officer and the
two positions are likely to constitute ‘corporate management’ within the Municipal Corporation.
85.
Presently, the Tehsil Municipal Officer (TMO) is the highest-ranking civil servant in the
Tehsil Municipal Administration and heads the executive branch of the tehsil government. The
TMO performs coordination functions similar to those of the DCO at the district level. The
executive branch is divided into 4 departments and a Tehsil Officer (TO) heads each of the
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departments (Finance, Planning and Coordination, Regulation and Infrastructure and Services)
to carry out its functions. The Chief Officer and his staff are responsible for Operation and
Management of Water and Sanitation services. The TMA has inherited staff from the former
urban councils, the rural district councils and also from various Provincial level departments
(Figure 2). The TMA Sialkot has a total of 1,553 sanctioned posts of which 51% (790) are filled
and 49% (763) are vacant. However, with the exclusion of staff that is transferred to Sialkot
Waste Management Company this number decrease to 880 of which 53% (464) are filled and
47% (416) are Vacant. Majority of the staff (83%) are working in Infrastructure and Services wing
of TMA and working at operational level as Sanitary Worker (48%), Naib Qasid (5%), Mali (5%)
and Mashki (4%).
Goals, strategies and objectives
86.
Goals, objectives and strategies are fundamental to the effective functioning of any
organization. They give shape to the main purpose of an organization and constitute a model
around which norms, rules, behavior, processes and working patterns revolve. The development
of goals, objectives and strategies, is at a very rudimentary stage in Sialkot. There is a weak
understanding of what goals and objectives – the foundation stones of strategic planning –
should be. As a result, there was limited scope for analysis of strategic management within
Sialkot TMA, other than the work completed by the Urban Unit and ADB PPTA team in 20082010. We begin with a review of what strategic management is, and what level of strategic
management might be appropriate for Sialkot TMA, followed by a brief audit of the extent of
understanding of goals, objectives and strategies across the TMA.
Strategic management
87.
Strategic management is a term that has been used to indicate a move in the focus of an
organization away from a primary concern with routine activities, work processes and inputs
(human, financial and technical) to a focus on outputs, objectives, outcomes and goals. Strategic
planning and management is concerned with defining and implementing a clear set of goals,
objectives and activities based upon the central aim or purpose of an organization within the
context of the wider political, social and economic environment within which the organization is
located. As such, it represents an essential part of the performance improvement process of any
organization and should be seen as a critical part of local and municipal governments and
corporations in Pakistan.
88.
One of the main concerns of strategic management relates to performance improvement,
defined in terms of internal performance (i.e. operations) and external performance (i.e. outputs
and outcomes that impact on the surrounding environment of the organization). Some
organizations refer to this as ‘results-focused’ management in an attempt to give even greater
emphasis to what is being achieved by the organization, rather than how it is achieving it. The
main issue here is that the content of any strategic planning and management approach has a
strong emphasis on results. At the heart of any strategic planning and management process
must be a system of measuring performance in some form. But it must be more than just a
numerical, data analysis mechanism. Performance management should also involve acting on
the information that emerges from the system, so that actions can be modified where necessary
to achieve improved results, introducing the idea of continually responding to new information to
improve performance leading to continuous improvement. In simple terms this means a
commitment to driving performance forward by measuring results properly and using that
information to achieve higher standards in the future.
89.
In Sialkot this process would need to be viewed as an internal management tool and
would need to be associated with a development of a management style that focuses more on
the local citizens and their needs. This has implications for the way that local government
managers work and the way that the organization communicates with local citizens. In this way, a
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mutually supportive structure can be implemented in which strategic planning is people-centered,
budgeting is directed at achieving results, assessment of performance identifies whether results
are being achieved, and in all cases the citizen has both information and the opportunity to
contribute. This contribution would go much further than periodic voting in local elections, and
greater opportunities would need to be provided by the tehsil officials and their senior line staff
for the public to influence, comment on and monitor outcomes designed to achieve the strategic
goals and objectives of the town administrations/municipal corporations and councils in a
meaningful way.
90.
At present, there is a complete lack of strategic orientation within the Sialkot TMA. In
spite of this the provincial government prepared its own strategy documents and sector
assessments, these have not trickled down to Sialkot. Work carried out in 2008-2010 by the
provincial government with ADB support seems not to have been advanced by the TMA staff. For
example, the perception within TMA staff is that the provincial government will provide further
support to develop this aspect of municipal performance. Efforts currently underway as part of
this project aim to address this very issue. Strategic planning is a process that enables an
organization to achieve significant changes in direction and activities by reassessing the goals
and objectives of the organization and the types of outputs, activities, and inputs required to meet
any redefined goals and objectives.
91.
Such a reassessment may lead to recommendations for change in organizational
direction that may be difficult to implement in the short term. It is important that strategic planning
processes include a method for the town administration to choose how it is going to allocate its
resources over the long term, and to be sure that its choices are implemented by its managers.
At the same time, a good strategic planning process should include arrangements for the
district/tehsil administration to secure economy, efficiency and effectiveness in all activities and
outputs. This process is now underway through the work of the ICDS team as part of this project.
Defining goals
92.
Strategic planning will usually begin with the definition of the main goal/s of the
organization that will, in turn, enable it to articulate a vision or mission. Whilst the main goal of
any private organization can be easily defined in terms of maximizing profits and hence the value
of shares, the goal of a public sector organization will be more difficult to define. This is mainly
due to the fact that government’s main purpose is to maximize public wellbeing and equity
requiring a careful balance of policies that will achieve development for the largest number whilst
protecting those most in need including the poor, vulnerable and minority interests. This same
goal or purpose can be applied to a town administration such as Sialkot within the context of a
more limited range of services. Goals should be expressed in terms of the high-level outcomes
that an organization aims to deliver which should reflect the fundamental purpose of the
organization. Care should be taken to ensure that the goals of the organization are not
expressed as a simple statement of what an organization currently does. Goals should be set
against a benchmark or standard that recognizes stakeholder needs.
93.
Goals should be formulated in such a manner that they take account of the likely
available resources to achieve the goals. This may lead the organization to modify its goals and
expectations of what is achievable. The following questions will help the organization to formulate
goals that are realistic and achievable:
93.1. Where does the organization want to be in x years?
93.2. What actions would be required to achieve this?
93.3. What is the cost of those actions in financial terms?
93.4. What can the organization afford to achieve during the life of the strategic plan?
94.
When these questions have been answered it will be possible for the organization to draft
its goals. Goals should incorporate measurable features such as: ‘what’, ‘where’ and ‘when’. This
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means moving from a mere expression of where the organization would like to be in future to
introducing a timeframe within which goals can be achieved. This will in turn help to formulate a
phased plan of actions over a number of years to achieve the expressed goals. This process
commenced with the ICDS work but will need to continue for the foreseeable future.
Expressing a vision
95.
Once the main goal of the organization has been agreed it is considered good practice to
articulate a set of guiding values and principles that will help towards the realization of goals.
This is especially the case for government departments and agencies where choices affect the
general public. District or tehsil councils need to communicate what they hope to achieve as part
of an explicit vision or mission of the future that will help to translate the council’s political
intentions into actions.
96.
While a ‘vision’ represents the situation the organization is trying to create or aspires to, a
mission is an obligation or desire to reach that achievement. In this sense the vision and mission
are best viewed as two aspects of the same basic concept, rather than as two separate aspects
of planning. Here the mission describes an object that has, as its output, achievement of the
vision.
97.
The most important features of a vision statement cover the following:
97.1. Based on agreed organizational values which act as a set of guiding concepts
97.2. Expressed in broad but concise terms
97.3. Memorable and easily understood by all staff
97.4. Express aspirations and expected future achievements of the organization
98.
Since the formulation of a vision, as an expression of the values and principles of the
district or tehsil council, needs to be attractive to voters it will need to reflect people’s needs.
Thus before a local government can express a vision, it needs an understanding of what is
important to its people.
Strategic plan
99.
Once organizational goals, vision and/or mission have been formulated it is possible to
prepare a detailed city development strategy and action plan based on a set of priority objectives
that will help to realize the goal within a defined time period. Most strategic plans are considered
medium-term instruments and may typically cover a five-year plan period. This is distinct from an
annual action plan that will define the activities to be prioritized for any one particular year. In
Sialkot, for example, whilst TMA has not previously formulated a city development strategy nor a
medium-term investment plan they have formulated annual action plans and budgets but these
do not relate to any clearly defined strategic objectives, vision or goals.
100. In order to formulate an integrated city development strategy and plan in Sialkot it would
be necessary to build the capacity of staff at TMA level to undertake the following activities:
100.1. Identification of the main needs of the area in terms of physical and social
development to address service gaps, deficiencies and opportunities – taking into
account economic, social and financial demands or constraints. Here, it is important to
focus on key needs so as to avoid a typical problem of identifying a long ‘shopping list’ of
needs that cannot be met within likely resource constraints. To define needs the
government has to adopt norms or standards so it can assess any gaps between what is
needed and what is currently provided. These norms have traditionally been based on
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professional assessments although there are several international organizations that set
standards and report on country conditions against nationally derived standards.
100.2. Identification of the main changes in services required to meet the priority needs
of citizens with an emphasis on improving access to services for all groups, especially
the poor and vulnerable, that the organization plans over the next few years. Once again
it is important at this stage to focus on the key changes likely to make real differences in
outcomes to ensure that the plan is achievable and can be implemented.
100.3. Formulation of performance standards to be provided including the quantity,
quality and coverage of services to meet agreed objectives and goals. This should
include a statement of how the organization (and, by implication, the public) will achieve
these service standards and how they will be monitored and evaluated. Service
standards should be defined in terms of the results to be achieved (i.e. percentage
increase in coverage rather than x quantity or time of human resource input).
100.4. Allocation of resources (human and financial) to meet service changes with a
variance analysis showing differences in requirement from past budgeted allocations and
a revenue plan and forecast to identify the sources of required revenue. This should
ideally include a cash flow projection showing critical assumptions about developments
outside the direct control of the organization including the level of federal or provincial
government support, wage and cost inflation and main financial risks.
100.5. This analysis should begin with a review of likely available revenue and an
assessment of the expenditure implications of the objectives and actions proposed in the
integrated city development strategy and action plan.
101. The completion of each of these activities will result in the formulation of a strategic
document - in this case - an Integrated City Development Strategy for Sialkot. The existence of
such a document is, in itself, of little use unless it is owned and communicated by the Sialkot
TMA, political representatives and staff. The process should ideally include participatory
discussions and consultations with key stakeholders, councilors, officers and employees
representing all levels and grades of the respective local government workforce. This is currently
underway and raised considerable interest widely amongst a diverse range of stakeholders.
Monitoring and Review
102. The ICDS and medium term investment plan needs to be subject to regular monitoring to
ensure it remains relevant to the local context of Sialkot TMA. The plan needs to take account of
shifting political priorities, emerging local needs and demands, and technical developments. The
monitoring and review process required for this is usually undertaken as part of strategic budget
monitoring and internal review ensuring that resources are allocated to policy priorities and to
areas that have been shown to be effective. They should not simply cover the allocation of
additional resources (or cuts); rather they should provide an opportunity to re-examine the
continued appropriateness of all expenditure under the organization's control.
Goals objectives and strategy in Sialkot: a local audit
103. Sialkot TMA has weak strategic vision and in a number of instances there is no
articulation of goals or strategic methods. Clearly, there are a number of endogenous and
exogenous problems, compounded by considerable capacity constraints, which have resulted in
weak planning, chronic short termism and a focus on only the most immediate and pressing of
government tasks. The articulation of appropriate goals and formulation of a simple strategic
vision, as described above, will be a critical first point of intervention in strengthening public
management in Sialkot. Early questions to senior officers at TMA levels revealed that the
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concept of using goals and strategy as a tool of proactive management remains largely
undeveloped and even misunderstood. Generally, there was little conception of departmental
objectives as something separate from the functional responsibilities of the department (for
instance, as listed in the Punjab Rules of Business) or the duties of the department’s senior
officers. Where clear responses were elicited from the departments of the TMA, on their
understanding of what constitutes a goal or objective the responses were as follows:
TMA Sialkot
-
TO Revenue: To collect the income targets estimated for the current financial
year
TO I&S: Supervision and provision of basic amenities; To carry out development
works and improvements in financial infrastructure
104. TMA offices have therefore drawn their understanding of their objectives in general from
their functional tasks and targets as defined in the Rules of Business. While a number of the
areas of ‘Allocated Business’ identified in the Rules of Business are objective-like in nature they
do not amount to strategic objectives as defined in the foregoing section. The reliance on
provincial descriptions of functional responsibilities as the definition of departmental objectives
underscores the weak formulation of goals and objectives, and a general absence of formal,
succinct and cohesive statements of objectives. There appears to be limited understanding of
whether or how this could be achieved, or even of the relevance of drawing up formal objectives.
105. The reliance on provincial descriptions of functional responsibilities as the definition of
departmental objectives underscores the weak formulation of goals and objectives, and a general
absence of formal, succinct and cohesive statements of objectives. There appears to be limited
understanding of whether or how this could be achieved, or even of the relevance of drawing up
formal objectives. However, recent advancements made by the provincial government in
developing economic growth and urban development strategies also appear not to have trickled
down to TMA officials in Sialkot. Infrastructure strategies and plans prepared in 2010 were either
not referenced or officials failed to recall that such documents existed. This highlights the need
for focused efforts to build capacity and embed strategic management capability across the
TMAs/Municipal Corporations in the coming months and years.
106. While TOs were generally positive about the idea of setting common objectives and
targets for each department, some expressed reservations about the practicality of such an
approach. Strategic goal setting would need to be driven by the executive and corporate
management and would need to factor in provincial-local relations for departments such as
infrastructure, finance and planning. Moreover, with the establishment of new municipal
corporations anticipated work on this would need to transcend the changes expected once the
elections are over and local political representatives in place.
Changing the Dynamics of Governance: Connecting with customers and citizens
107. Mechanisms to involve local representatives in policy and Program formulation appear
severely restricted from a TMA perspective since devolution was disbanded in 2008. The citizen
community board (CCBs) initiative suspended after the LGO 2001 was repealed after the 2009
national elections. There is little evidence that Sialkot TMA actively relies or engages with civil
society organizations or local community groups to assist with providing services or indeed
monitoring services if they reach their intended target groups. Since 2008 formal mechanisms for
citizen voice and accountability have been limited. Formal communication with external
constituents is absent.
108. The study team find there is little to no engagement with customers and citizens on how
service provision can be improved, the challenges faced by the TMA in cash strapped municipal
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financing environment. There is no formal mechanism or function within the TMA that allows it to
share success stories or inform the public of a mandate (beyond a rudimentary website) to serve
and deliver civic services. For example, discussions with officers from Infrastructure and Services
department revealed that while a key aspect of their work was connecting with customers they
saw little other opportunity to invest in a strategic partnership and address ways in which
services could be improved or the service experience enhanced. Officers in the water supply
team said they could see the benefit of sharing information through vehicles such as websites
but the TMA lacked expertise and with no computer operator positions filled within the TMA, they
saw little opportunity to develop a communication function using automated online mechanisms.
109. New local government elections and new Act of 2013 offer an opportunity for Sialkot and
other TMAs to begin work on improving civic engagement. One way this can be achieved is to
create a specialized communication function within the new Municipal Corporations once they
are operationalized. This department would be responsible for marketing and communicating the
business of government with internal and external constituencies. Something akin to the work
that is being undertaken by the World Bank Punjab Large Cities Program, where e-governance is
a key component of open and transparent local government. This will require provincial
government support through the provision of human and financial resources and eventually sign
off. If implemented it could aid service responsiveness within TMAs and ultimately improve how
services are delivered to citizens and customers alike.
E.
Organizational Analysis
Organization structure
110. The background to the evolution of the organizational design of TMAs highlights how
local governments across Pakistan were established according to a very uniform model, which
reflects neither the size of the population served, nor the size of the budget at the TMAs disposal.
A key department such as Financing illustrates some of the issues related to trying to apply a
standard model to a TMA such as Sialkot. The present situation indicates a number of vacant
positions. Out of 64 sanctioned positions, only 50 are filled and 14 are vacant. During recent
years the number of unfilled vacancies has been even greater. For many years the TO Finance
was required to manage his department without the full complement of staff. Sanctioned
positions have been filled over a period of 15 years. Nevertheless, although the department was
clearly understaffed during this period, its current ability to operate with far fewer staff than
dictated by the organizational design suggests that there is room for streamlining the structure
and combining some of the clerical and junior posts to take out the replication that occurs across
the finance department.
111. The nature of business allotted to Finance in the Rules of Business and LGO, and the
organizational structure carved out under the enabling rules clearly indicate that the Finance
department has been created on the basis of specific ‘purpose’ and to support ‘process’. Its
objective is to promote effective financial management of existing resources through prudent
financial advice and control. Theoretically, therefore, the department consists of technical and
management support groups. However, their design needs to be readjusted in the light of the
distinct realities from one TMA to another.
Staff and staffing strength
112. A major feature of Sialkot TMA is the overall lack of staff in place in relation to the
officially sanctioned posts – despite recruitment drives over recent years, we observe that 42 per
cent of positions for technical and supervisory staff remain vacant. This figure is considerably
higher for deputy/assistant tehsil officers at 60 per cent. Critically, the TMA is unable to operate
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as modern local government with all positions for those with IT and computing skills still vacant.
To meet staff shortages, the TMA deployed strategies to deploy staff on short- term contracts,
especially field staff such as sanitary workers. This highlights the operational problems facing
TMAs such as Sialkot.
113. Although the staffing establishment has been standardized across TMAs, Sialkot still
lacks many resources. Officers would typically not expect to find at their disposal adequate
facilities, equipment and vehicles to deliver civic services. As discussed below, therefore, the
current staffing position is therefore only partially a function of the organizational structure. It is
also partly a function of the lack of resources in the TMA and the general political economy,
which acts as a disincentive to potential entrants to the TMA. Meanwhile, the study team has
come across numerous instances of incumbent senior staff assiduously attempting to secure
transfers out of the district. Staffing is the one thing that the officers of Sialkot TMA are
unanimous about. TOs frequently expressed satisfaction with the system and organizational
structure, which they believed would function smoothly if only the province would do something
about filling the many vacant positions that persist across the TMA. The key staffing problems
faced by the TMA are problems of staffing strength, turnover and capacity.
Turnover
114. Staffing shortages are exacerbated by typically high rates of turnover, a problem endemic
to the civil service in Pakistan. At present there is a ban on postings and transfers but political
leaders are still able to lobby for exceptions to the ban and freely instigate postings in
collaboration with supporters at the provincial level. Officers can be transferred at short notice,
critically shortening the planning horizons of both individuals and the organization. Staff turnover
rates in Sialkot appear high among senior officials including the Administrator, TMO, TOs and
CO Head Quarter. From 2010 -2015 occupancy records show that posts were filled 46 different
times of which 35 (76%) times for less than one year (Figure VI-7). The turnover ratio in the
Infrastructure and Service wing of TMA is worse as one forth (5%) of Tehsil Officers (I&S) failed
to complete a whole month in their post (Figure VI-8). The combined problems of staff shortages
and turnover rates is acutely damaging when the TMA is trying to develop a long-term approach
to development planning and investment.
Figure VI-7: Senior Officials Length of Employment with TMA Sialkot
24%
25%
22%
Percentage
20%
17%
13%
15%
11%
10%
9%
4%
5%
0%
Less than
1 Month
1-4
4-6
6-9
9-12
12-24
Over 24
Months
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Figure VI-8:
Chapter VI
Tehsil Officer I&S: Length of Employment in Sialkot
25%
25%
25%
Percentage
20%
17%
17%
15%
8%
10%
8%
5%
0%
0%
Less than
1 Month
1-4
4-6
6-9
9-12
12-24
Over 24
Months
Spans of control
115. Reporting lines and related spans of control are determined by the organizational
structure and indicate the number of subordinates reporting directly to a line supervisor or
manager. There is a general correlation between the span of control and the number of layers
found within an organizational structure. Analysis of the reporting lines within TMA departments
of Sialkot demonstrates a relatively high ratio of supervisory staff to subordinates. This indicates
the presence of low or narrow spans of control in all spheres of local government with a
corresponding ‘tall’ organizational structure that is typical of a multi-layered, hierarchical
organization such as those found in government.
116. The organizational structure for Sialkot TMA is based upon a standard bureaucratic
template that provides for a high level of supervisors to maintain close control over a relatively
small number of subordinates at almost every level of the organization. This conforms to
classical management theory that propounded the ideal span of control as representing one
supervisor to every five or six subordinates. Low or narrow spans of control reflected in this
system are usually accompanied by multiple organizational layers and represent a command and
control approach to management that has been enshrined in many public sector organizations.
Although a low span of control will enable managers to supervise staff at close quarters, many
management theorists argue that it represents an inefficient system with too many supervisors
operating through too many layers of bureaucracy. Low or narrow spans of control also reflect a
basic lack of trust in subordinates, and this was in fact found to be a dominant attitude amongst
managers during investigations of organizational culture.
117. Analysis of the organizational structure of the main target departments at TMA level and
demonstrates the importance given to a low span of control with one supervisor for around 10 or
15 subordinates in the prescribed organizational structure of most departments. The prescribed
structure for the TO Finance for example, specifies one Assistant TO post for 15-20 officers. In
the Tax Branch department, a Collector supervises almost 20-30 staff. As one proceeds down
this organizational structure there is a sharp decrease in the span of control subordinates per
supervisor. The Infrastructure and Services Department also demonstrates a similar structure
and span of control with between 15-20 subordinate staff per supervisor. This is higher than
optimum.
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118. This PFS identifies a range of problems associated with low spans of control and
organizational hierarchy. These include the slow processing of files and work, information
distortion, ineffective decision-making and lack of action arising from the general preoccupation
with supervision rather than implementation. At the same time the emphasis on supervision, in
the absence of motivation and within a bureaucratic culture, has failed to produce a welldisciplined and managed workforce capable of delivering results. The low spans of control found
in almost every department have resulted in other inefficiencies arising from information
distortion through multiple layers of management, slow decision-making and - taking and a high
degree of compartmentalization and insulation.
119. Recent management literature recommends higher or wider spans of control and flatter
organizational structures as more conducive to internal operational efficiency and enhanced
productivity with a balanced focus on the means to achieve performance rather than the means
to supervise performance. Wider spans of control are particularly relevant to those work
situations where a large number of staff perform similar functions as is the case in many local
government organizations. It should be noted that any formal change to shift local government
departments from low spans of control and multiple layers to higher spans of control and flatter
structures would require provincial intervention regarding fundamental issues of organizational
design.
120. At the same time, whilst staff shortages may have assisted with a process of informal
transformation from low to higher spans of control, in reality this needs careful consideration
since some staff shortages are clearly going to be more critical than others and the ad hoc nature
of staffing means that there is no automatic link between staff shortages and higher spans of
control. A more strategic approach to this issue would indicate the need for professional
organizational design to determine the optimal span of control for different activities and posts. It
would be possible to introduce structural changes, for example, by reducing the number of
supervisory posts and converting these to operations.
Management information systems
121. Sialkot TMA will need to develop centralized information systems to support key
decision-making processes that underpin development strategies. The following section
examines the degree to which management information systems in Sialkot are coordinated with
strategic planning, and the degree of clarity on ‘what’ information needs to be captured by the
system and ‘why’. A general rule is that the volume of data should be kept to a minimum, and
should be proportional to the capacity of staff to operate and use the system if it is to be an
effective instrument of control.
122. In Sialkot, not one single department claims to have an automated management system.
The PMDFC did develop a financial management information system for the TMA however it was
not adopted and operationalized by the TMA. In part this might be explained by the fact that all
posts for ‘computer operator’ in Sialkot remain vacant. Therefore, each department within the
TMA maintains simple inventories of work progress consisting of manual file-based systems.
Word processing is used to write communication on behalf of the TMA. Budgets are prepared in
excel files. Nevertheless, the Government of Punjab, through the Urban Unit established a ‘city
implementation unit’, which provides support services to the TMA in GIS mapping, land use
record management. This is a valuable resource, working closely with officers and providing
regular feedback to the TMA management updates on service provision throughout the city.
123. More broadly, in the absence of information and communication technology, the TMA
relies on archaic and traditional systems of information and communication exchange. There is
no email system and departments communicate through letters, memos and occasionally by
telephone. TMA offices will send all communication to the provinces by post, which can take
days and weeks to register with the recipient. Such means of communication are not only costly
but delay decision-making, therefore contributing to inefficiency. It also provides opportunities for
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duplication of work, particularly where information from the province is being requested
frequently. Members of the public do not have access to information, rarely is information
processed into a product – with the exception of the ADP and the annual budget there are no
annual departmental reports, studies or surveys being conducted by TMA itself, unless supported
by the Government of Punjab. It is also true that departments lack the technical expertise to
present information for public consumption or internal use. The way information is currently
processed by department results in inequitable information flows, where officers and managers
make decisions based on limited choice and information as highlighted in Figure VI-9. This
hinders TMA effectiveness.
Figure VI-9: Poor Information Management – Undesirable Outcomes
Poor information management
Inefficiency
Poor information aw areness
Poor planning
Duplication of information
Poor monitoring
Restricted information flow s
Absence of/poor use of
Lack of transparency and
information technoloty
accountability
Critical Issues
124. It is important for the TMA and provincial government to try to tackle some fundamental
issues associated with IT upgrading. We already know that the departments have not been able
to fill sanctioned posts for computer operators. Departments rely on administrative support from
non-technical staff for word processing and other computer-based tasks. Similarly, to ensure that
such any IT/E-governance program has as many beneficiaries as possible, an extensive training
program for all junior and senior officers will need to be developed.
125. A major hurdle will be to change the mind-set that prevails with senior officers
(TOs/Assistant TOs) who require IT training. We know that clerks and junior clerks carry out key
administrative work (writing letters, memos, preparing expenditure statements). In all likelihood,
even with the aid of technology, junior staff will continue with current practice whereby they follow
instructions on drafting and re-drafting communication and sending information to other
departments. TMA executive management will need to take a lead in trying to change mind-sets
and working practices in this regard.
126. Planning will become essential for computerization and this will require considerable
impetus from corporate management. Traditional work practices and methods remain entrenched
in local government culture in Sialkot and beyond. All stakeholders will need to see the value and
widespread benefits of information and communication technologies. Staff will need to realize
that as a result of the newly acquired systems there will be greater accountability, transparency
across the organization and a more robust working culture.
Human Resource Management
127. Improving efficiency and effectiveness must be linked closely to personnel development
policies and encourage a culture of reward and recognition. A personnel management
information system that is appropriate for the functions, objectives and customer-orientation of an
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organization is therefore a basic requirement for a strategic, equitable incentive management
Program that yields results. In Sialkot TMA, there is at present no formal human resource
management.
128. Since the province retains control of most staffing matters including cadre requirements,
the number of sanctioned posts for each cadre position and the filling of vacancies for senior
grades, local government has relatively limited autonomy over the deployment of human
resources. The TMA has positing transfer authority in the offices working under the control of
Tehsil Administration except for TOs and CO it can neither create a post nor fill a vacancy
without the consent of the province (Table VI-10). At the same time, the freeze on recruitment, as
well as the general tendency on the part of the provincial Finance department to rein in
expenditure, means that it is difficult to exercise much control over the size and shape of the
establishment.
1
2
Table VI-10: TMA posting-transfer authority
Category of Officers/officials
Authority
BS-12 and above (except TOs/COs)
Tehsil Nazim
BS-11 and below (except TOs/COs)
Tehsil Nazim
Source: The Punjab Tehsil/Town Municipal Administration Rules of Business, 2002
Recruitments and appointments
129.
Under a system of complete administrative devolution, all authority for personnel
management can be found at the same level of government where staff is located. However, this
is not the case in practice. The five features of employer functions described in Table VI-11
provide a summary of the extent of devolution of the employer function into the TMA Sialkot.
Overall, as can be seen, TMA Sialkot has little de facto employment authority over staff located
in the TMA including their recruitment and selection. Appointing authority for most of the
positions rest with the Secretary Local Government with few exceptions where DCO has power
to appoint staff up to a certain level within TMA Sialkot (Table VI-12).
Table VI-11: Employer Functions
Sr.
No
1
2
3
4
5
Main Employer
Function
Resourcing
Sub Function
Control over staff position / numbers
(increasing or decreasing staff positions)
Positing and transfer
Authorized to hire
Oversight of merit
Legally recognized employer
Career Management Offering promotion
Upgrading positions
Performance
Directing and supervising activities and
Management
tasks
Conducting Performance Evaluations
Undertaking discipline or dismissal of staff
Pay and Benefits
Setting overall pay rates and policies
Setting allowances
Gratuity, pension and insurance
GP and benevolent fund
Budget control
Paying salaries from its own budget
Authority to dismiss surplus staff
TMA & Province Shared
District
P
S
D
P
P
S
S
P
TMA
S
P
P
P
S
P
TMA
P
T= TMA has primary Authority, D= District has primary authority, P= Province has primary authority, S= Shared
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Table VI-12: Appointing Authority of TMA staff
Section
Name and Scale of the Post
4
5
6
7
Administrative
Administrative
Accounts
Accounts
8
Accounts
9
10
11
12
13
14
15
16
17
18
19
Accounts
Accounts
Engineering
Engineering
Engineering
Engineering
Engineering
Planning
Planning
Planning
Planning
TMO, TO(R), Chief Officer (BS-18)
TMO, TO(R), Chief Officer (BS-19)
Accountant (BS-14)
ATO (F) BS-16
TO (Finance) ATO (Finance) (BS-16) Accounts
Officers(BS-17)
TO (Finance) ATO (Finance) (BS-18)
TO (Finance) (BS-19)
Sub Engineers 39[(BS-11)]
Senior Sub-Engineer (BS-16)
TO (I&S)/ATO(I&S) (BS-17)
TO (I&S) DTO (I&S). (BS-18)
AT (I&S) ATO (I&S). (BS-17)
Building Inspectors(Bs-14)
AT (P&C) ATO (P&C). (BS-17)
TO (P&C) ATO (P&C). (BS-18)
TO (P&C) (BS-19)
1
2
3
Appointing
Authority
Administrative Chief Officers and Assistant Superintendents (BS-14)
DCO
Chief Officer, Superintendents Council Officer ATO
Secretary LG&CD
(R) (BS-16)
Secretary LG&CD
Administrative TMO, TO (R), Chief Officer, ATO (R) AOs, PLGB
Superintendents Council (BS-17)
Secretary LG&CD
Secretary LG&CD
DCO
Secretary LG&CD
Secretary LG&CD
Secretary LG&CD
Secretary LG&CD
DCO
Secretary LG&CD
Secretary LG&CD
Secretary LG&CD
Secretary LG&CD
DCO
Secretary LG&CD
Secretary LG&CD
Secretary LG&CD
130. While numerous officer posts at tehsil level remain unfilled, there has been some support
from the province for the recruitment of certain frontline positions such sanitary workers.
Similarly, the option to employ contract staff, with the assent of the province, provides some
recruitment flexibility for the TMA. Among Sialkot’s TMA/TOs, it is seen very much as a
contingency given particular problems of loyalty and commitment among contract staff. It is
therefore an option which is used very much only in case of pressing need – most notably in the
Infrastructure and Services Department. Among other departments, contract staff are limited to
just one or two per department.
Job descriptions
131. Job descriptions should clearly set out each staff member’s roles and responsibilities,
reporting lines, objectives and criteria for appraisal. In Sialkot, however, job descriptions remain a
rudimentary tool for management. Very few appear to exist, and those that do are old. The
general absence of job descriptions partly explains why there appeared to be a relatively low
level of understanding among the officers as to what a job description should contain. In the
Infrastructure & Services department, senior staff confused job titles with job descriptions, and
explained that the title of the post provided a sufficiently clear indication of what the job entails.
Supervision and discipline
132. Most staff are supervised on the basis of their execution of established tasks and duties.
Time keeping and work attendance are, in theory, monitored through the maintenance of an
attendance register. This may be manipulated at times, although TOs generally felt that the
scope for regular false entries is limited. Most technical staff are supervised on the basis of
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routine monthly progress reports and meetings, which provide supervising staff with some control
over physical and financial progress of assigned activities. This kind of supervision is clearly
easier for project-based work than it is for many kinds of support activity.
133. The work of staff in Sialkot is monitored through progress reports delivered at monthly
meetings and submitted to the Administrator and, where relevant, other officials. An accounts
record is checked on a daily basis, and the head clerk maintains an attendance register. Tehsil
Officers admit to latitude for lateness in government departments. Almost all departments say it
is more difficult to monitor the work of frontline field staff. It is a problem, which critically affects
key service delivery sectors such as infrastructure and services. The main procedure for
supervising the work of field staff consists of routine monthly progress reports or maintenance of
registers and forms relating to client visits. Whilst there is a process for verifying these reports
there is ample scope for improvement.
134. Although these reporting requirements provide for some degree of overall supervision,
they do not enable a manager to monitor incremental progress. At present there are no
systematic work planning schedules, which identify physical and financial targets, and the
indicators by which incremental progress can be more routinely monitored. The rules governing
supervision and discipline of staff are contained within the Punjab Service Rules Act, Efficiency &
Discipline Rules and Removal from Service Rules. Disciplinary measures include calling for an
explanation for inadequate performance or neglect of duties, request for improvement, or
reporting the member of staff to a higher authority within the provincial department. An officer
may be served with a shaukaz notice, asking him to rectify irregularities in his performance within
a certain period. In practice, discipline is often exerted through informal discussions.
135. In extreme circumstances, a department may dismiss a member of staff. Other
disciplinary measures range from temporary stopping of salary and/or increments and censure to
simple verbal or written warnings and calls for apology. As with dismissals, the number of
disciplinary penalties reported was very low in TMA Sialkot. There is a strong consensus that it is
extremely difficult in practice to carry out any major disciplinary action as it may be difficult to
gather sufficient evidence of poor performance, especially in cases involving difficult to monitor
field staff, to overturn the political support which is almost invariably invoked in such cases. The
political pressures that are brought to bear on the disciplining officer will most often result in
some more lenient compromise solution. In extreme cases, council members may pass a
resolution of no confidence in the disciplining officer. Given such circumstances, most senior
departmental staff in the tehsil feel, they have extremely limited scope for enforcing discipline in
an effective manner.
Promotions, transfers and turnover
136. The main criterion for promotion is seniority, as determined by post and years of service.
However, the comments from the ACR/PER of the candidate are also considered. Although
qualitative judgment and personal assessment do carry some weight, seniority rules will almost
always take precedence. The TO Infrastructure & Services argues that while departments were
given greater devolved responsibility for promotions within the tehsil under the LGO 2001 over
the past few years this eroded.
137. Transfers occur periodically in response to a variety of reasons, including disciplinary
action, filling vacancies elsewhere in the provincial administration or requests for relocation
closer to the staff member’s permanent residence. Since senior staff is seconded to the TMA
they are liable to routine transfer on expiry of their term of duty (three years). In practice, it
appears that turnover of seconded staff occurs far more frequently, with a number of posts being
filled for periods of less than two years. This lack of continuity causes serious disruption to
routine work processes and has an impact on the efficiency of departments.
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138. Strategic transfers also take place when a staff member is considered to be ineffective,
disinterested or family circumstances intervene. This action may be instigated by a senior officer
but will usually require the support of the executive head. Although transfers are considered to be
one of the main forms of discipline, in practice they are often difficult to achieve due to the
practice of rallying local political support to prevent transfer.
Pay and incentives
139. The TMA has no authority to modify the service rules that govern the terms and
conditions of employment. This severely limits the administration’s ability to tailor
remuneration in line with local needs and to provide the right incentives to attract the right
staff. The Finance department has identified this issue as a particular problem, preventing it
from attracting a sufficient number of suitably qualified personnel to the tehsil. The
department states, flexibility to offer higher salaries would enable it to attract at least some
suitably qualified personnel, even if it means that there will be insufficient funds to fill all
vacant positions.
Strategic human resource development
140.
Human resource development strategies depend on four basic good practice principles:
140.1. Development of medium-term HR philosophy
140.2. Invest in people
140.3. Empower employees
140.4. Redesign work
Development of medium-term HR philosophy
141. Given the overall lack of control over staffing decisions in the TMA, there is little incentive
to formulate a staffing plan that would guide the administration in the tasks of recruitment and
deployment in line with the specific objectives of each department and their current capacity to
implement those objectives. In the absence of a proper staffing plan to align human resources to
local physical and financial resources, as well as organizational requirements, a number of
serious anomalies arise. In the Infrastructure and Services Department, for example, government
has approved posts for technicians where there are inadequate training facilities. Departments
have computers but no computer operators or drivers but no cars.
Invest in people
142. The core mechanism of the staff appraisal process is the Annual Confidential Report
(ACR), or Performance Evaluation Report (PER), which is standardized across government. The
report is based on a pro forma, which is to be filled out for every officer on an annual basis. After
the controlling officer has completed it, post holders are invited to make comments on the
relevance and veracity of the assessment, and to sign the report. If he does not agree with the
report he may appeal to the countersigning authority, which is the next higher authority (i.e. if a
TMO is the controlling officer, the Administrator is the countersigning authority).
143. The pro forma has some 50-55 fields, although controlling officers who are pressed for
time (for instance if a PER is requested on an emergency basis) may just write a general
assessment. Three fields are critical for promotions:
143.1. is the officer fit for promotion
143.2. Integrity
143.3. Overall grading
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144. The pro forma does not encourage the post holder to reflect on his or her own
performance, to establish performance targets or identify career development opportunities. Nor
is the process the outcome of a mutual deliberation and discussion between a superior and
subordinate. As such, the PER is more of a preventive instrument, which is perceived as a ‘stick’
method for exerting control, the incentives are weighted so that officers are primarily concerned
with avoiding negative comments on the report being taken into consideration by any future
promotion board. At the more senior levels, the PER does take on a more symbolic and political
function. In the previous devolved system, the Tehsil Nazims responsibility for writing the report
of the TMO was a function of their formal accountability to the executive head.
Capacity and training
145. Tehsil officials lament a general lack of capacity among their staff to fulfill their allocated
tasks, let alone those of vacant positions. The provision of training since the introduction of
devolution has been meager, and the available pool of labor are inadequately qualified for a
number of the most critical vacant roles in government. Similarly, there is a low level of
awareness as to what their role should be. Staff do not always understand the importance of
reporting, which has consequences for accuracy, reliability and timeliness. The shortage of
technical staff in finance or infrastructure services means that the propensity for mistakes in
technical and consistent assessments increases. The backbone of the system for information
gathering is the draftsman or sub-engineer, however these are underpaid and undervalued –
they are not made aware that they are an integral part of service provision.
Problems with current training provision
146.
There is an urgent need for proper training of staff at the tehsil level. The provision of
training reported to the study team is minimal, only TMO and TOs have undertaken training
programs. However, the Government of Punjab through the Urban Unit and with JICA support
recently established a training facility, the Al-Jazari Water and Sanitation Academy for the
development of staff of WASAs and the public water sector workers in Punjab. This facility will
offer pre and post service training to several grade officers in the sector - from Basic Pay Scale
(BPS) 11 to 20 - in technical and broader business areas. In addition, on-the-job training will also
be arranged for junior officials belonging to BPS 10 and below.
147. Similarly, Local Government and Community Development have its own training facility
by the name of the Punjab Local Government Academy, Lalamusa (PLGAL) that was established
in 1953. It provides training to staff belonging to Local Government Departments, Local Council
Service (BS 5 to BS 17), and the elected represented Nazim/Chairmen/Naib Nazim/ Vice
Chairmen/Councilors of the Local Councils. This institute was mandated to provide better training
services to the employees of Local Governments and elected representatives of Local
Governments but have limited capacity in terms of staff, infrastructure & budget.
148. Certain departments have established training institutes for technical and specialized
staff, but due to lack of interest in training, the institutes are given low priority over the provision
of necessary services. Following are the major areas of training, which are being covered by
training institutions of different departments in Government of the Punjab.
1
2
3
Department / Organization
Management & Professional
Development Department
LG&CD Department’s Lalamusa
Training Academy
The Urban Unit’s Al-Jazari Water
Key areas of Training
Management
Local government system
Water sector related courses
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4
5
6
7
8
9
10
11
12
and Sanitation Academy
Social Welfare Department
Labor Department
Cooperative Department
IT Department
Education department
Law Department
C&W Department
Health Department
Irrigation Department
13
Agriculture
14
15
16
17
18
19
L&DD Department
Tourism Department
Forest Department
Fisheries Department
Home Department
TEVTA
Chapter VI
Social welfare related courses
Industrial workers related courses
Cooperative societies related courses
IT related courses
Teacher training
Judicial officers training
Testing laboratories
Doctors, nurses, paramedical staff
Irrigation system
Department Food technologies, pest control, water
management, production of crops
Livestock production
Tourism, hotel management
Courses in forestry
Fish farming
Jail staff courses
Technical training
149. Problems with current training provision can be divided into two broad categories; firstly,
perceptions held within local government that job training is not important or critical (demand-side
problems) and secondly, the quality of training provision through institutions (supply-side
problems). It should be noted that it is beyond the capacity of the present study to undertake any
detailed assessment of supply-side problems, as this would require a specialized assessment.
However, it is possible to report perceptions of staff in Sialkot concerning the quality of routine
training provision within the province at tehsil level.
150. There is a complete absence of any formal training needs assessment (TNA) being
undertaken by employers either within the TMA or beyond. Training appears to be conducted on
an ad hoc basis and often in response to specialized Program based funding (often with external
assistance) rather than as a routine part of human resource development. TMA staff argued that
they would like training to address specific areas of local government management, and for
training to relate to the actual work situation faced within a tehsil.
151. Bearing these points in mind, it is possible to identify the following broad problems with
the current situation:
Demand side problems
152. The low priority given to human resource development and training by all departments in
the tehsil. Although staff of Finance, Taxation, I & S, Planning have received basic training in
their respective qualifications there is no institutional mechanism for departments to support
refresher training or any foundation to update knowledge and skills and develop new managerial
capabilities. New learning or continued training on the job is seen as having a low priority within
departments. There is also a lack of interest exhibited by many government officials in attending
training courses. In summary:
152.1. Wider organizational problems that inhibit the use of the knowledge and skills
acquired through training.
152.2. Lack of effective choice due to the limited information on training options
available to potential trainees.
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152.3. Personnel policies based on seniority and length of service rather than
performance and achievement, which mean that there are few incentives for staff
members to undertake training.
153. The low priority given to human resource development results in a perceived
ineffectiveness, which in turn is a consequence of unresponsive systems and procedures and the
lack of any link between knowledge gained and potential for promotion.
Technical training needs
154. A brief assessment of training needs in the Infrastructure & Services at tehsil level
revealed the following needs:
154.1. An integrated technically sound and socially appropriate approach to the planning
of infrastructure facilities within the tehsil. The planning approach adopted must be
grounded in an assessment of current deficiencies in target areas but must address offsite deficiencies in so far as these affect services within target areas.
154.2. A technically sound and socially responsive approach to the design of local
infrastructure facilities within and around target areas (‘on-site’ infrastructure and local
‘off-site’ facilities).
154.3. Planning for tehsil-wide infrastructure facilities. The focus here should be on
developing plans that utilize existing facilities and resources, address deficiencies in
operation and maintenance and identify schemes that both address immediate needs
and are consistent with long-term requirements. Training courses would be sector based,
covering water supply, drainage and solid waste management, and would benefit tehsil
engineering staff.
154.4. The design of secondary infrastructure facilities – sector based and covering
roads, drains, water supply, drainage and solid waste management. The focus would be
on how to design in situations characterized by incomplete information, physical
constraints and resource constraints.
Supply side problems
155. Staff at tehsil level identified a number of problems associated with training that have a
direct bearing on the quality and capacity of training institutions. Although it would be necessary
to undertake a more detailed assessment of institutional training provision before making any
definitive judgments on the quality of existing training provision, it has been possible to identify
the following weaknesses as identified by different staff in the tehsil. These include:
155.1. Lack of availability of in-service training courses on a regular and updated basis
for managerial and technical staff, frontline staff interfacing with citizens, and junior and
clerical staff. It was widely felt within the various tehsil departments that all grades require
routine refresher courses on the main competencies required to undertake their tasks as
well as technical inputs to improve knowledge and skills.
155.2. The lack of relevance of many training courses for staff who felt courses they had
attended in the past rely largely on ‘standard’ materials with little attempt being made to
tailor training to their work needs
155.3. Training methods and materials were outdated and fixed with no scope for
amendment in the light of feedback from trainees. It was also reported that most of those
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involved in training are professionals, who know their jobs but have had no exposure to
training methods. The result is a preponderance of didactic, as opposed to studentcentered, training methods.
155.4. A variety of training methodologies have emerged over the years that engage
participants in serious learning processes and provide them with occasional respite from
the otherwise rigorous training environment. Discussions with staff having attended
training revealed that classroom lecturing (called interactive lecture sessions by some
training institutes) still remains the predominant training methodology. Methods such as
role-play, group discussion, syndicate groups, exercises, case studies, training games
and visits to good practice sites have not yet been incorporated into training curriculum.
156. It was reported that few training institutions have developed any training manuals for staff
to use. Lack of manuals adversely affects sequential structuring of the learning process. The staff
has little idea about back-up material and readings on various training modules. The concept of
training modules is not practiced by the training institutions. This leads to randomly structured
learning events. It was reported that training institutions supplement the absence of training
manuals by distributing training materials that are generally prepared by the staff concerned.
157. Although it is not possible to assess the causes of these problems without undertaking a
detailed analysis of training institutions and providers, there are a number of possible causes that
the Government of Punjab and ADB may like to investigate at some point in the future. These
possible causes could include:
157.1. Deficient training infrastructure and lack of institutional training resources to
respond to the demand. Only now are supply-side arrangements or resources to address
this problem being acknowledged.
157.2. Most training institutions in the Punjab have insufficient financial autonomy to
operate more efficiently and to market their courses effectively. This is a significant
barrier to the adoption of a demand-based approach.
157.3. Training institutions may have little control over staff appointments. There are two
aspects to this. Training institutions may not have an adequate permanent faculty and
may rely instead on secondments of part-time training staff from other departments.
Second, when permanent staff are appointed, they may be drawn from the ranks of the
parent department and do not automatically have an interest in or commitment to
training.
157.4. Training institutions may have limited professional resources but are burdened
with a large number of ancillary staff, most of who cannot contribute meaningfully to the
efficient operation of the organization.
157.5. Training institutions are often tied to providing training to a particular organization
or Program and operate at full capacity only when external funding is available to support
a particular initiative. The roots of this problem lie, at least partly, in the lack of autonomy
of most training institutions but could be related to the lack of informed demand by the
organizations.
Future requirements
158. In summary, discussions with staff revealed (i) a lack of concern for training of municipal
functionaries at different levels, (ii) the absence of administrative arrangements within the local
government for assessment of training needs and doing the needful in this regard, and (iii) a lack
of any exposure to training for a majority of staff. Only occasionally did the study team come
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across functionaries who had attended any training Program either within the province or outside.
It is clear from the above that changes in approach towards training will probably be needed in
relation to some or all of the following:
158.1. an increased emphasis on collecting and analyzing information on existing
conditions and facilities in order to develop cost-effective training schemes that
incorporate existing facilities wherever possible
158.2. the adoption of a flexible planning approach, which recognizes that physical and
financial constraints mean that it may not be possible to develop an ‘ideal’ solution
158.3. the development of a balanced approach that considers the possibilities for both
new facilities and improving the operation of existing facilities in an integrated way
Punjab Local Government Academy Lalamusa (PLGAL)
159. There is a need to improve the quality and relevance of training for employees belonging
to local government department, local council service, and the elected represented of the local
councils. This can be achieved by strengthening institutional infrastructure, delivery, incentives
and standards of training by expanding and upgrading the Punjab Local Government Academy,
Lalamusa (PLGAL). Its role may also be redefined by LG&CD department on the basis of training
needs and in consultation with the Urban Unit.
160. PLGAL cannot cater for training needs of all employees and elected representatives - of
the province at Lalamusa - with existing infrastructure and resources. Moreover, it is not cost
effective for the local councils to send their employees and elected representative for training at
Lalamusa campus. The need for establishing regional campuses of PLGAL arises. At a start,
perhaps at least one regional campuses of PLGAL could be established at Lahore. It will ensure
provision of uniform training nearer to the workplace and importantly training needs of a large
portion of local council employee and elected representative would be addressed.
161. The Training budget should also be set at a level, which is able to cover the expenses of
all training activities undertaken in the PLGAL including; structured development Program, short
courses and on the job training. The Training budget should be reviewed against a
benchmarked figure of high performing organizations of developed countries around the world.
162.
Some other initial recommendations for improving the efficiency of PLGAL include:






Restructure PLGAL and provision of optimum manpower so that it can provide quality
training. Arrange capacity building of faculty members to equip them with modern
training techniques and provision of market base salary package and incentives for
staff.
Develop and introduce training policy and procedure.
Develop training and development strategy and annual training calendar and
circulate to all local councils.
Training alone will not bring about sustainable change. Local government department
and local councils must introduce and implement the HR practices for the complete
impact of training to be materialized.
Promotions should be linked to mandatory trainings. Unless the employee has
attended mandatory training he/she should not be eligible for promotions. Those who
have attended the trainings should qualify for training marks/scores these should
become part of the quantification of ACR/PERs.
TNA be embedded as a permanent feature and conducted regularly after an interval
of two years to identify the gaps in knowledge, skills and attitudes/abilities, in relation
to the strategic objectives at the departmental and organizational level.
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It is necessary that on the job training programs should be planned and conducted
especially for front line staff and councilors
Development of Training Management Information System (TMIS) to facilitate
information sharing and fast processing of training data for training needs, promotion
and performance monitoring.
Empower employees: Motivation
163. Motivation is undoubtedly low among the majority of workers in the TMA. The TO
Infrastructure & Services remarked that no one is happy with the system and that there is a
pervasive climate of disinterest and lack of enthusiasm, resulting in a high number of empty
desks every day, which has worsened in recent years. At the same time, with such a high
number of vacancies in the department, it is difficult to motivate people to perform: the obstacles
to fulfilling departmental tasks result in a fatalist, resigned attitude to the extent that even
prospects of promotion fail to motivate.
164. Faced with these problems, there is a limited understanding of how to engage in effective
motivation of staff across most parts of the TMA. Motivation appears to be generally confused
with discipline and supervision. When questioned about opportunities for motivation and
techniques adopted, senior staff spoke of mostly of control mechanisms – warnings and threats
of disciplinary action – as the common means employed. The TO Finance spoke of discipline
and shouting as useful motivating techniques, while other senior staff spoke of the careful
explanation of staff duties and warnings.
165. Some departments, such as Planning and Regulation, also pointed to frustrations with
not being able to resort to the threat of supervisory or disciplinary action by higher authorities
such as the provincial administration. The TO Planning and Regulation pointed out that after the
new elections and establishment of Nazims the absence of close monitoring by the province
might result in a decline in motivation, performance and productivity as staff feel less threatened
by the supervisory powers of the Tehsil Nazim than those of provincial authorities. While some
departments showed a low level of understanding of methods for motivating staff, or were simply
not interested, departments could pay close attention to strategies for raising morale, productivity
and performance. The main tools of motivation include:







Meetings to address staff on performance
Meetings to compare performance of different categories of staff
Letters of appreciation
Comments in registers and visitor’s books on staff
Support for transfers requested
Sponsorship on training Programs and visits
Incentives such as agreeing a transfer to a staff member’s home tehsil in time
Redesign work
166. As a matter of necessity, TMA Sialkot has had to engage in a certain degree of
redesigning its work simply to be able to fulfill its functions in spite of its shortage of human and
financial resources. This provides a potential starting point for a Program of intervention, which
looks at redesigning work structures and organization within the TMA. The assignment of
additional charges and other forms of multi-tasking, for instance, may point in the direction of
task- and function-related synergies, and may suggest effective and efficient means of
streamlining the division of labor mandated by the sanctioned establishment and organizational
hierarchy.
167. More substantially, there is significant opportunity for interventions designed to
restructure the incentives on both senior and junior officers in local government. While provincial
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control over the size of the establishment and remuneration remains a constraint, the general
absence to date of any form of strategic human resource management leaves considerable room
for small adjustments which have the potential to make a big difference to the attitudes,
motivation, routines, effectiveness and efficiency that prevail among the staff of Sialkot.
F.
Sector Assessment - Sialkot Solid Waste Management
City Profile
168. Located in the Punjab’s northeast, Sialkot is the administrative headquarters of Sialkot
District and Pakistan’s twelfth largest city. It is an important economic growth center for the
region, being the Punjab’s third largest hub after Lahore and Faisalabad, and generating about
10 percent (US$ 1.8 billion) of the nation’s entire industrial exports. Over 3,000 factories are
located within Sialkot and its surrounding regions, and its primary industries include the
manufacturing of surgical instruments, sports goods and leather goods. Agricultural processing is
also a major activity in Sialkot. The city’s Chamber of Commerce is active in promoting the city’s
economic development: it has over 5,000 members and has itself developed a number of PPP
projects within the city. Geographically, the city is located on the flat, fertile plains of the Punjab
at an elevation of about 250 meters above sea level: its ground surface grades very gently to the
south. Figure VI-13 shows its previous, current and future administrative boundaries.
Climatically, Sialkot has a large annual temperature range between 400C (June) to 120C
(January) and also a large diurnal range of up to 250C. Its summer monsoon season is followed
by a relatively hot season (September to November), which in turn is followed by a colder and
often rainy winter period.
169. Although estimates vary, the current population of the city is conjectured to be about
873,609 with an estimated additional population of 90,779 living within Sialkot’s Cantonment
area. The city’s population is projected to grow to about 1,251,349 by 2035, which together with
the population of the Cantonment, will be around 1,390,536. The city’s population density is
currently about 110 persons per acre, which due to its predominantly low-rise building form, is
relatively congested.
Waste Generation and Characteristics
170. Firstly, it is important to define municipal solid waste (MSW), which is the focus of this
initiative. MSW is a general term for non-hazardous solid waste, which is the waste with which
most people are familiar. Households generate MSW, as do commercial and institutional
establishments such as shops, offices, schools, and public and government buildings. MSW also
includes other wastes, such as non-hazardous wastes from industrial facilities, green waste from
landscaping activities, street sweeping wastes (of significant relevance in Pakistan), and a
relatively small amount of household hazardous wastes, such as residue chemical containers
and cartridges. In addition to MSW, Sialkot also generates limited amounts of hazardous wastes
from manufacturing and industrial processes, as well as medical wastes from hospitals and other
medical facilities. Although the management of medical and other hazardous wastes is
extremely important, it is only MSW that is considered in this assessment
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Figure VI-13: Map of Sialkot City
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Chapter VI
171. In 2010, a targeted waste assessment and characterization survey (WACS) of Sialkot’s
MSW was completed as part of an earlier ADB intervention96. As expected, the results indicated
that Sialkot’s MSW contains large amounts of organic waste (largely food waste and green
waste), of the order of 40 percent of the total waste stream. Next in quantity are conventional
recyclable materials, including plastics (13 percent), paper and cardboard (13 percent) and glass
(8 percent). Wood comprised about 4 percent of the waste stream, metals (3 percent), leather
and rubber (3 percent) and E-waste just over 1 percent. The balance of about 11 percent
comprised of largely indiscernible constituents, including street sweepings and other generally
inert wastes. Figure VI-14 shows this graphically.
Figure VI-14: Sialkot Municipal Solid Waste Characteristics (Households)
40.00
35.00
30.00
25.00
20.00
15.00
10.00
5.00
Ot
he
r
als
er
/R
ub
be
r
El
ec
tro
ni
cs
W
oo
d
Gl
as
s
Me
t
at
h
Le
Pa
Fo
o
d/
Or
ga
ni
c
Pl
as
pe
tic
r/C
s
ar
db
oa
rd
0.00
172. The WACS results for commercial and institutional establishments indicated a wide
variation in waste components, based on the type of activity. Markets and restaurants were
found to include high fractions of food and organic waste, offices and schools include paper and
cardboard waste, and hospitals and clinics of plastics, paper and cardboard, and also food and
organic waste.
96
The WACS was completed during Apr-2010 and May 2010 as an integral part of the ADB PAK-7321: Punjab
Cities Improvement Investment Program. It included the analysis of the MSW generated by 100 higher,
medium and lower income households in each of the three Union Councils (UCs) of Model Town, Shahabpura
and Bonkan. During the assessment, MSW was collected daily for a period of one week, where it was
transported daily to a processing center to be segregated into individual waste components and weighed and
recorded. The MSW from selected commercial and institutional establishments was also assessed as part of
the WACS in order to assess its overall composition.
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Chapter VI
Figure VI-15: WACS Implementation (2010)
173. The WACS also assessed the amount of MSW being generated in the surveyed UCs.
This revealed that the overall average per-capita daily household MSW generation rate equates
to approximately 0.30 kg/capita/day, ranging from about 0.28 kg/capita/day in lower income
households to about 0.35 kg/capita/day in higher income households. Assuming that institutional
and commercial MSW generation in the city equates to 25 percent of household generation, and
also that street sweepings equate to a further 10 percent, then the overall average MSW
generation in Sialkot (2010) was about 0.41 kg/capita/day equivalent. Moreover, during the fiveyear period from WACS implementation (2010) to the present (2015), and assuming a nominal
per capita increase in MSW generation of 1 percent per annum, it is therefore inferred that
Sialkot’s MSW generation is currently of the order of 0.43 kg/capita/day equivalent. On this
basis, and assuming this overall average generation rate and a current city population of
782,830, it follows therefore that the current daily generation rate of the city is of the order of 337
tons/day. This is shown graphically on Figure VI-16.
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Chapter VI
Figure VI-16: Indicative Sialkot MSW Generation
SIALKOT
Population (2015-01)
Per cap MSW gen.
Per cap gen increase annum
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
782,830
0.43
1.00
Year
Population Per Cap Gen.
kg/day
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
782,830
801,204
820,030
839,321
859,089
879,345
900,103
921,375
943,175
965,517
988,415
1,011,883
1,035,936
1,060,589
1,085,859
1,111,760
1,138,311
1,165,527
1,193,427
1,222,028
1,251,349
0.43
0.43
0.44
0.44
0.45
0.45
0.46
0.46
0.47
0.47
0.47
0.48
0.48
0.49
0.49
0.50
0.50
0.51
0.51
0.52
0.52
Recycling efficiency
2015
15
2016
15
2017
18
2018
20
2019
23
2020 beyond
25
kg/person/day
percent
Total Gen
tons/day
Total Gen
tons/year
Recycling
percent
337
348
360
372
384
397
411
425
439
454
469
485
502
519
537
555
574
594
614
635
657
122,865
127,006
131,291
135,723
140,309
145,053
149,962
155,041
160,297
165,735
171,362
177,185
183,211
189,446
195,900
202,578
209,490
216,644
224,048
231,712
239,644
15
15
18
20
23
25
25
25
25
25
25
25
25
25
25
25
25
25
25
25
25
percent
percent
percent
percent
percent
percent
In place density
Recycl Capture Residual MSW
tons/year
tons/year
18,430
19,051
23,632
27,145
32,271
36,263
37,491
38,760
40,074
41,434
42,840
44,296
45,803
47,362
48,975
50,645
52,373
54,161
56,012
57,928
59,911
104,435
107,955
107,658
108,578
108,038
108,790
112,472
116,281
120,223
124,301
128,521
132,889
137,408
142,085
146,925
151,934
157,118
162,483
168,036
173,784
179,733
0.70
tons/m3
Residual MSW
m3/year m3/cumulative
149,193
154,222
153,798
155,112
154,340
155,414
160,674
166,116
171,747
177,573
183,602
189,841
196,297
202,978
209,893
217,048
224,454
232,119
240,052
248,263
256,762
149,193
303,415
457,213
612,325
766,665
922,079
1,082,753
1,248,868
1,420,615
1,598,188
1,781,790
1,971,631
2,167,928
2,370,906
2,580,799
2,797,847
3,022,301
3,254,420
3,494,472
3,742,735
3,999,496
174. Figure VI-16 also presents initial MSW projections for Sialkot to the year 2035. This is
based on a range of initial assumptions, each of which can be modified as further assessment
refines the relevant data. Based on this initial analysis, the assumptions include (i) a current
population of about 782,830, increasing to about 1,251,349 by 2035, (ii) a per capita MSW
generation rate of 0.43 kg/capita/day equivalent, increasing at 1 percent annually, (iii) an
assumed current (informal sector) recycling efficiency of 15 percent, rising to 20 percent (2018)
and on to 25 percent (2020) due to recycling efficiency improvements, and (iv) in the conversion
from tons to m3 for residual MSW disposal, an in-place compacted density of 0.7 tons/m3. On
this basis:
174.1. The current annual MSW generation for the city of about 123,000 tons/year is
conjectured to increase to about 240,000 tons/year by 2035.
174.2. Based on the assumed recycling efficiencies being achieved, recyclable material
capture in 2015 of about 18,000 tons/year is predicted to increase to over 60,000
tons/year by 2035.
174.3. The residual MSW, in other words the amount of MSW left after the recycled
materials have been captured, is estimated at this stage at around 104,000 tons/year
currently, an amount that is conjectured to increase to about 180,000 tons/year by 2035.
174.4. The disposal volume required to adequately dispose of residual MSW, assuming
that the MSW is not subject to further treatment or recycling, is currently of the order of
about 150,000 m3/year, increasing to about 255,000 m3/year in 2035, for a total disposal
volume demand over this period of the order of 4 million m3.
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175. Obviously, these projections are preliminary at this stage of development and will be
refined during further feasibility assessment. They do however provide a valuable guide to
understanding the city’s generation demands going forward, and allow for design concepts to be
devised.
Existing Physical Systems and Infrastructure
(i)
MSW Generator Awareness and Source Management
176. Field assessment has revealed significant differences in community SWM practices
throughout Sialkot. While many lower-density, planned communities are able to maintain
adequate levels of source and community SWM, many high-density areas continue to suffer from
deficiencies. Although as discussed later, the Sialkot Waste Management Company (SWMC)
continues to dramatically increase SWM collection coverage throughout the city, illicitly dumped
waste still prevails in many areas, with MSW being discarded in streets, vacant lots, drainage
ways and lakeside areas. Historically, in addition to the lacking municipal SWM system, the
situation also reflects directly on the level of awareness and engagement of communities in
Sialkot. In many areas, it is clear that waste minimization is an unknown concept, and that
source segregation is ad hoc and being stimulated only by commercial gain from recycled
material revenues. The capability and willingness to store and properly dispose of residual waste
in many areas of Sialkot is low.
(ii)
MSW Collection and Transfer
177. As similar to many other cities of the region, although there are areas of direct door-todoor collection, MSW collection in Sialkot is largely characterized by a two-part system, (i) a
primary MSW collection system of manually-based door-to-door waste collection operations
through which waste is collected directly from generators (households, and commercial and
institutional establishments) and transported to community collection containers, and (iii) a
secondary collection and transfer system, where the waste is transported from the community
containers to disposal facilities by road vehicles. Historically, this system of collection and
transfer has suffered from serious inadequacies relating to systems planning, management,
operations, staffing and facility and equipment provision. This has and is resulting in a significant
amount of waste being dumped indiscriminately throughout the city, although dramatic
improvements have and continue to be achieved recently by the SWMC in MSW collection, as
discussed later.
Figure VI-17: Indiscriminate Dumping in the City
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Figure VI-18: Primary Locations of Solid Waste Collection Points
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Chapter VI
178. Primary MSW collection is carried out manually, where MSW is transferred directly to
bins and masonry enclosures and containers. Many residents also throw their garbage directly.
Presently, household bins are not provided to the households of Sialkot by the SWMC, so
residents have to provide their own waste bins. At the community level, the collection system
includes 190 secondary containers of 0.8 m3 capacity in addition to masonry enclosures,
however this number is inadequate, resulting in MSW being piled up at the collection points and
surrounding areas, causing environmental degradation and health hazards, especially during
rainy seasons. Primary collection point locations are shown on Figure 7 overleaf. Typically,
most containers are filled with MSW by the afternoon, resulting in the overflowing of containers
and illicit dumping around the containers. Scavengers worsen the situation by scattering the
MSW. Drains can also become choked with MSW, causing overflow. Starting early in the
morning, sweepers collect MSW in handcarts. Sanitary workers also collect MSW in plastic bags
and place these on the curbside to be collected by mini dumpers or tractor trolleys.
179. Sialkot’s secondary collection and transfer system comprises of dumpers, compactors
and tractor trolleys that are driven from container to container along defined routes to collect and
transport the MSW to the disposal facilities. The city does not have formal transfer stations,
although a masonry enclosure located in the Kashmir road serves as a ‘mini’ transfer station in
order to transfer the MSW from mini dumpers to larger vehicles. Once each collection vehicle is
full, it travels to a weighing station to get weighed, following which it travels to the designated
disposal facility. Figure 8 provides the existing compliment of SWMC waste collection vehicles,
which is consistently being expanded.
Figure VI-19: Existing SWMC Collection Equipment
Machinery Type
Tractor Trolleys
Front End Loaders
Compactors 7m 3
Compactors 13 m3
Mini Dumpers
Mechanical Sweepers
Water Truck
Capacity
Tons/Day
2 to 4
4
7
0.3 to 0.5
-
Age
Years
Number
29
11
2
1
18
2
1
Approximate
Daily Capacity
Tons/Day
Trips
per Day
5 years
2 years
2 years
2 years
2 Years
2 Years
3
4
4
-
174
Total
234
32
28
180. The SWMC is providing services to 16 Union Councils (UCs) of the city. In this context,
the city has been divided into four MSW collection zones, with each zone consisting of four UCs
(Figure VI-21 overleaf). In addition, the Government has advised the SWMC that the SWM
service catchment area is to be expended to a total of 23 UCs, including seven UCs in the periurban areas. This will dramatically increase the collection areas and amount of SWM to be
processed. Figure VI-20 shows the UCs of each of the existing zones.
Figure VI-20: Collection Zone Union Councils
Zone
Union Councils
Zone 1
Ahmed Pura
Pura Heran
Neka Pura
Habib Pura
Zone 2
Model Town
Muhammad Pura
Water Works
Kotli Behram
Zone 3
Muzaffar Pur
Shahab Pura
Miyana Pura
Fateh Garh
Zone 4
Karim Pura
Imam Sahib
Shah Sydan
Haji Pura
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Figure VI-21 Solid Waste Collection Zones
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Chapter VI
181. Historically, the secondary collection and transfer system has suffered from serious
deficiencies, including (i) budget limitations and lack of adequate machinery, (ii) personnel
deficiencies at the managerial, technical and operational levels, and (iii) a lack of public
awareness and general coordination. The SWMC even report that until recently, vehicle drivers
operated largely at their own will and dumped MSW where they were able, with little managerial
control of oversight. Typical machinery utilized in the system is shown in Figure VI-22.
Figure VI-22: MSW Collection and Transfer Machinery
(iii)
Residual MSW Disposal
182. Currently, the SWMC does not have a properly designed disposal facility for the city’s
residual waste, or suitable land on which to site such a facility. As a result, it is forced to dump
waste on private lands around the city, moving from area to area as lands are filled, and relying
on permissions given by private landowners. This practice is largely due to the misconception of
landowners that filling idle, low-lying lands with waste in order to raise its level is an acceptable
process of landfill: contrary to this is the fact that such activities are causing widespread
degradation of vast land areas around the city, resulting in the proliferation of potentially harmful
environmental and social impacts.
183. Sialkot’s municipal waste stream is therefore dumped directly without any engineered
environmental protection systems, and with little planning or regard for nearby communities. In
these dumpsites, wastes are piled directly onto the natural ground surface or on top of one
another, and permanently left uncovered and exposed. Anyone in contact with these wastes
faces potentially serious health risks. Particulate and dust levels can be high at dumpsites. As
dumpsites decompose and degrade, and rainfall penetrates the exposed waste, contaminated
liquids form inside. These liquids, known as leachate, contain organic and inorganic
contaminants, including heavy metals, and represent a significant threat to humans and the
environment. Any downstream uses of these contaminated waters can impact humans directly.
Leachate is also most likely percolating through the bases of these facilities and into the
underlying geologic materials. Here, it can mix with and contaminate the groundwater within
these materials. If this polluted groundwater is later extracted through wells and ingested, it can
cause illness (Figure VI-23). The decomposing waste also produces landfill gas, including
methane, carbon dioxide, and other gas contaminants. These gases are potentially toxic,
explosive, and are potent greenhouse gases that contribute significantly to global warming.
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Figure VI-23: Dumpsite Leachate and Landfill Gas Impacts
184. These sites do not therefore fulfill current regulatory requirements, and it is reported that
a single complaint of odor generation or nuisance by a nearby community can result in an
immediate shifting to another dumping site. Currently, the SWMC is utilizing a site nearby the
Sadra Badra community, south of the Daska Road (Figure VI-24). At this site, waste is being
placed directly into a depression and without any engineered control systems. This highlights the
serious and immediate need to develop a suitable waste disposal facility for the city.
(iv)
Recycling Initiatives
185. There is significant activity in the Sialkot recycling sector, and currently these operations
are entirely informal. Considerable segregation occurs right at the source, as many residents
segregate paper, cardboard, plastics, metals and glass and sell it directly to informal recyclers.
These materials are diverted directly, and therefore do not even enter the municipal waste
system. Informal recyclers purchase these materials directly and also scavenge the community
collection points and dumpsites for additional materials, and then on-sell them to ‘Kabarias’. The
materials are then consolidated and sold on to the industrial sector to be recycled. It is reported
that many informal recyclers are Afghanis, who are forced to take up recycling due to their illegal
status. They are reported to earn up to Rs. 500 per day. Initial observations have revealed the
following information regarding recycled materials in Sialkot.
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Figure VI-24: Location of Existing Dumpsite
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185.1. Plastics: Eight plastic bottle recycling plants have been identified in Sialkot along
Daska Road, Nawan Pind Pasroor, Bismillah Chowk, Bund Phatik, Purani Sabzi Mandi,
Defense Road near Mehar CNG, Sambrial and Pasroor. The plastic bottles are
segregated color wise and washed, crushed and shredded into small cuttings in order to
produce raw material that is utilized largely for the manufacture of pipes, and also
polyester utilized for jackets, zips, and quilts manufacturing. For each unit, about 25-30
persons are contracted for bottle collection, earning around Rs. 15,000 per month (Figure
VI-25).
Figure VI-25: Plastics Recycling
185.2. Glass: As shown in the Figure VI-26, glass bottles are collected from shops,
bakeries, hospitals, and kiosks, and sold out to Kabarias. They are then segregated
color wise, consolidated, and transported to Lahore glass manufacturing plants.
Figure VI-26: Glass Recycling
185.3. Paper: Paper waste, including used paper and cement bags, is collected from
the suburban areas of the city on motorcycle driven carts and sold to private Kabarias.
This is then on-sold to paper and board mills for the manufacturing of packaging material.
185.4. Combustible Waste: Waste from the sports and shoes industries is transported
to Peshawar and Sargodha to be utilized as a combustion feedstock for brick kilns.
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Regulations and Enforcement
186. In Pakistan, SWM is the responsibility of municipal governments. The Government of
Punjab passed the Local Government Act 2013, which describes the constitution of local
governments, structure and functions of district councils, municipal committees, and metropolitan
and municipal corporations. According to the Act, Sialkot is the designated municipal corporation,
with the Mayor as its executive head, and with the Deputy Mayor performing these functions
during the Mayor’s absence. The Chief Officer coordinates and facilitates functions assigned to
the municipal corporation. Subsection K of Section 87 of the Act provides that services including
sanitation, solid waste collection, the sanitary disposal of solid, liquid, industrial, and hospital
wastes, including landfill sites and recycling are the responsibility of municipal corporations.
Previously, Section 54 of Punjab Local Government Ordinance 2001 envisages the powers and
functions of the TMA regarding SWM.
187. In March 2005, the Government launched its National Environmental Policy (NEP), which
provides an overarching framework for addressing the environmental issues facing Pakistan,
particularly the lack of SWM, the pollution of freshwater bodies and coastal waters, air pollution,
deforestation, natural disasters and climate change. Section 5 of the policy recommends the
integration of environmental concerns into development planning as an instrument for achieving
the objectives of the policy. This applies to SWM, where it encourages the reduction, recycling,
and reuse of municipal and industrial wastes, the development and enforcement of rules and
regulations for MSW management, and development and implementation of strategies for
integrated waste management97.
188. The Pakistan Environmental Protection Act (PEPA) was promulgated on 6 December
1997, by repealing the Pakistan Environmental Protection Ordinance of 1983. Guidelines for
SWM are notified under PEPA. This act describes the establishment of the Pakistan
Environmental Protection Council, environmental protection agencies on federal and provincial
levels, and environmental tribunals and their functions and powers. Section 11 of this act
prohibits the discharge of waste pollution, while section 12 relates to IEE and EIA
implementation. Due to the passing of the 18th Amendment to the Constitution of Pakistan, the
Federal Ministry of Environment was devolved to the provincial level on 30 June 2011. Other
relevant regulations are summarized as follows:
188.1. Punjab Municipal Solid Waste Management Guidelines, 2007: There is no
consolidated Act regarding SWM; however these guidelines provide general guidance to
provincial Government departments, local governments, private operators and other
agencies that operate SWM activities in urban areas. The present set of guidelines is
aimed to cover only MSW. Various components of SWM such as waste generation and
collection, waste transfer, recovery of useful components, waste incineration,
composting, bio-gas generation and land filling are covered in these guidelines. They
provide technical guidance to minimize environmental impacts. For the disposal of waste
(landfilling), they provide general design and operational guidelines and explain the
pollution control systems necessary for landfill sites with design details. As far as
environmental monitoring is concerned, the guidelines also prescribe the national
environmental quality standards for municipal and liquid industrial effluent and
groundwater quality monitoring standards.
188.2. Hospital Waste Management Rule 2005: This rule defines the responsibilities of
hospital waste management to hospitals, including the team composition for waste
management and the duties and responsibilities of the team. It also provides guidance in
the preparation of hospital waste management plans and procedures for the segregation,
collection, storage and disposal of waste and the issuance of licenses to contractors
handling waste.
97
http://environment.gov.pk/NEP/Policy.pdf
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188.3. Hazardous Substance Rules, 2003: This rule deals with the handling, storage,
transportation and health and safety procedures to be followed in the workplace. This
includes the generation and handling of any kind of hazardous substance (solid, liquid
and gas) as listed in Schedule I of the rules. There are also guidelines in the act for the
provision of safety plans, waste management plans, hazardous material transportation
procedures as well as reporting mechanisms in case accidents take place.
188.4. National Environmental Quality Standards (NEQS), 2010: In order to control
environmental pollution, the NEQS furnishes information on the permissible limits for
effluent parameters for municipal and industrial discharges. In this case, the standards
for air quality, noise and wastewater quality are relevant. This information is available at
the official website of Pak EPA.
188.5. Canal and Drainage Act, 1873: This act contains provisions for the prevention of
pollution of natural or man-made water bodies. It prohibits the discharge of any solid or
liquid or combination of both from any source into any river, canal or drain including
natural channels (Sec 59A (4)).
188.6. SMART Rules, 2001: SMART Rules or Self-Monitoring and Reporting by
Industry Rules, 2001 are applicable to all industries releasing effluents and gaseous
emissions into water bodies and the atmosphere. According to the type of industries, the
environmental monitoring of effluents and gaseous emissions is required on monthly,
quarterly or biannually.
188.7. Factories Act, 1934: This law governs the employment of labor, working hours,
working conditions and facilities to be provided in the workplace. Sections 14 to 33 of the
act cover issues related to the work environment of laborers including ventilation (sec
14), drinking water conditions (sec 19), precautions against fire hazards (sec 22) or other
hazardous operations within working areas (sec 33).
188.8. Antiquities Act 1975: This Act protects Pakistan’s cultural resources. Antiquities
are defined in the Act for example as ancient products of human activity, historical sites,
sites of anthropological or cultural interest, and national monuments.
188.9. Land Acquisition and Resettlement Act, 1894: This law regulates the
acquisition of land for public purposes and provides compensation in the form of cash, an
alternative land allocation or through other equitable arrangements (Sec 31).
188.10. Building Code of Pakistan 2007: The provisions of the Building Code are
applicable for the engineering design of structures and related components.
Institutions
189. Historically, SWM services in Sialkot have been undertaken by the SWM Department of
the Sialkot Tehsil Municipal Authority (TMA). SWM services were transitioned however to the
SWMC, which commenced operations in Mar-2014 by way of a Services and Asset Management
Agreement in accordance with Section 54 of the Punjab Local Government Ordinance 2001.
Under the agreement, the assets of the TMA operations, including machinery and workshops,
were transferred to the SWMC directly. Certain personnel were also transitioned to the SMWC,
although sanitary workers are still the employees of TMA and paid by the TMA. Figure VI-27
shows the SWMC’s personnel compliment. As shown, of the 1,011 personnel of the SWMC, a
total of 96 are female (9.5 percent). The TMA also provides the budget for SWMC operations.
As previously mentioned, although it is presently providing services to 16 UCs across the four
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collection zones, its catchment area is being expanded to progressively incorporate an additional
seven UCs that primarily comprise peri-urban areas surrounding the city98.
Figure VI-27: Personnel of the SWMC
Personnel
Number
Managerial Staff
9
Administration
17
Drivers
96
Workers
889
Total
1,011 (96 female staff, 915 male staff)
190. The SWMC’s annual budget for the year 2014 was Rs 87.22 million. Expenditures for
the three monthly period Apr-2015 to Jun-2015 were Rs. 16,160 million. SWM tariffs are not
currently collected in Sialkot. Overall, the SWMC is progressing strongly in effecting widespread
improvements in SWM. This is driven by substantial support from the Sialkot TMA, the Urban
Unit, and the Lahore Waste Management Company (LWMC), which is providing valuable
assistance in operational areas. As a result, a number of key initiatives are being implemented
by the SMWC as an integral part of its improvement strategy, outlined as follows:






191.
98
99
The SWMC is piloting face detection technologies for all its personnel, including its
management personnel. Under this system, every SWMC staff member has to
submit to face recognition three times per day at a designated location, in order to
verify attendance.
The SWMC has also implemented a complaints redressal system with a dedicated
complaints number (1139). The system provides the city’s residents with a direct
number to report complaints: it provides 24-hour operations during the monsoon
season and 12-hour operations at other times99.
Designated personnel are now directly responsible for the disbursement of fuel and
stores.
Special cleanliness and waste clean ups are being promoted during special events.
Special monsoon activities are implemented, including desilting and associated
operations.
Other public awareness activities are being piloted, including leaflet distributions.
The existing organization of the SWMC is shown in Figure VI-28.
The Sialkot Cantonment has its own SWM system.
Since Mar-2015, recorded complaints have averaged between 178 and 282 complaints per month. Complaint
resolution performance is recorded as being between 95 and 100 percent.
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Figure VI-28: SWMC Organization Chart
Chairman
0
Board of Directors
0
Chief Internal Audit
1
Managing Director
1
Mannager Audit
1
Company Secretary
1
Senior Manager Admin &
HR
1
Chief Financial Officer
1
Manager P&C
1
Manager Admin & HR
1
Manager Finance
1
Assistant Manager P&C
1
1
Assistant Manager F&B
1
1
Assistant Manager
Accounts
1
Senior Manager
Operations
1
Manager Workshop
1
Manager Communication
1
Manager MIS
1
Assistant Manager
Communication
1
Assistant Manager MIS
1
Assistant Manager Audit
1
Auditors
2
Manager Dumpsite/
Landfill
1
Assistant Manager
Planning
1
Manager Operations
1
Assistant Manager
Operations
2
Summary of Current Sector Performance
192. Following its recent formation, the SWMC has now begun to tackle the immense
challenges facing Sialkot’s SWM sector: tasks that are considered vital in order to accommodate
the city’s growing SWM demands and provide for adequate public health and environment
standards going forward. As practically all Sialkot residents are acutely aware, SWM is a critical
issue, which physically manifests itself in the widespread illicit dumping of wastes throughout the
city. This section highlights the magnitude of the waste problem by summarizing current sector
performance and key deficiencies.
Waste generation is growing: it’s a serious issue
192.1.
Preliminary projections infer that the city’s annual residual MSW generation
rate of about 104,000 tons/year currently is conjectured to increase to about 180,000
tons/year by 2035, resulting in a total disposal volume demand over this period of the
order of 4 million m3. The ‘do-nothing’ scenario for the city would therefore be serious, as
all of this MSW would be dumped throughout the city over the next 20 years, severely
impacting on public health and the environment, and contributing significantly to climate
change-related atmospheric emissions.
Regulations are fragmented: enforcement is poor
192.2.
Although national and provincial regulations provide a basic level of SWM
sector regulation, regulatory enforcement capabilities are extremely weak, resulting in
SWM violations going virtually unchecked, notably the improper handling of MSW, and
widespread illicit dumping of wastes throughout the city.
The SWMC is established, but it needs strengthening
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192.3. The establishment of the SWMC is considered a positive attribute for the Sialkot
SWM sector, and it has recently achieved strong progress in improving MSW collection
coverage throughout the city due to significant capital investments in equipment and the
rationalization of existing operations. To meet future demands and challenges however,
significant additional capacity building will be required in order for the SWMC to evolve
into a fully-functioning, self-sustaining and highly efficient utility, operated on modern
principles of utility management.
Municipal Service Delivery is Extremely Weak
192.4. Although MSW collection system improvements are being achieved in Sialkot,
MSW service delivery is heavily constrained at virtually every level of SWM system
provision, including inefficient MSW transfer, the complete lack of environmentally
compliant treatment and disposal facilities, the abandonment of dumpsites, and overall,
the lack of public awareness of and involvement in SWM and related environmental
practices throughout the city.
Informal recycling is effective, but the impacts are severe
192.5. Although existing informal recyclers divert and recycle valuable components of
the waste stream that provides livelihood for low income and disadvantaged groups and
results in significant cost savings in MSW transfer and disposal, the operations cause
acute, negative environmental and public health impacts for the city. Informal recycling
sector workers are exposed to the potentially serious public health risks related to
improper waste management practices and there is a lack of enforcement of
occupational health and safety regulations and standards in the sector. These practices
also cause considerable environmental damage throughout the city, largely through the
practices of itinerant waste scavenging, which results in the scattering of wastes at waste
collection points, within the streets and vacant land areas.
G.
Sector Strategy - Solid Waste Management
193. The Solid Waste Management (SWM) component of the PICIIP is a major contribution to
developing Sialkot and Sialkot into the inclusive, safe, green, livable, resilient, sustainable and
competitive cities that they strive to be. To effectively achieve that contribution, SWM must be
approached within the over-arching guiding frameworks of the city’s Integrated City Development
Strategy (ICDS) and Climate Risk Vulnerability Assessment (CRVA) as presented in Chapter IV
and Chapter V of this Report Respectively. The three are mutually supportive, as are the
linkages between SWM and the other proposed investment components of Water, Sanitation and
Drainage, Transport, and Institutional development. Figure VI-29 illustrates these linkages. In
summary, the ICDS establishes the urban form, settlement patterns and land use patterns that
will reduce sprawl and create a more compact city supporting a more efficient and economical
approach to SWM. The ICDS recognizes the need to address SWM from the human communitybased level and proposes Mahallah strategies that support this. The ICDS proposes urban
development that addresses CRVA climate change responses in which SWM plays a critical role
by helping protect water source quality, prevent flooding through managed garbage disposal and
promoting re-cycling to reduce greenhouse gas emissions. In connection with the Water,
Sanitation and Drainage component, both ICDS and SWM address the severe problem of
industrial effluent treatment through land use planning and discharge segregation. The overall
aim is a healthier, more economically productive city leading to improved social conditions. The
Institutional component integrates all of this through policy, regulation, plans at various levels,
agency management and municipal financial management. Properly integrated SWM will
significantly reduce the approximate $30 million annual economic loss suffered by Sialkot and
the $15 million annual loss suffered by Sialkot as a result of poor sanitation.
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Figure VI-29: Integrating SWM into the PICIIP
H.
Guiding Principles
194. This roadmap is intended to guide policy, planning, investment programming and
implementation for the Sialkot solid waste management (SWM) sector over a medium term
planning horizon, in order to progressively improve sector performance, achieve intended
outcomes and support the overall development goals of the city. The roadmap takes into
consideration aspects of the existing system and its stakeholders, including the Sialkot Waste
Management Company (SWMC), various levels of Government, the private sector, the
thousands involved in informal recycling, and the over 750,000 residents of Sialkot, on whose
sustained involvement and support the system relies.
195. The roadmap forms an integral part of the Asian Development Bank (ADB) funded REG8556: Pre-Feasibility Study Sialkot and Sahiwal Cities, that has been completed by a
specialist consulting team on behalf of the Cities Development Initiative for Asia (CDIA), the ADB
and the Government of Punjab (GoPb). The assignment assessed existing SWM sector
conditions in the city, and formulated to a preliminary level a package of high-priority, integrated
SWM investment options for further consideration. The conduct of this pre-feasibility study (PFS)
follows the protocol and guidelines established by CDIA, emphasizing pro-poor development,
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environmental sustainability, climate change adaptation and good governance.100 The roadmap
is guided by the following principles:
 Waste is a resource.
 All individuals must assume responsibility for the waste they generate.
 Source segregation is key to any sustainable solution.
 The informal sector plays a critical role in the management of municipal solid waste
(MSW).
 Prevention, reduction and recovery for recycling and reuse should be a priority focus.
 Active public participation is essential.
 Private sector participation should be encouraged and an enabling environment
created.
 Economic incentives need to be established.
 All sectors and levels of Government have different roles and responsibilities in
ensuring an effective SWM system, and these should be effectively integrated.
196. This assessment has been conducted through collaboration with relevant officers and
staff of the Government of Punjab’s Planning & Development Department, including the Urban
Sector Policy and Management Unit of Punjab (The Urban Unit), and the Sialkot Tehsil Municipal
Administration (TMA). Consultant members from the PFS team have worked extensively in
Sialkot to conduct data collection activities and analysis, leading to the formulation of the
proposed Project investments. Close coordination has also been maintained with the parallel
ADB-funded Integrated City Development Strategy (ICDS) team and the Climate Resilience and
Vulnerability Assessment (CRVA) team, and the findings from these initiatives have been
integrated in the PFS analyses.
I.
Sector Goals and Objectives
197. SWM services in Sialkot can be significantly improved by building on the existing system
and moving progressively towards an integrated, transparent and efficient system that over time
will meet internationally recognized standards and practices. This vision includes;
197.1. An effective legislative and regulatory framework for the environmentally safe and
healthy management of MSW generated in Sialkot.
197.2. Progressive development of the SWMC, supported by efficient, coordinated,
integrated and transparent institutions in order to effectively manage the city’s MSW over
the long term.
197.3. An involved and environmentally-aware Sialkot public, able and willing to
progressively reduce total waste generation, maximize the segregation of waste at
source for subsequent recycling, and willing to promote efficient and sustainable
community collection, improve community health conditions and progressively eliminate
illicit dumping.
197.4. A sustainable and equitable primary collection system serving all areas of Sialkot,
with the gradual expansion of direct house-to-house collection using appropriate
motorized vehicles wherever possible, and a highly organized secondary storage
collection point system where it is not, with the gradual elimination of waste picking in the
streets and burning and illicit dumping in vacant areas.
197.5. An efficient and expanding MSW collection service covering all the communities
of Sialkot, with regularized collection and the efficient and environmentally safe transfer,
treatment and disposal of MSW.
100
As specified in the Pre-Feasibility Study Guidelines, CDIA, March 2011, and the Pre-Feasibility Studies User
Manual for Cities and National Partner Organizations, CDIA, October 2012.
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197.6. A vibrant and sustainable recycling system, building on the existing habits of
primary source segregation (at households and commercial and institutional
establishments) and improved secondary segregation, where the recycling of MSW is
optimized within a healthy and safe working environment.
197.7. Creating an enabling environment and supporting private sector involvement in
the segregation, recycling, collection, transfer, treatment and disposal of wastes, and
prioritizing the involvement of lower income recycler groups wherever possible.
198. In this context, Figure VI-30 provides outline performance indicators for the SWM sector,
with indicative targets for a medium-term (2021) milestone.
Figure VI-30: SWM Sector Performance Indicators
SWM Sector Performance Indicators
Indicator
Performance Target
2016
2021
MSW Reduction and Recycling
Recycled MSW as a percentage of total MSW (Tons).
< 15
percent
30 percent
Number of Sialkot residents aware of and involved in
SWM issues as a percentage of total population.
< 10
percent
80 percent
Percentage of MSW generators serviced by the MSW
municipal collection system (residential, institutional and
commercial) as a percentage of total MSW generators.
< 60
percent
95 percent
Percentage of residual MSW reaching the proposed
environmentally compliant treatment and disposal facility
as a percentage of total residual waste generation.
0 percent
95 percent
Number of missed or late MSW collection cycles as a
percentage of total cycles.
> 40
percent
< 10
percent
Percentage of SWMC personnel that are fully trained
50 percent
100
percent
Percent of SWM generators paying a SWM tariff.
0 percent
80 percent
MSW Collection, Transfer and Disposal
Institutions/Cost Recovery
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J.
Chapter VI
Sector Roadmap - Solid Waste Management
Proposed Investment Project Concept
(i)
Introduction
199. In order for the SWM sector to fully support development of a healthy, clean and
environmentally safe city, the following improvements are recommended. These proposals
represent the first phase of feasibility assessment, to be followed by the ADB-funded project
preparatory technical assistance (PPTA) and subsequently, final design. The section is divided
into the following subsections, in order to explain the various physical components and support
programs of the proposed system and first tranche investments:
199.1. Section 4.2: The MSW collection and transfer system that will serve the city of
Sialkot. Due to urban density and accessibility variations within the city, three types of
collection system are proposed, as discussed in this section.
199.2. Section 4.3: The residual MSW disposal system, incorporating a strategically
located MSW disposal facility, designed to accept the residual MSW of Sialkot city for
over 40 years.
199.3. Section 4.4: A dumpsite remediation program, in order to progressively
remediate and close existing and abandoned dumpsites in the city.
199.4. Section 4.5: Sector support programs in order to provide capacity building to the
SWMC, improve public awareness and engagement, and support recycling initiatives.
(ii)
Collection and Transfer System
200. MSW collection systems in many parts of the world involve the direct collection of
residual MSW from households or commercial and institutional establishments by collection
vehicles for immediate transport to transfer stations and disposal facilities. This is usually the
most efficient system of collection on a cost-per-ton collected basis. In parts of Asian cities
however, this collection method is just not possible or feasible due primarily to the high density of
development, extreme narrowness of streets and heavy traffic congestion. This is the case in
Sialkot, where although certain areas can be served by door-to-door collection directly (albeit
utilizing smaller collection vehicles), most of the city has to be served by a two-step MSW
collection system. This two-step system involves: (i) the collection of MSW directly from the
generator source by manual handcarts, or small-scale collection equipment (known in Pakistan
as ‘mini dumpers’) for transfer to community collection points for temporary storage, followed by
(ii) collection from the community collection points by waste collection vehicles for direct transfer
to the disposal facility. This is summarized as follows:
200.1. System 1: This is a manual door-to-door collection system where in each
collection area, a worker will collect segregated MSW and recyclable materials on a daily
basis utilizing a human-powered handcart (0.2 m3 capacity) as shown in Figure VI-31,
and transport it to a designated community collection point. A 4m3 size waste compactor
truck will then collect the MSW from the collection point for road transfer to the disposal
facility.
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Figure VI-31: Concept Design: Handcart (0.2 m3)
It is proposed that each 0.2m3 handcart will consist of two cabinets each of volume 0.1m3
in which containers will be placed. Once the containers are filled, the sanitary worker will
lift the container and unload it into a 0.8m3 communal container at a community collection
point (Figure VI-32). Each worker is capable of servicing an average of 65 households
per day utilizing this system.
Figure VI-32: Community Container
200.2. System 2: This is an automated door-to-door collection system where in each
collection area, a two-person team will collect segregated MSW and recyclable materials
utilizing a motorized ‘mini dumper (1m3 capacity) as shown in Figure 20. One worker will
drive the dumper and the other will collect MSW door to door along the streets. Once a
mini dumper is filled, the MSW will be transferred to a 7m3 waste compactor vehicles for
transfer to the disposal facility. Due to the increased efficiency of this system over the
manual system, it is estimated on a preliminary basis that 200 households can be
serviced in each collection area by each two-person team.
200.3. System 3: This is a direct community collection system utilizing 4m 3 waste
compactor vehicles (Figure VI-33), where MSW is collected directly from the curbside
adjacent to each MSW generator for direct transfer to the disposal facility. Up to four
sanitary workers shall operate each garbage compactor: one as a driver and the others
to collect, load and unload the MSW.
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Figure VI-33: Proposed Collection Equipment
Mini Dumper (1 m3 Capacity)
Waste Compactors (4 m3 Capacity)
201. Defining the precise number of each of these systems needed to serve the entire city of
Sialkot will obviously require a detailed analysis of the conditions of each street in terms of
accessibility and the possible locations of community collection points. Defining these systems
will also require liaison with local UC officials and other stakeholders, as in addition to technical
considerations other considerations are necessary in defining these areas. This includes for
example obtaining approvals from residents to locate community collection points near to their
residences. At this PFS stage however, an initial planning-level analysis has been conducted in
order to provide an ‘order of magnitude’ assessment of the approximate ratio of each of the three
systems required to serve the city. This has included initial analysis of street widths from
available satellite imagery and CAD information, supported by field observations. Figure VI-34
shows the results of this initial assessment.
202. On this basis, it is inferred at this preliminary stage that 35 percent of Sialkot’s generated
MSW will be collected utilizing System 1, 40 percent utilizing System 2, and 25 percent utilizing
System 3. This in turn equates to approximately 679 individual systems for System 1, 234
individual systems for System 2, and 105 individual systems for System 3. As part of the
investment project, it is also proposed to strengthen street sweeping and cleaning operations
within the collection areas. Initially, about 478 street sweepers and 2 additional mechanical
sweepers will be needed for the system. The existing vehicles and equipment currently owned
by the SWMC will be fully integrated into the new system, and this equipment has been taken
into account in estimating new equipment needs for the system.
203. The MSW collection system will also support informal recycling initiatives implemented
throughout the city. Through the proposed public awareness and engagement program, MSW
generators will be encouraged to optimize source segregation of their MSW to facilitate recycling.
The MSW collection equipment (carts, motorized collection vehicles and collection point storage
bins) can also be ‘multi-compartmentalized’ to allow for the segregated storage of recyclable
materials and residual MSW. To facilitate this, each household is to be provided with suitably
designed collection containers for the safe storage of recyclable materials and MSW.
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Figure VI-34: Indicative Solid Waste Collection by Area Distribution
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Residual MSW Disposal System
(i)
Initial Siting Assessment
204. It is proposed that a single, international-standard centralized MSW disposal facility be
developed to accommodate Sialkot’s entire residual MSW stream over the long term. Based on
current estimates, the city’s current population of about 783,000 is destined to increase to
approximately 1.25 million by 2035 and through further extrapolation, to over 2.2 million by 2060.
It is therefore considered appropriate to plan for the development of the facility over this
timeframe, that is, to at least 2060, 45 years from now. Although largely conjectural at this stage,
this infers an MSW disposal demand for Sialkot of around 3.5 million m 3 by 2035, and
approaching 14 million m3 by 2060. Such a landfill facility would be different than is usual in
Pakistan, in that instead of spreading residual MSW in thin layers over a large area as is the
conventional practice, the MSW in the landfill will be densely compacted in specific cells to form
a single pyramid of waste, and incorporating a full suite of modern engineered environmental
protection systems, as described later. This type of configuration is preferable as the surface
morphology in the Sialkot area is basically flat to slightly undulating. Initial estimates indicate that
by 2035, the entire facility, including the landfill footprint and ancillary areas, would be around 30
hectares in size, growing to about 60 hectares or more in size by the year 2060. The challenge
therefore is to now identify and develop a suitable site capable of accommodating such a facility.
205. Initial site reconnaissance has therefore been conducted as an integral part of the PFS in
order to attempt, in the limited time of the PFS, to identify sites that are potentially suitable as the
location of the facility. At the outset, from satellite imagery review and cursory field observations
conducted in the PFS, it is apparent that land use within most of the Sialkot area is either
agricultural or urban development. Outside of the urban areas, these agricultural lands are
extensive, with almost all the available land being utilized for agriculture: in fact, there are few if
any areas that are not being utilized for these purposes, or that are derelict or unused. Most
agricultural areas are also characterized by villages (chaks), spaced at distances generally
between 0.5 km and 1.5 km apart and interspersed with settlements and individual dwellings. As
a result, there are also very few large open areas within the agricultural areas that do not contain
villages or settlements. It therefore follows that the siting of the proposed facility of size 30 to 60
hectares would most likely result in impacts of potential significance, including involuntary
resettlement, agricultural land conversion and loss of livelihood, and inevitably, the facility being
located close to one or several villages and other settlements. The siting, permitting, construction
and operation of such a facility for Sialkot is therefore a challenging proposition.
206. In addition, Sialkot’s SWM system will rely on the efficient and sustainable transfer of
MSW from the city to the facility. For this reason, it is vital therefore that the road network is
reliable and has sufficient carrying capacity for the waste trucks. This therefore requires the
facility to be either located on a main arterial road that is capable of supporting the truck
movements, or be close enough to that road to avoid expensive access road construction or the
need for trucks to traverse through villages and settlements on their way to the facility. History
has shown that a key reason that waste facilities face local opposition is when trucks thunder
through villages and settlements day after day. These two factors: firstly, the availability of
suitable lands of sufficient size, and secondly, the security of transport to the facility, largely
govern the site selection process in Sialkot.
207. Figure VI-35 overleaf is a composite overlay of the Sialkot region, showing areas within
an approximate radius of 30-km from the city center. Marked on the overlay are the city’s urban
area and airport (pink), as well as the general location of each town, village and settlement (red).
Around each of these is a circle of approximately 500-m radius, which is generally the buffer
distance recommended when locating disposal facilities such as this. Also indicated are areas
towards the Indian border, railways and natural features including forests, rivers and other
waterways, all of which have restrictions regarding the siting of a facility. It is the ‘clear areas’
between these areas therefore that have been evaluated in the initial siting assessment.
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Figure VI-35: Landfill Site Assessment Map
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Chapter VI
208. During the assessment of these areas however, potential constraints soon emerged
regarding a number of the arterial roads radiating from the city (Figure VI-36). These constraints
are summarized as follows:





Jammu Road, extending to the northeast of Sialkot, traverses through or adjacent to
the Cantonment and into restricted areas towards the Indian border.
Smaller roads to the north of Sialkot have access restrictions and some also require
access through the Cantonment.
Facility development in areas to the northwest of Sialkot is generally prohibited due to
the proximity of the airport.
Areas to the west of Sialkot, along the Wazirabad Road, are generally areas of
proposed urban development and growth.
Areas to the east-southeast of Sialkot would require access along the Zafarwal Road,
which is unsuitable for heavy truck traffic.
Figure VI-36: Primary Arterial Roads
Zafarw
Wazirabad Ro
ad
0
1
al R o
ad
2
Km
209. As a result, the preliminary siting analysis focused generally on areas to the southeast,
south and southwest of the city. This resulted in the identification of eight potential sites, the
locations of which are shown on Figure VI-36. A summary of the findings of field observations
relating to each of these sites is presented on Figure VI-37 overleaf.
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Chapter VI
Figure VI-37: Comparative Analysis of Potential Sites
Site
Nearest Village/Location
Area
(Acres)
Field Observations
1
Kotli Joyian – Malkhan Wala
Begowala
Longitude: 74.292
Latitude: 32.443
276
The site is located at a road distance of about 26
km from Sialkot. The access route is through the
Sialkot-Wazirabad Road, passing through highdensity populated areas of Sialkot and Sambrial
where traffic congestion is common. Currently the
land is being used for agricultural purposes,
however the land is higher value and close to the
dry port and airport. Low suitability for landfill
development.
2
Ghazipur – Chak Chauhdo
Longitude: 74.389
Latitude: 32.439
248
The site is at a distance of about 15 km from
Sialkot and close to Sambrial Tehsil. Land is higher
value due to the growth of industries. Traffic
congestion is also an issue on the SialkotWazirabad Road. Low suitability for landfill
development.
3
Pasia – Khokhe Wali – Bajdar
Longitude: 74.334
Latitude: 32.410
182
The site is located at a road distance of about 25
km from Sialkot in between the Sialkot-Wazirabad
and Sialkot-Daska roads. The access road passes
through high density, populated areas of Sialkot
and Sambrial and traffic congestion is common.
Currently the land is being used for agricultural
purposes, however the land is higher value and
close to the dry port and airport. Low suitability
for landfill development.
4
Bhalloki – Himmat Pur – Trigri
Sharif
Longitude: 74.479
Latitude: 32.361
150
The site is located near to the Emanabad-Sialkot
Road at a distance of 15 km from Sialkot. The road
has sufficient carrying capacity and is well
maintained. The land use is agriculture. It is located
within a low flood zone. The site is suitable for
landfill development after applying flood control
measures in the design.
5
Randhawa – Karan Gali –
Mardana
Longitude: 74.594
Latitude: 32.301
633
The site is accessed through the Daska-Pasroor
Road and is a distance of about 20 km from
Sialkot. The road is considered to lack the carrying
capacity of waste trucks and is in relatively poor
condition. The land use is agriculture. It is located
within a low flood zone. Low suitability for landfill
development.
6
Khopra – Munday Ky – Saringpur
Longitude: 74.676
Latitude: 32.335
653
The site is accessed through the Badiana Zafar
Wall Road, which is a collector road of the SialkotPasroor Road. Although it is within a radius of 25
km of Sialkot, it is a relatively long distance and
difficult to access due to developments and
congestion along the Sialkot-Pasroor Road. Parts
of the route are unsuitable for heavy vehicle
transport. Low suitability for landfill
development.
7
Darya Pur – Ahmad Pur – Rorki
Kalan
Longitude: 74.756
Latitude: 32.434
423
Parts of the access route are unsuitable for heavy
vehicle transport. The site is close to border
protection restricted areas. Low suitability for
landfill development.
8
Rangath Pur – Khaga – Shah
Goth
Longitude: 74.665
Latitude: 32.455
311
Parts of the access route are in poor condition and
are unsuitable for heavy truck movements. Low
suitability for landfill development.
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210. Of these eight sites, only one site, Site 4, is considered to be potentially suitable for the
development of a proposed facility. This site is located approximately 16-km (road distance) to
the south-southwest of Sialkot, immediately adjacent to the Eimanabad Road (Figure VI-38),
which is the primary access road to the site from the city. This road is a primary arterial road
linking Sialkot to southerly destinations, and is often traversed by traffic bound for Lahore. The
road is well maintained, and capable of carrying the projected waste truck loadings.
Figure VI-38: Potential Landfill Site
Bhallowali
Sanywali
Kamma Pasoddi
Himmat Purr
Potential
Site
0
Tarigri Sharif
250
500
Meters
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Chapter VI
211. Although the actual location of the site footprint is yet to be confirmed, the western
boundary of the site is envisioned to be located approximately 500 m to the east of Eimanabad
Road, as shown on Figure VI-37. The potential site area shown on this figure also represents the
approximately 60-hectare facility at full build-out (to 2060): until the year 2035, only half of this
area (approximately 30-hectares) would be needed for the facility. The land use within and
adjacent to the facility is agriculture. Topographically, the site is virtually flat, only undulating by
several meters at around 237 m above ordnance datum. To the east of the proposed site is the
village of Himmat Purr at a distance of 500 m, to the south-southeast the village of Tarigri Sharif
also at a distance of 500 m, to the southwest the village of Seoki at a distance of over 1 km, and
to the west, northwest and north, the villages of Kamma Pasoddi, Kerala and Bhallowali at
distances of over 700 m. There are however smaller settlements that would be within 500 m of
the facility, and from initial observation, there are several dwellings within the site that would
result in involuntary resettlement. An access road would also be required to connect the site to
the Eimanabad Road of approximate length 500 m. As previously discussed, the site is located
in a low flood zone, although it is anticipated at this stage that these impacts can be mitigated
through engineering design of the facility.
Representatives of the Government and ADB completed field reconnaissance of Site 4 during
March 2016. Based on the field reconnaissance, consensus was reached that the site is the
preferred site on which to develop the proposed disposal facility. It is therefore recommended
that Government now proceed as a priority to verify the availability of this site for potential use as
a long-term disposal facility for Sialkot. Once this is established, further siting assessment and
due diligence can then continue through the PPTA.
Figure VI-38: Panoramic Image of Potential Site
(ii)
Proposed Disposal Facility Design
212. It is recommended that the facility will consist of an international-standard sanitary landfill
designed to serve the city until at least 2035, and later on to potentially be expanded to serve the
city to 2060. Also, that it will be designed, constructed and operated to accord with modern
international landfill standards and include the following key features:
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212.1. Landfill Liner System: The landfill base should be prepared and then covered
by a composite liner system incorporating a specially manufactured high-density
polyethylene (HDPE) layer and a mineral layer (clay, loam or permitted substitute) with
very low hydraulic conductivities. The HDPE liner will be welded with a double seam. On
top of the HDPE liner will be a protection layer of geotextile or permitted substitute,
placed to avoid puncture and protect the liner. The objective of the liner system is to
prevent the escape of contaminated liquids (leachate) from the base and sidewalls of the
facility (Figure VI-39).
Figure VI-39: Typical Schematic Diagrams of Multi-Barrier System
waste
surface sealing
system
mineral sealing layer
substrate:
geological barrier
base sealing system
Illus. 10
212.2. Leachate Collection and Treatment System: In Sialkot, although leachate
generation is expected to be moderate, sound engineering practice dictates that
preventive measures should be established to virtually eliminate any leachate
contamination potential. For this reason, it is recommended that the facility design
include a leachate collection and treatment system as an integral component of the base
liner system. In this system, the entire base and sidewalls of the facility will be covered
with a 30 cm gravel layer directly above the liner system in order to divert any leachate
percolating onto the liner by gravity to a nearby drainpipe. This would then transmit the
leachate out to a storage pond; therefore ensuring that no leachate pools on the liner
system.
212.3. In order to achieve this, the landfill base should have a two to three percent
gradient profile to allow the leachate to flow into the collection pipes. These pipes are
also placed on a gradient to transmit the leachate to collection shafts. The leachate
collection pipes will be perforated, reinforced and usually have a diameter of about 30
cm. The reinforcement is necessary so that they can withstand the superimposed loading
of the waste mass above. A leachate treatment system should also be incorporated into
the design in order to treat leachates to a quality that is suitable for discharge
Figure VI-40: Typical Clay Liner and Geotextile Liner under Construction
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212.4. Landfill Gas Collection and Treatment System: Gases that form in the landfill
mass as a result of microbial decomposition of organic materials in the MSW are
collectively termed as ‘landfill gas’ or LFG. These contain the greenhouse gases of
methane and carbon dioxide and other harmful substances. In accordance with
international directives, an LFG collection and utilization system should therefore be
installed for the waste-filled areas. The LFG collection system will prevent the
proliferation of gases emanating from the landfill. It will comprise of gas wells, suction
pipes, collection stations, transport pipes, a vacuum station and a distribution system to
feed an LFG power plant or a flare system that burn the gas.
Figure VI-41: Schematic of a Typical Landfill Gas Collection and Utilization System
gas well
covering system
gas collecting
station
electricity for public power
supply
waste
leachate
collector
combined technical
barrier
high temperature
flare
geological
barrier
heat ( hot water)
combined heat
and power
station (CHP)
212.5. Landfill Cover System: In addition to the covering of all MSW on a daily basis,
and providing interim cover systems for areas that are not being utilized for a certain time
period, the facility should be designed with a final cover system that will completely
encapsulate the entire waste mass once the facility is full. This cover system will
comprise of several layers, normally including a foundation layer, sealing layers that can
include very low density polyethylene (VLDP) welded sheets, protective layers and a
vegetation layer to allow for the planting of vegetation over the landfill mass surface in
order to improve its stability and overall aesthetics.
212.6. Auxiliary Facilities: The facility will also require the following facilities: (i) a
weighbridge to allow for the accurate weighing of MSW vehicles entering and leaving the
facility, (ii) an office and staff buildings, (iii) roads and vehicle hard surfaces for heavy
equipment loadings, (iv) a vehicle and equipment workshop and fuel storage facility, (v)
at least four monitoring wells to monitor groundwater quality around the perimeter of the
site, and (vi) a gatehouse entrance and perimeter fence to control access to the facility.
213. During the operational phase, MSW collection trucks will deliver MSW to the Sialkot
facility. After completing formal entrance inspections, these trucks will be ushered to the
appropriate disposal area. The precise registration of MSW delivered will be carried out through
the proper documentation of the type and weight or volume of waste, and the specific location in
the landfill where the waste will be deposited. Once at the designated depositional area, the
vehicles will unload their MSW, which will then be spread and compacted utilizing landfill
compactors and other equipment (Figure VI-42). At the completion of the daily activities, the
entire area of exposed MSW will then be covered with a layer of earth materials.
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Figure VI-42: Landfill Compaction Equipment
(vi)
Dumpsite Remediation Program
214. All the existing and previous dumpsites in Sialkot need to be eventually closed and
remediated. Conventionally, dumpsite closure works will (i) contour (by excavation and filling)
waste mass outer surfaces, (ii) cover all exposed waste surfaces with a specially designed cover
system, (iii) ensure adequate drainage, (iv) as much as is practicable, capture and treat leachate
(contaminated liquids) and gases emanating from the facility, (v) regularly test for and remediate
where necessary any further contamination identified adjacent to the facilities, (vi) provide
protective vegetation and landscaping to exposed areas, and (vii) provide security and fencing to
prevent unauthorized access. Once the facilities are ‘closed’, they will need to be monitored and
maintained into the future. A dumpsite remediation program is therefore included as an integral
part of the overall Project.
215. The full closure and remediation of all dumpsites in the city may however be beyond the
current financial capacity of the city, as dumpsites closures can be complex and expensive. In
the interim, and as a shorter-term measure, it may therefore be possible to devise an interim
remediation program, where certain actions are taken to reduce their level of impacts, and until
such time that the city can proceed with full closure and remediation. These measures include
for example, grading the surfaces, placing a compacted soil layer over exposed waste mass
areas, installing simple surface drainage features, installing fencing, gates and signs to prohibit
unauthorized access, implementing basic environmental monitoring programs, testing nearby
wells for potential contamination and providing alternative water supplies where necessary. This
should be designed during the PPTA phase.
(v)
Capacity Support Programs
216. In addition to the above physical investment components, the following capacity support
programs are considered essential in order to implement the SWM sector reform program in
Sialkot. These are described as follows.
216.1. Institutional Support Program: An assistance package to strengthen the
operations of the SWMC. This should provide for example, (i) management training for
senior management posts, (ii) formal and ‘on-the-job’ training for technical and
operational staff, (iii) customer service training, (iv) the provision of specialist consultant
technical assistance, and (v) establishing international twinning arrangements with similar
public utilities for knowledge sharing and professional support.
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216.2. Public Awareness and Engagement Program: A citywide program to raise
awareness and increase capabilities at the community level to minimize waste, segregate
and store recyclable materials, responsibly dispose of residual waste, maintain
community cleanliness, reduce illicit dumping, report offenders, and eventually, to pay
SWM tariffs.
216.3. Recycling Support Program: A program is envisioned to firstly improve on a
short term basis, informal recycler and waste worker awareness, engagement and
working practices: and secondly, to support the recycling sector to progressively improve
recycling efficiencies and sustainability.
K.
Environmental and Social Safeguard Considerations
Environmental Impact
217. Of the proposed SWM physical components, the proposed MSW treatment and disposal
facility is expected to have potentially significant environmental impacts that will require
mitigation. Hence, Figure 43 outlines the potential environmental and health risks associated with
the disposal facility and the proposed mitigation measures that will be further refined during the
PPTA phase.
218. Analysis from the field observations revealed that the most optimal option identified for
the development of an MSW disposal facility is a site measuring around 150 acres in size,
located near to the Bhallowali Chowk near to the Sialkot-Emanabad road, located at a distance
of about 15 kilometers from the center of the city. The Emanabad Road access route is an
asphalt road of wide width that can take the load of large container trucks. The site is inhabited
by owners and tenants, who till the land. Groundwater that is extracted from tube wells at the
site. The communities of Bhallowali, Himmat Pur and Trigri Sharif are adjacent to the site. The
site is situated in a low-flood zone area due to the overflow of a Nullah in the east during heavy
rains in the monsoon season. It is considered that the site can be made suitable for a landfill after
applying flood control measures in the design. It is anticipated that there would be no loss of
habitat, unique species and disruption of migration routes due to the implementation of the
landfill site project. Impacts associated with flora will be the loss of agriculture lands, the cutting
of trees and crops, and associated impacts on livelihoods.
Figure VI-43: MSW Disposal Facility Environmental
Risk Assessment and Mitigation Measures
Screening Questions
Mitigation Measures
A. PROJECT SITING
IS THE PROJECT AREA…
 DENSELY POPULATED?
The selected landfill site is surrounded on all sides by
village settlements of varying sizes and population
densities. Including all possible precautionary and
mitigation measures will require these communities to
be ‘brought on board’, using participatory processes, visa-vis the proposed project.
B. POTENTIAL ENVIRONMENTAL
IMPACTS
WILL THE PROJECT CAUSE…
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Chapter VI
Screening Questions
Mitigation Measures
 impacts associated with transport of
wastes to the disposal site or
treatment facility
Noise and related disturbances from trucks carrying
MSW is likely to be a major cause of concern for and
opposition from residents along the route from Sialkot to
the landfill site. Measures such as using larger capacity
trucks during work/business hours and ‘buy in’ from
community leaders in early stages of project
development will be crucial.
 degradation of aesthetic and
property value loss?
Likely to be some reduction in value of land in the
vicinity of the landfill site. This may require some kind of
compromise development project of special need of the
nearby localities to be initiated by the government as a
way to get ‘buy in’ of the communities.
 nuisance to neighboring areas due
to foul odor and influx of insects,
rodents, etc.?
Adequate odor and insect/rodent control measures will
need to be part of detailed project design.
 dislocation or involuntary
resettlement of people?
The proposed landfill site will entail resettlement of some
people, who will need to be adequately compensated
according to ADB and GoPb policies, rules, and
regulations.
 disproportionate impacts on the
poor, women and children,
Indigenous Peoples or other
vulnerable groups?
There is the likelihood that those most affected by the
siting of the MSW facility belong to marginalized
groups/categories, and as such, might need to be
compensated to the maximum allowable under ADB and
GoPB policies and rules.
1. risks and vulnerabilities related
occupational health and safety due
to physical, chemical, biological, and
radiological hazards during project
construction and operation?
Development and operationalization of an occupational
health and safety plan will be made compulsory during
project construction period and beyond that during the
operational phase.
 public health hazards from odor,
smoke from fire, and diseases
transmitted by flies, insects, birds
and rats?
Comprehensive public health and safety measures will
form part of the design of the project facility standard
operating procedures during the operational phase.
 deterioration of water quality as a
result of contamination of receiving
waters by leachate from land
disposal system?
Detailed project design will include provision for baseline
liner system and a leachate collection and treatment
system to prevent leachate from contaminating
groundwater.
 contamination of ground and/or
surface water by leachate from land
disposal system?
Detailed project design will include provision for baseline
liner system and a leachate collection and treatment
system to prevent leachate from contaminating
groundwater.
 land use conflicts?
To avoid the occurrence of such an eventuality, early
‘buy in’ from the surrounding communities and other
concerned stakeholders – and documentation of the
same in the form of a legal agreement - will be crucial.
 pollution of surface and ground
water from leachate coming from
sanitary landfill sites or methane gas
produced from decomposition of
solid wastes in the absence of air,
which could enter the aquifer or
escape through soil fissures at
places far from the landfill site?
Detailed project design will include (i) provision for
baseline liner system and a leachate collection and
treatment system to prevent leachate from
contaminating groundwater and land; and (ii) a Landfill
Gas Capture and Treatment System to capture carbon
dioxide, methane, and other harmful gases. These will
then either be flared and/or used to generate electricity.
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Screening Questions
Chapter VI
Mitigation Measures
 inadequate buffer zone around
landfill site to alleviate nuisances?
Current settlements around suggested landfill site
location do not leave enough room for a safe buffer zone
and, hence, some of these settlement dwellers will need
to be resettled after due compensation.
 road blocking and/or increased
traffic during construction of
facilities?
The construction contractor will be required to develop
and implement a road traffic management plan, in
collaboration with local authorities, to minimize such
inconveniences during the construction phase.
 noise and dust from construction
activities?
The construction contractor will be required to develop
and implement a noise and dust minimization plan.
 temporary silt runoff due to
construction?
Runoff will be minimized/avoided through a ‘runoff
prevention plan’ to be developed and implemented by
the construction contractor.
 hazards to public health due to
inadequate management of landfill
site caused by inadequate
institutional and financial capabilities
for the management of the landfill
operation?
Loan agreement between ADB and the GoPb will
include mandatory provisions for financial resources and
institutional mechanisms to be in place to prevent
hazards to public health arising out of landfill site
operations.
 emission of potentially toxic volatile
organics from land disposal site?
 surface and ground water pollution
from leachate and methane gas
migration?
 loss of deep-rooted vegetation (e.g.
tress) from landfill gas?
‘Greening’ of landfill site through plantation of
indigenous species of plants and trees will be
undertaken throughout the project life to compensate for
any loss of vegetation, to increase aesthetic appeal of
the site and to enhance its physical integrity.
 contamination of air quality from
incineration?
A Landfill Gas Capture and Treatment System to
capture carbon dioxide, methane, and other harmful
gases will be part of the project. Captured gases will
either be flared and/or used to generate electricity in line
with permissible air quality standards of the
Environmental Protection Department of Punjab.
 public health hazards from odor,
smoke from fire, and diseases
transmitted by flies, rodents, insects
and birds, etc.?
Comprehensive public health and safety measures will
form part of the design of the project and facility
standard operating procedures during the operational
phase
 health and safety hazards to workers
from toxic gases and hazardous
materials in the site?
Construction contractor will be required to institute a
workers health and safety program for the duration of
the construction period
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Screening Questions
Chapter VI
Mitigation Measures
 large population influx during project
construction and operation that
causes increased burden on social
infrastructure and services (such as
water supply and sanitation
systems)?
Provision of adequate facilities for anticipated
construction staff and facility personnel will form part of
detailed project design.
 social conflicts if workers from other
regions or countries are hired?
To the extent possible, the construction contractor will
be required to hire local staff and/or institute measures
to prevent unnecessary issues.
 risks to community health and safety
due to the transport, storage, and
use and/or disposal of materials
such as explosives, fuel and other
chemicals during construction and
operation?
‘Workers health and safety’ and ‘safe handling of
volatile/dangerous materials’ program will be made part
of detailed design of the facility and included in the
agreement with construction contractor and facility
standard operating procedures guidelines and training of
personnel.
 community safety risks due to both
accidental and natural hazards,
especially where the structural
elements or components (e.g.,
landfill or incinerator) of the project
are accessible to members of the
affected community or where their
failure could result in injury to the
community throughout project
construction, operation and
decommissioning?
Health and safety of construction workers, facility
personnel, and the wider public will be ensured through
development and implementation of workers and public
health and safety plans and procedures that will be part
of the standard operating procedures guidelines and
training during different phase of project life.
219. Figure VI-44 provides a preliminary appraisal of the MSW facility’s climate change
resilience potential.
Figure VI-44: MSW Disposal Facility Climate Change Resilience Appraisal
Climate Change Adaptation and
Mitigation Considerations
MSW disposal facility
Is the project sensitive to climate
change impacts?
Yes, the project is fairly sensitive to climate change
impacts in terms of its operations and construction and
running costs.
How does expected climate change
impact the project?
Increase in duration and intensity of precipitation and
temperature may contribute to higher than expected
production of leachate and landfill gases (CO2, CH4,
etc.); and increase the costs of necessary remedial
measures such as for flood protection. Increase in
temperature and precipitation (including flooding events)
may also disrupt operations of the facility and increase
cost of operations.
What are the climate change
implications for future environmental
performance of project?
Extreme weather events may result in higher than
expected production of leachate and landfill gases.
Construction of flood control measures at the proposed
facility, for example, could create additional threats of
flooding for surrounding areas/settlements. As such,
climate change proofing measures to be included in the
project will need to factor in impact of such measures on
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Chapter VI
Climate Change Adaptation and
Mitigation Considerations
MSW disposal facility
the wider area, spatially and temporally.
Does the project emit significant
amounts of GHG? Does the project
plan/encourage reduction of GHG?
Yes, the proposed landfill facility is expected to produce
significant quantities of CO2 and CH4 amongst other
gases. Detailed design of the project will include
provision of Landfill Gas Collection and Treatment
System, which may include production of electricity so
as to offset grid electricity consumption by the facility.
Detailed design of the project will also explore the
viability of having the municipal waste carrying trucks
run on CNG or Biofuels to minimize CO2 emissions
associated with facility operations.
Are there any demographic or socioeconomic aspects of the Project area
that are already vulnerable (e.g. high
incidence of marginalized populations,
rural-urban migrants, illegal
settlements, ethnic minorities, women
or children)?
Villages/settlements surrounding the proposed site are
inhabited by small farmers, who tend to be socially and
economically marginalized. Special measures will need
to be taken both at the design and project
implementation stages to ensure there is no damage to
agricultural and related livelihoods of communities living
near the site.
How will the long-term and cumulative
effects of climate change impact the
project impacts? Does the project /
plan help to prepare for the effects of
climate change?
Detailed design of the project will factor in possible
climate change related weather scenarios and the
possible range of their impacts on the proposed project,
and what the implications of these might be for
construction and operational costs and efficiencies.
Social and Resettlement Considerations
220. Although the site of the proposed SWM treatment and disposal facility is yet to be
formally confirmed by Government, it would have an impact on 150 acres of prime agriculture
land owned by 46 farmers, 30 tube wells owned by 20 families, 10 tube-well rooms (the pump
station is covered through these rooms for safety purpose) owned by 10 families, 15 farm houses
owned by 15 families, and 75 wood trees owned by 25 families. In addition, the project facility
would have larger impacts on the livelihood of displaced persons (DPs); especially 34% of the
respondents who are entirely dependent on the affected lands to maintain their livelihood, and
who have no other source of income. However, 66% of the DPs have multiple sources of income
other than the farming, including businesses, jobs in private and government sectors, or working
abroad. Although the full extent of the project was not communicated, especially how this facility
will be developed and details of compensation provided, people shared their views after
consultation, which are summarized below;









People are reluctant to give up their land as agriculture is their main source of income;
The government should instead consider non-agricultural land for the proposed project;
They had apprehensions over the rate at which the Government will acquire the land;
The government should match the market rate of the land;
The prevailed market rate is on average Rs. 35, 00,000/acre;
The affected DPs should be provided an alternate source of income prior to the acquisition of
the land.
The government should be the party to negotiate for the acquisition of the land.
Tenants represent 2% of the affected population, so the government should also take care of
the tenant’s livelihood after the acquisition of the land.
The surrounding population will also be disturbed by the bad smell from the solid waste site
and their life will be more miserable due to these externalities, so it is better that the
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



Chapter VI
government acquire the entire surrounding area so that they are free to move somewhere
else.
The government should shift the landfill site to a more remote area, away from larger
population centers.
The project is intended for the welfare of the people of the area, however neither the
displaced persons nor those from the surrounding area are happy with the solid waste
management practices.
The affected people have been settled here for centuries so the project will cause greater
social disturbances in addition to disrupting their sources of livelihood.
The graves of their parents are here, so they do not want to leave them, however there is no
way they can stay when the entire piece of land is acquired for the project.
221. Preliminary costs to acquire the land and to resettle the affected people was calculated
based on the replacement cost of affected land and structures, as required by SPS SR2, Para
10. For this purpose, a preliminary market survey was carried out in order to reach the market
based unit rate to be paid to DPs. However, the rates need to be confirmed during the feasibility
and detailed design stage. Total resettlement cost worked out is Rs.535 million including the 3
million for the restoration of livelihood.
L.
Indicative SWM Investment Costs
222. Outline, indicative capital expenditures for the proposed SWM system are shown in
Figure VI-45. As indicated, the total cost at this stage is estimated to be PKR 2.496 billion,
equivalent to approximately US$ 24.231 million. This amount includes the capital costs of the
supplemental collection and transfer system, the street sweeping system upgrades, initial landfill
facility development, the dumpsite closure and remediation program, and the sector support
programs.
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Chapter VI
Figure VI-45: Conceptual Cost Estimate
Sialkot SWM System: Conceptual Cost Estimate
REG-8556: Pre-Feasibility Study Sialkot and Sialkot Cities
PKR
1. MSW Supplementary Collection and Transfer System
System A: Manual Handcart
System B: Mini Dumper
System C: Garbage Compactor
Equipment Yard Restoration
Design and Construction Monitoring
20,819,120
23,214,240
70,000,000
11,403,336
3. MSW Transfer and Disposal System
Land
General Facility
Landfill Facility
Resettlement
155,000,000
91,863,890
602,145,550
100,000,000
94,900,944
4. Dumpsite Remediation Program
Dumpsite Remediation Program
200,000,000
Subtotal
Contingency (10 percent)
TOTAL
US$
770,829,823
181,759,863
239,715,653
274,354,307
50,000,000
25,000,000
2. Street Sweeper System
Sweeper System A
Sweeper System B
Sweeper System C
5. SWM Support Programs
A. Institutional Support Program
B. Public Awareness and Engagement Program
C. Recycling Support Program
PKR
US$
7,483,785
1,764,659
2,327,336
2,663,634
485,437
242,718
125,436,696
1,217,832
202,127
225,381
679,612
110,712
1,043,910,384
10,135,052
1,504,854
891,882
5,846,073
970,874
921,368
200,000,000
1,941,748
1,941,748
128,750,000
51,500,000
46,350,000
30,900,000
1,250,000
500,000
450,000
300,000
2,268,926,903
226,892,690.27
22,028,417
2,202,841.65
2,495,819,593
24,231,258
223. Regarding the supplementary SWM collection and transfer system estimates shown in
Figure 33, the costs shown relate to estimates to supplement the ongoing capital investment
program currently being implemented in the city. Regarding landfill facility development, the
estimate shown in Figure 33 assumes the cost to construct the basic facility, including an initial
landfill cell to accommodate the city’s MSW for the first five years of operation. Beyond this
timeframe, additional cells would then be developed in order to progressively accommodate
additional MSW from Sialkot. It is also noted that at this stage, this cost is shown as an outline,
indicative cost for a facility located at the proposed site: should the site location change, then this
may affect the cost estimate. This cost estimate will be revised and refined during the
subsequent PPTA phase of the initiative.
224. Although an economic analysis of the proposed Sialkot SWM investment program has
not been conducted during the PFS, as this is scheduled for subsequent PPTA activities, initial
observations infer that the major economic benefits of the rehabilitation and rationalization of
Sialkot’s SWM system will arise from the provision of vastly improved SWM services, the
increased recycling of MSW and improved working conditions, and the establishment of a new
MSW disposal facility, operated to international standards. Considerable secondary benefits are
also expected to arise from an improved and efficient SWM system through reduced negative
environmental and public health impacts (lower medical costs, fewer sick days, increased
productivity and reduced air pollution), and potential CDM benefits.
225. In the absence of the project improvements, the average cost of waste collection and
disposal would continue to increase as the aged, inefficient and obsolete MSW collection
equipment breaks down, has higher operation and maintenance (O&M) costs and is out of
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Chapter VI
service more often. The SWMC would be forced to continue to utilize the dumpsites, furthering
environmental pollution and threatening public health. The project might also be expected to
result in several other benefits including the prevention of the illegal dumping of waste that is
currently a major issue, with the associated risk of negative health effects. The avoidance of
informal burning and incineration of waste contributing to smoke and air pollution with associated
respiratory health effects would be another positive benefit. Deteriorating SWM would impact on
the quality of life and appeal of the city.
M.
Indicative Implementation Schedule
226. Figure VI-46 presents a draft implementation schedule for the proposed medium-term
investments for the Sialkot SWM sector. As shown, it is envisioned that the entire physical
system can be designed, permitted, constructed and placed into operation as early as mid-2019
if anticipated progress can be achieved in the system’s overall development. Although the
schedule will be continually refined through the PPTA phase, it is included here to provide an
overview of how the sector development can occur
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Figure VI-46: Sialkot Medium Term Investment Plan – Solid Waste Management Sector
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Chapter VI
Water, Sanitation, Sewerage and Drainage
N.
Sector Assessment - Water, Sanitation, Sewerage and Drainage
Definition of Planning Area
(i)
Land Use and City Development Plans101
227. Sialkot Tehsil contains 50 Union Councils of which 16 Union Councils (UC) currently
constitute the Sialkot Tehsil Municipal Administration Planning Area. It is estimated that this area
in 2010 contained just over 12% Sialkot Tehsil total population and 34% of its urban population.
228. However, the original Planning Area definition has become defunct as the process of
urban growth extends well beyond these limits, rendering this spatial definition redundant for
development planning purposes. This is confirmed by the fact that today 71% of the urban
population lives in the adjacent peripheral urban areas lying outside of the Planning Area and
Cantonment.
229. The district government is in process of notifying the new boundaries of the city. At this
stage it is expected that the TMA boundary will be extended to incorporate three Urban Councils
to the east of the current boundary i.e. Talwara Muglan, Pindi Araian and Doburji Araian. Two
other Urban Councils, Bounken and Gohad Pur to the west of the existing boundaries are
densely populated but are not expected to be incorporated into the city at this time. These areas
are shown on Figure VI-47.
230. With regard to land use and development planning, an Outline Development Plan and
Zoning Plan was prepared in 1972 and in the absence of a newer plan, is believed to be still in
effect. This plan appeared to underestimate population growth and did not really effectively guide
and control development.
231. A Sialkot Master Plan was prepared in 1986 under the World Bank Funded ‘Feasibility
Studies and Urban Master Planning of Ten Cities of Punjab’. The plan period was 20 years
(1994-2019). The Plan aimed to maintain its cultural and industrial nature and its westward and
southward growth. The plan highlighted mixed land uses, which are quite pronounced in Sialkot,
with haphazard residential, industrial, and commercial activities taking place in different localities.
The Master Plan of 1996 was not adopted, reportedly due to the lack of detailed consultations
and lack of further detailed studies, although some of its recommendations are still valid.
101
This section makes reference to the report, Urban Planning in Sialkot, GHK, January 2011 and the Strategic
Planning Framework, May 2010.
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Chapter VI
Figure VI-47 - Sialkot Planning Area – ‘Core City’
(ii)
Study Area for Pre-Feasibility Study
232. The current water supply, sewerage and drainage infrastructure is primarily confined to
the 16 UCs that comprise the existing TMA area of jurisdiction. Given the poor condition of this
infrastructure, its rehabilitation will comprise the priority investments. Servicing unserved or
underserved areas, in particular the urban poor, within these existing boundaries will also be a
priority. As discussed above in 2.1, it is likely that the UCs of Talwara Muglan, Pindi Araian and
Doburji Araian will be included in the TMA (or the future Municipal Corporation). Provision of
services for these areas will therefore become the responsibility of the new Municipal
Corporation and outline proposals for water, sewerage and drainage have therefore been
included in the Interim Report, although further assessment of the existing situation in these
areas will need to be undertaken at a subsequent time.
233. Outside the current 16 UCs and the proposed additional 3 UCs, urban development
continues to occur. In particular, the peri-urban areas to the west have very high population
densities, and the sanitation issues especially must be severe. As outlined in the ICDS, the 2035
Municipal boundaries are likely to include some of these peri-urban areas. Development in these
areas needs to be addressed in the long-term strategy. The suggested 2035 boundaries are
shown in Figure VI-48.
234. The ICDS is developing a set of long-term plans and planning concepts that are intended
to enable Sialkot to grow in a more congenial manner. This will focus on a more decentralized
approach to growth and neighborhood development. This approach is consistent with a water
supply strategy that will develop District Metering Areas (DMA) for water supply operation and
maintenance and decentralized sewage treatment and disposal facilities.
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Chapter VI
Figure VI-48 – Proposed 2035 Boundary102
(iii)
Population Projections
235. Population projections for Sialkot are discussed in some detail in the ICDS Rapid Urban
Assessment. This indicates that the Sialkot District population has nearly doubled in the 20 years
until 2015 and that the greater proportion of this development has been urban. Much of this
urban development has taken place in the peripheral areas of Sialkot City. The population data
for the proposed PFS planning area (including that within the suggested 2035 urban boundary) is
shown in Table VI-49 below and this has been the basis for the estimation of water demands and
sewage production.
102
Source: ICDS/Urban Unit
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Chapter VI
Table VI-49: Population Projections
1998 Census
Projected
Population
Current
TMA
Boundary (16 UCs)
358,376
497,648
731,185
Cantonment
63,126
90,815
139,364
Possible Extension to
TMA
boundaries
(3UCs)
58,931
98,050
178,467
Proposed
boundaries
-
187,096
341,520
480,433
873,609
1,390,536
Total
2035
2015
Projected
Population
2035
Source: ICDS/Urban Unit, 2015
236. As discussed above, the water supply and sewerage networks operated by the TMA
supply only those residing in the 16 Urban Councils within the current TMA boundary. It is clear
that there is significant development outside the current Municipal limits and these peripheral
areas are not covered by the existing water supply and sewerage networks. It is also understood
that sewage from the Cantonment drains directly into the Bhaid Nullah and contributes to the
poor condition of that water body.
Sector Assessment
(i)
Policy Framework
National Urban Water Supply and Sanitation Policies
237. National policies related to the urban water supply and sanitation sector are summarized
in Table VI-50.
Table VI-50 – National Urban Water Supply and Sanitation Policies
Policy
Objectives/Targets
National Drinking Water Policy
2009
Improve the quality of life by reducing the incidence of death
and illness caused by water-borne diseases;
Provide safe drinking water to the entire population at an
affordable cost in an impartial, efficient, and sustainable
manner. Ensure reduction in the incidence of mortality and
morbidity caused by water-borne diseases.
Provide a supportive ground and legal framework that could
facilitate sustainable access to and provision of safe drinking
water.
It highlights the constitutional responsibility of the provincial
and local governments (towns and TMAs) to provide drinking
water.
It underlines that the right to water for drinking takes
precedence over rights to water for all other uses
(agriculture, industry, and so forth).
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Chapter VI
Ensure participation of the vulnerable and poor in decisionmaking for the sector at all levels, recognizing the key role
that women and communities play.
Provides a financial framework within which the provision of
water supply can be undertaken in a cost-effective,
equitable, and sustainable manner and that water treatment
will be an integral part of all drinking water supply schemes.
It also provides a set of policy instruments and strategies to
achieve the objectives of the policy.
National Sanitation Policy 2006
Provide adequate sanitation coverage, an environment
necessary for healthy life, and meeting the MDG targets.
Improve the quality of life of the people and their physical
environment.
Ensure an open defecation-free environment; safe disposal
of liquid and solid waste; and the promotion of health and
hygiene practices.
Develop guidelines for the evolution of an effective
institutional and financial framework and for linking sanitation
programs with environment, housing, water, and city and
regional planning policies and programs.
It supports programs that are implementable within available
resources and enhanced capacities of institutions and
communities.
Supports and accept the role that communities, NGOs, and
the formal and informal sectors are stakeholders in
sanitation provision.
The policy emphasizes the development and use of
technologies that are simple and cost-effective to install and
maintain; it ensures the involvement in the planning of
sanitation schemes of those departments/agencies
responsible for operations and maintenance (O&M).
Priority to be given to the needs of women and children at all
levels of planning and implementation.
Pakistan EPA Act 1997
Provides the basis for the Environmental Protection Agency
(EPA) for the establishment of water quality standards and
ensure enforcement of the National Environmental Quality
Standards.
National Climate Change Policy
Key policy measures recommended relating to water supply,
2012
sanitation (and solid waste) are:
Make installation of wastewater treatment plants an integral
part of all sewerage schemes.
Introduce local rainwater harvesting measures
Ensure separate collection, disposal and re-use of
recyclables, composting and biodegradable waste,
preferably at source
Punjab Province Urban Water and Sanitation Policies
238. Punjab Province policies related to the urban water supply and sanitation sector are
summarized in Table VI-51.
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Chapter VI
Table VI-51 – Punjab Province Urban Water Supply and Sanitation Policies
Policy
Objectives/Targets
Punjab Local Government Act
Provides for responsibilities of Metropolitan and Municipal
Corporations. Municipal Committees, District Councils and
Union Councils with respect to drinking water, sewerage,
solid waste and drainage.
Categorizes water into potable domestic for drinking, nonpotable domestic, institutional, commercial, industrial,
amenity, environmental and remedial use. Proposes a
regulatory authority called the Water Commission. Requires
the local governments to prepare a Water and Sanitation
Master Plan.
Provides the framework to guide and support provincial
institutions, District Governments, Water Utilities and
communities for improving water and sanitation services in
accordance with the National Sanitation Policy 2006 and the
National Environmental Policy 2005
Draft Punjab Municipal Act
Punjab
Urban
Water
Sanitation Policy 2007
and
Punjab Drinking Water Policy
The policy has the following key policy objectives related to
water supply and sanitation:
To enact the Punjab Municipal Act;
To provide institutional reforms in the Urban Water Services
Provincial Government Agencies;
WASAs are to be financially viable by 2016;
WASAs to have 100% consumer meters by 2016;
Investment in managing wastewater treatment facilities to be
made in all WASAs;
Reduce NRW and leakages in all WASAs;
TMAs to take appropriate measures through legislation and
administrative initiatives to ensure rationalization of tariffs
and improvement of capacity in TMA.
Draft Punjab Sanitation Policy
Provides policy principles for the improvement of sewerage
and sanitation for urban and rural areas.
Millennium Development Goals
239. According to the Joint Monitoring Program (JMP) of WHO and UNICEF, Pakistan is on
track to achieve the national water supply Millennium Development Goal (MDG) target—reaching
92 percent of the population as compared to the targeted 91 percent—but off track with respect
to the national sanitation MDG target (48 percent versus targeted 63 percent). In the urban
subsector the water coverage in 2010 is just below the 2015 target of 97 percent; sanitation is
well below with 2010 coverage of 72 percent versus a 2015 target of 86 percent. In both water
supply and sanitation, the coverage (in total and by type of service), as a percentage of urban
population, has hardly changed for 20 years, indicating that providers are keeping up with urban
growth but making little improvement.
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Chapter VI
Country Water Supply Status103
240. The method of providing drinking water to urban residents varies considerably within the
provinces. For example, in Punjab about 46 percent of the population has access to tap water
through pipe networks, 8 percent by hand pumps, 37 percent by motor pumps, and 8 percent
other.
241. There is no city in Pakistan with a continuous 24/7 water supply. Intermittent supply is the
rule. Coping mechanisms by users range from installing ground or roof tanks for collecting water
when it is available and hoarding it, buying water from tankers, or using shallow wells and/or river
water. Some private tankers are licensed by water utilities, but all tanker owners benefit from the
intermittent water supply. There are many reasons for the intermittent supplies. One may be
power blackouts because of insufficient power system capacity or targeted load shedding by
power utilities given slow payment by water utilities. More likely is an evolution of intermittent
service delivery to combat high levels of leakage and to ration supplies.
242. Water supply technical operations efficiency can be measured by reference to the levels
of nonrevenue water (NRW). The high levels of NRW reported by the WASAs (24–68 percent)
reflect low operational efficiency. These figures are only approximate, given the low levels of
production and customer metering in the WASAs, both of which are essential for calculating
NRW. Water supply technical operations efficiency can be measured by reference to the levels of
nonrevenue water (NRW). The high levels of NRW reported by the WASAs (24–68 percent)
reflect low operational efficiency.
Country Sewerage/Sanitation Status
243. The 2006 World Bank Environmental Assessment Report states that most surface water
pollution is associated with urban centers. Typically, nullahs and storm water drains collect and
carry untreated sewage, which then flows into streams, rivers, and irrigation canals, resulting in
widespread bacteriological and other contamination. It has been estimated that around 2,000
million gallons of sewage is being discharged to surface-water bodies every day. This lack of
adequate sanitation comes at a cost. Water, sanitation, and hygiene-related diseases cost the
Pakistani economy about Rs. 112 billion (US$1.3 billion) per year in terms of healthcare costs
and lost earnings. Estimates are that diarrhea was the leading cause of loss of disability-adjusted
life years (DALYs) in Pakistan. Infant mortality is high at 70 per 1,000 live births, and child
mortality is still higher at 86 deaths per 1,000 live births.
244. As reported by the WASAs in 2011, two of the country’s nine major cities, Islamabad and
Peshawar, had 100 percent sewerage coverage. These were followed by Lahore with 87 percent
coverage and Karachi with 80 percent. The five remaining cities had coverage ranging from 12
percent (Quetta) to 70 percent (Faisalabad). The apparently high urban coverage likely hides the
fact that the proportion of urban households with individual connections to piped sewerage trails
aspirations by a good deal.
245. Coverage of public sewerage has hardly increased over the past decade, and as a result,
the share of the sewage generated that reaches the wastewater treatment plants has increased
only slightly. Although some sewerage collection systems exist, typically discharging to the
nearest water body, collection levels are estimated to be no greater than 50 percent nationally,
with only about 10 percent of collected sewage being treated effectively.
246. Although treatment facilities exist in about a dozen major cities, some have been built
without the completion of associated sewerage networks, and the plants are often either under
loaded or abandoned. In effect, only a few percent of the total wastewater generated receives
adequate treatment before discharge to the waterways. Three of the smaller cities, Rawalpindi,
Multan, and Gujranwala, have no treatment facilities whatsoever. Peshawar has four plants,
103
This section draws heavily on Urban Water Supply and Sanitation Study, World Bank, AusAID, WSP, April
2013
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Chapter VI
none of which are operating, due to a lack of sufficient operational and maintenance resources
and high-energy costs. Quetta has a plant under construction. Faisalabad has a primary and
secondary treatment plant with a capacity of 33 m3/year but this is insufficient providing treatment
for just 6 percent of the total collected wastewater of 587 million m3/year. Islamabad with four
plants providing primary and secondary treatment is the only city with adequate treatment
capacity. Lahore has facilities enough only to provide primary screening. Karachi has three
plants providing primary and secondary treatment that treat only about 2.5 percent of the sewage
generated.
247. Low levels of wastewater treatment and inoperable plants reflect the prevailing mindset
among state engineering entities emphasizing asset creation rather than service provision as
well as the weak financial condition of all the service providers. Unfortunately, there is no simple
solution to the challenge. There is increasing pressure to collect and treat waste, in order to
avoid the obvious environmental pollution that currently exists, yet the service providers suffer
from a weak governance environment and have no financial capacity—and limited technical
capacity—to operate the facilities once completed. In areas where there is abundant surface
water for households to extract (such as in parts of Punjab), the lack of treatment adversely
affects the quality of those supplies. Hence, wastewater treatment becomes much more
important as a means to protect a low-cost water source in these areas, as opposed to other
areas where water supplies are costlier and have lower pollution levels.
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Chapter VI
(ii)
Targets for Water Supply and Sanitation
248. The Punjab WASH Sector Development Plan (2014-2024) established targets for water
supply and sanitation in the Province. The targets and the current status in Sialkot are outlined in
Tables VI-52 and VI-53. The proposed status in Sialkot after implementation of the MTIIP is also
shown in Table VI-52.
Table VI-52 – Water Supply Targets (Punjab WASH Sector Development Plan (2014-2024)
Indicator
Target
Medium Term
Long Term
Sialkot
Current
Dysfunctional tube wells
rehabilitated and operating
Functional tube wells
working at rated capacity
% of old infrastructure
rehabilitated/replaced.
Distribution network
coverage
% of tube wells where bulk
flow meters and pressure
gauges installed
TMAs where additional
overhead storage provided
50%
80%
90%
Proposed
After MTIIP
100%
85%
90%
50%
100%
20%
40%
0%
90%
70%
80%
90%
90%
40%
60%
0%
100%
25%
50%
Not functional
% of tube wells/overhead
reservoirs where
chlorination facilities
installed
% of tube wells where
monthly water quality tests
conducted
% of distribution system
where quarterly water
quality tests conducted
Level of NRW
60%
90%
90%
1 hour
storage
provided
100%
50%
75%
Irregular
100%
60%
90%
Irregular
100%
Less than
15%
60%
Less than
10%
90%
40%
(estimated)
0%
20%
Reduce and
maintain water
consumption
of
65L/capita/day
Reduce and
maintain water
consumption
of
65L/capita/day
Production 80
galls/capita/day
150 L/cal/day
Percentage of high income
areas with metering in
place
Reduced water
Consumption
100% in pilot
zones (2 no)
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Chapter VI
Table VI-53 – Sanitation Targets (Punjab WASH Sector Development Plan (2014-2024)
Indicator
Long Term
Sialkot
Current
30%
Periodic
Proposed
After MTIIP
Periodic
60%
90%
Has basic
equipment
New equipment
provided
Ongoing
Ongoing
No program
Sewerage coverage
% of pumping stations
where phased rehabilitation
plan in place
% of open drains replaced
with sewers and WWTP
installed
70%
60%
82%
90%
49%
0%
59 km of sewer
to be replaced,
rehabilitated or
new sewers
provided.
75%
100%
25%
50%
0%
% of new schemes with
wastewater treatment plants
No. of treatment facilities in
intermediate cities
50%
75%
0%
Sewers
upgraded and
WWTP
provided
100%
1
0
1
Conduct of wastewater
testing and public reporting
of industrial pollution
Percentage industrial
wastewater treated.
Ongoing
1 (with reuse/recycling
facility)
Ongoing
Not
conducted
Laboratory to
be established
3-5%
6-10%
Minimal
Will depend on
incentives
provided to
industry
% of drains desilted and
cleared per quarter
% of TMAs equipped with
sewerage maintenance
equipment
Phased replacement of old
sewer lines
Target
Medium
Term
30%
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(iii)
Chapter VI
Road Map for Achieving Targets
249. Sialkot TMA has been unable to deliver public goods and services adequately, and this
justifies intervention in the sector. In order to gradually achieve national and state targets on
water supply and sewerage a 10-year road map for selected indicators has been prepared as
part of the Medium Term Infrastructure Investment Plan as shown in Table VI-54. The road map
assumes that by 2025 the service area will be expanded to cover the 3 additional UCs.
Expansion of the service area into the proposed 2035 boundaries will occur beyond 2025.
Table VI-54 – Road Map for Water Supply and Sewerage Development in Sialkot (20152025)
Indicator
Proposed Achievement
Current (2015)
Medium
(2020)
498
657
750
Population covered by water supply
(‘000)
400
570
750
HH with water connections (%)
48%
60%
100%
Water Production (MGD)
38
42
48
Water Loss (MGD)
11 (40%)
10 (35%)
8 (20%)
Continuity of water supply
12
16
24
Population with sewerage coverage
(‘000)
250
450
750
HH with sewerage connections (%)
-
40%
80%
Volume of wastewater collected (MGD)
11
20
32
Treatment capacity available (MGD)
0
25
50
Population in service area (‘000)
Term
Longer Term
(2025)
Water Supply
Sewerage
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Chapter VI
Sector’s Importance to Sialkot’s Livability, Competitiveness and Resilience
250. The sector will bring about the following positive influences in livability, competitiveness
and resilience in Sialkot.
Table VI-55 – Impact of Sector on Livability, Competitiveness and Resilience
Areas of Impact
Nature of Positive Impact
Livability
Livability in Sialkot is especially hampered by the status of the water
supply, sewerage and drainage systems. While sufficient water is
being produced from the tube wells, the poor condition of the piped
network and the lack of any storage results in an intermittent supply
of water which impacts on the quality of water being delivered to the
residents. This impacts most severely on the low-income
communities who have less coping mechanisms that the highincome residents. Replacement of 90% of the piped network, the
move towards 24/7 water supply, the bringing back into service of
the overhead storage tanks, the installation of a centrally controlled
water supply system and the institutional changes in the
management of the sector will result in better living conditions for
the residents.
The poor quality of the environment and the water bodies resulting
from frequent sewage overflows that occur due to blocked or
damaged sewers and inoperable disposal stations makes Sialkot an
unattractive place to live and also presents severe health risks to
the population. Rehabilitation of the sewerage network will eliminate
the sewer overflows and surcharges; rehabilitation of the disposal
stations and provision of treatment facilities will prevent wastewater
being discharged to the water bodies and significantly improve their
water quality. Flooding will be reduced by increasing the capacity of
the sewer network and ensuring the disposal station pumps have
sufficient capacity to discharge the sewage/storm water to prevent
the drains being overloaded. However, the project will not directly
address the industrial wastewater situation and until this happens,
quality of the water bodies will continue to be compromised.
Flooding in Sialkot is a serious issue that impacts on livability during
high rainfall events. Improvement in the sewerage network and
rehabilitation of the disposal stations will reduce flooding and
particularly ensure that the health risks associated with surcharged
sewers during flood events will be eliminated. The long-term
proposals to increase the capacity of the local drainage network will
reduce local flooding events. These activities, in conjunction with the
work being done by the Irrigation Department to increase the
capacity of the nullahs, will significantly reduce the flooding that
regularly disrupts daily life in Sialkot.
Competitiveness
Sialkot has maintained its status as a competitive city despite the
constraints of a poor environment and regular flooding. This is to the
credit of its government, the private sector and the citizens.
However, increasingly international customers are taking into
account a range of factors when determining the most appropriate
place to do business. The environment is one of the key factors that
will be considered and to compete with other manufacturing cities,
Sialkot will need to show that it is not putting its citizens at risk by
neglecting the environment. Industries will also need to show
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Chapter VI
corporate responsibility by treating its waste thereby contributing to
the improvement in the quality of the water bodies.
The project will start the process by effectively dealing with domestic
wastewater demonstrating that this can have an impact on the
environment. The project may also assist the Government to
develop procedures that will incentivize the industries to either pretreat their wastewater or re-locate to an industrial zone where a
common industrial treatment facility could be installed.
The outcome will be a cleaner city which will demonstrate to local
and international customers that Sialkot is at the leading edge in city
development which will enable it to compete with other cities that
understand the importance of a clean and healthy environment for
its citizens.
Resilience
Sialkot has been a resilient city in the sense that it has maintained
its competitiveness despite the poor infrastructure and increasing
threat to water supply sustainability, its environment and the
constant risk of flooding. However, the continued of climate change
will exacerbate these factors and measures are required to enable
the city to adapt. The risk to water supplies from the reduced
recharge of the aquifer will be addressed through reduction in water
abstraction from water loss reduction programs and demand
management as well as consideration to alternative sources such as
rainwater harvesting and surface water. Pollution of the water table
will be addressed through the wastewater collection and treatment
projects that will improve the quality of the waterways. Climate
change will increase the risk of flooding through more extreme
events. The project will address this through upgrading of the
sewerage and drainage systems in combination with the work being
done by the Irrigation Department to increase the capacities of the
Aik and Bhaid nullahs.
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Chapter VI
Water Demand and Wastewater Production
O.
Water Supply and Sewerage Design Criteria
251. The Public Health Engineering Department (PHED) Design Criteria 1998, modified in
2008 104 is currently used for the design of all Public Health Engineering structures for water
supply, sewerage and drainage. The principal criteria for water supply and sewerage is
summarized in Annex A.
252. In general, this criterion has been used in the PFS concept designs, with the exception of
the per capita water consumption. Based on experience of similar cities to Sialkot and Sahiwal,
the team believes that the per capita water consumptions outlined in the above design criteria
are too high, particularly over time, as demand management policies such as water pricing begin
to have an impact. For this study, a per capita consumption of 150 litres/capita per day (33
gallons/capita/day will be adopted. A 20% allowance for Unaccounted for Water (UFW) will be
added to this per capita consumption.
253. The CRVA team has developed revised design criteria that will give consideration to the
impacts of climate change. These criteria have also considered a per capita water demand of 33
gallons/capita/day.
P.
Water Demand and Wastewater Production
Water Demand
254. Overall 95 tube wells are operational catering to the need of the urban population of
Sialkot. This does not include the cantonment area for which an additional 15 tube wells are
operated. The design discharge of all tube wells is 1.5 cusec however actual discharge varies
depending upon the age and condition of the tube well. All tube wells operate on average 12
hours a day. Based on average discharge and operation time, the total daily production for
Sialkot City (excluding the cantonment) is approximately equivalent to 38.4 million gallons while
per capita production is equivalent to 79.8 gallons per capita per day. These are raw estimates
since accurate production data is not available due to the absence of metering and monitoring
mechanisms. The higher volume of water production, absence of monitoring mechanisms,
absence of valve control mechanisms on the pipe network, absence of customer meters
illustrates the exploitation of the resource and high production costs.
255. Based on the current and projected populations for the TMA and the proposed water
demand of 33 gallons per capita per day, the current (2015) water demand and future (2035)
water demand is estimated to be as shown in Tables VI-56 and VI-57 below for the existing and
potential future service areas excluding and including the cantonment area respectively.
Industrial water demand is assumed to be only 15% of the total water consumption as it is
assumed that larger industrial establishments have a private water supply. Commercial and
institutional demands have been assumed to be 15% and 10% of the total water consumption
respectively.
104
Technical and Service Delivery Standards for Water Supply and Sanitation Services, April 2008, Punjab
Devolved Social Services Program
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Chapter VI
Table VI-56– Sialkot Water Demands (Excluding Cantonment)
Demand
Source
Water Demand (MGD)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
Domestic
16.42
19.66
24.13
30.02
41.29
Commercial
4.11
4.91
6.03
7.50
10.32
Institutional
2.74
3.28
4.02
5.00
6.88
Industrial
4.11
4.91
6.03
7.50
10.32
Losses105
10.96
13.11
8.04
10.01
13.76
Total
38.32
45.87
48.26
60.40
82.58
Table VI-57 – Sialkot Water Demands (Including Cantonment)
Demand
Source
Water Demand (MGD)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
Domestic
19.42
22.66
28.73
34.62
45.89
Commercial
4.85
5.66
7.18
8.65
11.47
Institutional
3.24
3.78
4.79
5.77
7.65
Industrial
4.85
5.66
7.18
8.65
11.47
Losses
12.95
15.10
9.58
11.54
15.30
Total
45.31
52.87
57.46
69.24
91.78
256. The estimated daily production in Sialkot is 38.4 MGD (see above), which correlates
extremely well with the above current estimated demand. The probable high amount of losses
(possibly up to 50%) would partially explain why it is not possible to provide a 24/7 service at
present. The nominal rating of all the tube wells is 149.5 cusecs or 80 MGD (see Table 5.1),
although this is expected to now be less than 100 cusecs given the lower water table and the
condition of the pumps. Nevertheless, the capacity of the existing tube wells seems to be
sufficient for the foreseeable future provided the pumps are rehabilitated and the lowering of the
water table is addressed.
105
Losses are assumed to be 40% at present, reducing to 20% by 2035
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Sewage Generated
257. Wastewater flows have been estimated for 2015 and 2035 based on the water demand
estimates and these are shown in Tables VI-58 and VI-59 for the population excluding and
including the cantonment respectively. In the case of wastewater, sewage generated from the
cantonment has been included since this is currently discharged into the TMA system.
Table VI-58 – Sialkot Wastewater Production (excluding Cantonment)
Component
Wastewater Flows (MGD)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
23.27
27.85
34.18
42.53
58.49
46.53
55.70
68.37
85.05
116.98
Infiltration
2.33
2.78
3.42
4.25
5.85
Storm water Infiltration
11.63
13.92
17.09
21.26
29.25
Peak Wet Weather Flow
60.49
72.41
88.88
110.57
152.08
Table VI-59 – Sialkot Wastewater Production (including Cantonment)
Component
Wastewater Flows (MGD)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
27.51
32.10
40.70
49.04
65.01
55.02
64.19
81.40
98.08
130.02
Infiltration
2.75
3.21
4.07
4.90
6.50
Storm water Infiltration
13.76
16.05
20.35
24.52
32.50
Peak Wet Weather Flow
71.53
83.45
105.82
127.51
169.02
258. Sewage treatment plants will be designed to receive 2*Average Dry Weather Flow with
excess flows being bypassed to the water bodies. This will limit the cost of treatment facilities
and ensure that they operate within an acceptable range of full capacity.
259. The BOD loading on the treatment plant will be based on per capita BOD production of
50g/capita/day, which is considered a reasonable value for Pakistan conditions. Commercial and
industrial effluents are assumed to be pre-treated to a domestic standard of 250 mg/L. BOD
loading based on the total wastewater treatment requirements are shown in Tables VI-60 and
VI-61 for populations excluding and including the cantonment respectively.
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Chapter VI
Table VI-60 – BOD Production (excluding Cantonment)
Source
BOD Production (tons/day)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
Domestic Wastewater
24.88
29.78
36.56
45.48
62.56
Commercial Wastewater
4.66
5.58
6.85
8.52
11.72
Institutional Wastewater
3.11
3.72
4.56
5.68
7.81
Industrial Wastewater
4.66
5.58
6.85
8.52
11.72
Total BOD Production
34.20
40.94
50.25
62.52
85.99
Table VI-61 – BOD Production (including Cantonment)
Source
BOD Production (tons/day)
2015
2035
Existing
Urban
boundary
Including
additional
3UCs
Existing
Urban
boundary
Including
additional
3UCs
Projected
2035
boundaries
Domestic Wastewater
29.42
34.33
43.53
52.45
69.53
Commercial Wastewater
5.51
6.43
8.15
9.82
13.02
Institutional Wastewater
3.67
4.29
5.43
6.55
8.68
5.51
6.43
8.15
9.82
13.02
Total BOD Production
44.12
51.47
65.27
78.64
104.25
260. Significant quantities of bio solids will also be produced depending on the treatment
process adopted. Transport and disposal of these bio solids can be costly and needs to be taken
into account when determining options for wastewater treatment.
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Chapter VI
Current Status of Infrastructure
Q.
Water Supply
Water Source and Abstraction
261. The piped water system in Sialkot is supplied by tube wells constructed at various
locations in the city that pump water directly into the system. Valves have been installed on the
network but the staff of the TMA has not been using valves given the interconnectivity of the
network and the sufficient production capacity of the system to supply the city. Moreover, the
valves installed on the system have mostly been buried under the ground due to road
construction and other construction activities limiting the knowledge about their location. If one or
two tube wells are dysfunctional, other tube wells in the vicinity feed the system thus catering for
emergency needs.
262. Approximately 75% of the area in the city limits receives water from the TMA system. The
pressure in the network is acceptably good with limited complaints from the consumers. The
quality of service and pressure is visible from the fact that almost all households have an
overhead reservoir which is directly filled by TMA supply up to second floor without any pumping
facility. Underground reservoirs have not been constructed by the consumers. However, water
quality is reported to be poor, especially by consumers in the low-income areas of the city. The
main complaints relate to odor and there is a perception that there is ingress of sewage into the
water pipelines
263. The aquifer is recharged from the Chenab River, which is located some 20 km north-west
of the center of Sialkot and from the water channels and bodies within the city. The water
channels were originally seasonal watercourses but now carry wastewater from the city
throughout the year. Local water bodies are heavily polluted. The available information suggests
that the depth to the water table is 20 to 30 meters and that shallow groundwater is polluted with
industrial and domestic waste. Water drawn from more than 150 meters (500ft) depth is
generally considered to be safe. Anecdotal information suggests an on average 6-8 m decrease
in water table over a period of three decades; however, this information is not supported by
monitoring data obtained from the Irrigation Department which suggests that the water table has
not varied significantly over the past decade.
264. The TMA owns 97 tube wells, 95 of which are operational. Most tube wells are rated at
1.5cusecs (42.5l/sec or 153m3/hr). According to TMA staff, water is supplied on average for
12hrs during daylight hours allowing consumers to store water in their overhead tank during night
hours. Within the Municipal limits some few households have installed their own tube wells to
cater for gardening or excessive water use needs. Tube wells installed by TMA between 1980
and 1990 were 300-400ft deep while between 1990 and 2000 up to 500ft deep tube wells were
installed. It has been suggested that groundwater at depths less than 500 feet may be polluted
from human and industrial wastes, so all new wells are being drilled to about 600 ft. No
mechanism for monitoring the discharge from the tube wells exists. An ampere meter showing
the current of the electricity being consumed is the only indicator that reflects indirectly on the
condition of tube wells.
265. A conditional survey for a sample of 20 tube wells was conducted to observe the
operational conditions of the tube wells. Chlorination plants have been installed at all but seven
(7) tube wells, which do not have any disinfection facility. Pumps have been maintained and
where required necessary maintenance is done. Since the whole network is open and sufficient
water is being produced, operational issues at one or two tube wells does not affect the water
supply of a particular area as other tube wells keep on supplying water to effected area. However
Page 289
Chapter VI
extra pumps are not available with TMA to cater for emergencies. Routine procurement
processes are time consuming and this may affect the supply when the network is improved and
managed in the future through valves and the system is divided into District Metering Areas
(DMAs) and District Metering Zones (DMZs) after installation of meters and a SCADA system.
266. The design life of the tube wells is 15 years. Overall 29 tube wells are more than fifteen
years old while 11 tube wells are more than twenty years old. TMA recommended the
construction of 11 new tube wells in their short-term plan. Moreover, the TMA has been re-boring
wells during the past few years owing to the reduced discharge and efficiency of the tube wells
but the turbines of these tube wells could not be installed due to a lack of funding. Overall 12
tube wells have been identified which were rebored and require turbine replacement. The status
(operational, requiring re boring or turbine replacement) and location of the tube wells based on
the conditional survey conducted is shown in Table VI-62, Figure VI-63 and Annex B.
267. The source of water outside the city boundary is also tube wells. Water supply schemes
have been installed by the Public Health Engineering Department whereby beneficiaries are
responsible for the operation and maintenance of the schemes through revenue generated by a
pre-defined tariff.
Table VI-62 – Tube Wells Supplying Sialkot Water Supply System
Agency
Responsible
No. of Tube
Wells
No. Tube Wells
Operational
Nominal Rating
Hours Pumping
TMA
97
95
1.5 cusecs
12 hours/day
Page 290
Chapter VI
Figure VI-63 – Location and Condition of Tube Wells in Sialkot
Page 291
Chapter VI
268. An Energy Audit was conducted in Sialkot in 2010 as part of the Punjab Cities
Improvement Investment Program (PCIIP)106. This showed that only 123.46 cusecs or 83% of the
nominal rating of the pumps was being delivered into the system. Further, the current output of
the pumps was 4.8 M3/KW compared with 5.94 M3/KW if the pumps were operating efficiently.
Principal reasons for this were:
268.1. It is reported that the water table has dropped from 40-50 ft to 70-80 ft over the
past decade and was projected to drop to 80-90 feet by 2012. This has resulted in some
pumps with lower design heads to be unable to pump efficiently into the network.107
268.2. The tube well installations pump directly into the distribution network without
storage. There is a range of pumps with different rated duties ranging from 120 ft to 250
feet, which results in some pumps being incapable of pumping any significant quantity of
water against the system pressure. These lower head pumps also operate on an
inefficient part of the pump curve.
268.3. Power factors are generally below 0.9 resulting in efficient operation related to
power consumption.
268.4. There is no integrated control system such as a SCADA for the tube well
installations or pressure gauges at the sites, which would enable some pumps to be
switched off when not required.
269. The Energy Audit Report made a number of recommendations to increase the efficiency
of operation of the tube wells. These were as follows:
269.1. Replace pumps with head ratings 120, 130 and 135 ft with those capable of
pumping 150 feet head.
269.2. Adjust the pumps with capacities of 200 ft and 250 ft head to be equivalent to
those in the same zone i.e. usually about 150 ft.
269.3. To improve power factor, provide capacitors of relevant sizes.
269.4. To address the issue of redundant pumping, especially during non-peak hours,
pressure gauges can be installed on the delivery pipe such that the pumps can be
switched off when they are not substantially adding into the system at the time of already
high existing pressure in the system.
106
107
Energy Audit on Tube wells and Sewage Pumping Stations in Sialkot, GHK, December 2010.
Note that monitoring by the Irrigation Department of the water table in Sialkot District did not show a significant
drop in water table over the past decade.
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Chapter VI
Connections and Tariff
270. There are 41,565 registered connections to the TMA system in 2015 up from 36,153 in
2001/2. The number of connections is growing. The tariff for commercial and domestic customers
depends on size of the connection and location. Customers living in Model Town are charged
slightly more than the other customers because of the improved and prolonged water supply in
that area compared with to remaining parts of the city. Table VI-64 presents the details of
number, type, size of connections and tariff for different type of connections.
Table VI-64: Connections and Tariff Details
S
No
Connection type
SizeDiameter of
Pipe
(inches)
1
Domestic
1/2
200
2400
38036
2
Domestic
3/4
350
4200
67
3
Commercial
1/2
450
5400
2333
4
Commercial
3/4
650
7800
19
5
Banks/Plazasmultistory building
1/2
417
5000
105
6
Banks/Plazasmultistory building
3/4
833
10000
15
7
Domestic Model town
1/2
250
3000
737
8
Domestic Model town
3/4
450
5400
7
Model
9
Commercial
town
1/2
600
7200
18
Commercial
town
Model
10
3/4
2000
24000
0
11
Industry
3/4
2000
24000
228
Monthly
Charges
Annual
Charges
No
of
Connections
Total
41565
Water Quality and Treatment
271. Water quality in Sialkot was analyzed as part of the Punjab Cities Improvement
Investment Program PPTA.108 In this program, water samples were tested from 20 tube wells
and two locations in the distribution system. This showed that out of 20 tube wells tested, 15 had
a high phosphorous content. However, the concentration was not high enough to cause any
health impact. Moreover, 9 water samples out of 20 contained coliform bacteria showing
bacteriological contamination. The possible cause of contamination may be the unhygienic
condition of water taps from which the samples were drawn. Moreover, both samples from the
distribution system had high phosphate content and coliform bacteria. Again phosphorous was
not so high and therefore has no possible health impact. The presence of coliform showed
bacterial contamination. Coliforms may be present in distribution lines due to contamination at
108
Water Samples Testing Report Sialkot City, GHK, November 2010
Page 293
Chapter VI
source or due to leakage, cross connection with sewers and poor maintenance of the distribution
system.
272. Currently chlorination through hypochlorite powder is practiced at each tube well and
overall 88 tube wells have chlorinators while 7 tube wells do not have a chlorination facility.
Provided the chlorination is provided correctly resulting in residual chlorine of at least 0.1 mg/L at
the consumer end no further water treatment is required.
273. In addition, the TMA has been conducting water quality analyses on samples collected
from tube wells as well as households being served by the TMA. Generally, the water quality of
water being provided fulfills the criteria of drinking water (Reference WHO standard) although
water samples collected from households have been found contaminated showing bacterial
contamination. The possible source of contamination at households may be sewage entering the
pipe network or unhygienic storage mechanisms. Results of water quality analyses conducted by
TMA are attached as Annex C.
Water Storage
274. There are eleven elevated or overhead reservoirs (OHR) distributed throughout the piped
network with a total storage capacity of 1568 m3 (345,000 gallons) but these are currently not in
service. Reportedly they were taken out of service due to security concerns whereby it was
considered that the water supply could be deliberately contaminated at the reservoirs. The
storage represents 0.54 hours of storage excluding system losses. Generally, about 3-4 hours
storage is considered necessary to balance supply and demand without giving consideration to
fire-fighting water availability and the impact of load shedding which is frequent in Sialkot. Table
VI-65 presents details, including the current condition, of OHRs owned by the TMA. The TMA
Infrastructure and Services Division is not interested at this stage in bringing the reservoirs back
into service as they are concerned that the time taken to fill the reservoirs would either increase
the total pumping time or reduce the time that water is distributed to the consumers. Since water
is already pumped into the system at high pressure, consumers are generally able to fill their
above ground private storage tanks. However, bringing the reservoirs into service should provide
for a more efficient supply and they could, if required, be filled concurrently with pumping directly
into the network such that they fill during low demand and empty during peak demand.
275. The conditional survey for the OHR conducted during the study concluded that out of
eleven (11) reservoirs, nine (9) could be rehabilitated. Almost all the reservoirs require plastering,
fillers, finishing of structures, replacement of doors installed and replacement of delivery and
rising mains. The connection of OHR with the distribution system and tube wells needs to be
reinstated by construction of new connecting pipelines.
276. In any case if a 24/7 supply is to be provided using District Metering Areas (DMAs), it will
be necessary to bring the reservoirs back into service. Furthermore, bringing the reservoirs back
into service will provide security against power supply load shedding, which is currently
prevalent. The location of the storage reservoirs is shown in Figures VI-63 and VI-65.
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Chapter VI
Table VI-65: Overhead Reservoirs-TMA Sialkot
No
1
2
3
4
5
6
Overhead reservoir
Water works
Water works
Model town
Shahab Road
Naikapura
Rangpura
Year
of
Construction
1971
1967
1967
1967
1967
1967
Capacity
(gallons)
25000
50000
50000
30000
30000
50000
Type
RCC
Brick
Brick
Brick
Brick
Brick
Condition
Needs repair
Needs repair
Needs repair
Needs repair
Needs repair
Needs repair
7
Mahallah Muhammad
Pura
1967
30000
Brick
Needs repair
RCC
RCC
Cannot
be
repaired
Need repair
Need repair
8
9
10
Tiba tank
Mahallah Fateh garh
Mahallah Ghous pura
1992
1992
25000
25000
11
Shahab pura tank
1964
30000
Cannot
repaired
be
Distribution Network
277. The water distribution system covers about 75% of the current municipal boundary (16
Urban Councils). It does not extend into the peripheral areas for which no information is currently
available, although it is expected that many households in those area use shallow wells and
some receive water from tube wells constructed by PHED. The network comprises about 357
km of pipeline including cast iron, asbestos cement, Mild Steel (MS) and PVC pipes. There are
approximately 87,000 land parcels within the current city boundary out of which around 14,000
land parcels are located in the area where TMA does not have coverage for water supply.
Overall 73,000 land parcels are within the coverage of the water supply system although there
are only 41,565 registered connections reflecting a high number of illegal connections. Moreover,
during the past few years, the number of registered connections has not been increasing very
rapidly. The quality of the service in the coverage area can be gauged from the fact that
underground storage has not been constructed at most of the households as the pressurized
supply ensures recharging of the overhead reservoirs constructed by households without
requiring a household pumping system. This indicates a high quality of service but the high
pressure in the distribution network contributes to leakages and water losses as leakage is
directly proportional to pressure. The high pressure also damages the pipe network, which is
already old, as a major portion of the network has outlived its design life. Most connections are
galvanized iron (GI) as are some of the smaller diameter pipelines. Most of the service area is
served through a single network, although there are four smaller separate zones covering Model
Town, Industrial Estate, Kashmir Road and on either side of Roras Road. The Cantonment area
is believed to be decentralized with two separate zones in the east and north of the Cantonment.
The distribution network, tube wells and OHR are shown in Figure VI-65 while details of pipe
network are also presented in Table VI-66.
Page 295
Chapter VI
Figure VI-65: Water Distribution Network, Tube Wells and Overhead Reservoirs
Page 296
Chapter VI
Table VI-66: Details of Pipe Network-Sialkot City
Pipe
Diameter
(ins)
Length (m)
16
77
12
595
10
550
9
770
8
1338
3014
279
2476
7107
6
5505
60860
14184
475
81024
4
547
2831
2462
3
41809
195871
20159
Cast
Iron
Asbestos
Cement
PVC
Mild
Steel
51191
Total
77
2916
3511
159
85
794
770
5840
2
Total
Galvanized
Iron
265492
37243
3036
30
257869
716
716
746
357708
278. Currently it is understood that good pressures are achieved at household connections
throughout the system. However, many of the pipelines are reported to be old and in poor
condition so leakage and unaccounted for water is expected to be high. In consultation with the
TMA staff, a detailed assessment of the pipe network was conducted and rusted/damaged pipes
requiring replacement were identified. In addition, detailed information regarding the diameter,
material and location of the pipe network was collected. The information was used to plot GIS
maps. The assessment was based on the information and knowledge staff had based on their
routine operation and maintenance activities. Physical verification and assessment regarding the
selected attributes was done where information was not available with the staff or in the records.
279. Overall 52% of the network was identified as rusted and damaged requiring replacement.
The total length of the network requiring replacement is 186km. Major network expansion in the
city was undertaken during 1914, 1937, 1963 and onwards. No major project targeting network
improvement in terms of replacement of rusted or damaged pipes has been initiated by the city
government since the installation of the network which is the main reason for the poor condition
of a major portion of the network. Moreover, the TMA does not have any mechanism for leak
detection or identification and replacement of damaged pipes.
280. The TMA has been extending coverage to unserved areas. However, in some areas the
services have been extended by means of an under capacity network and connected to the
existing network which affects the pressure and quality of service in the existing as well as the
extended area. The pipe network in such areas needs to be upgraded (to 6inch diameter
pipelines). The under capacity network portion has been identified in consultation with TMA for
upgradation purposes. Table VI-67presents the condition of the pipe network, Table VI-68 the
details of rusted/damaged pipes and Figure VI-69 shows the location and details of the rusted
and damaged pipes (Category C&D).
Page 297
Chapter VI
Table VI-67: Condition of Water Supply Pipe Network
Diameter
(ins)
Condition and Length of Pipeline (m)
A
B
C
D
F
16
0
0
349
0
0
12
0
0
3511
0
0
10
220
24
433
295
0
9
0
0
728
42
0
8
1013
1740
1733
2735
0
6
13974
16989
36008
14394
0
4
2462
1466
1515
547
0
3
18784
28935
118273
92509
0
2
513
203
0
0
0
Attributes-Condition:
A = Excellent: No noticeable defects. Some aging or wear may be visible.
B = Good: Only minor deterioration or defects are evident.
C = Fair: Some deterioration or defects are evident, but function is not significantly affected.
D = Poor: Serious deterioration in at least some portion of the structure. Function is inadequate.
F = Failed: No longer functional. General failure or complete failure of a major structural component.
Table VI-68: Details of Rusted/Damaged Pipes
Diameter
(inches)
Length of Damaged/Rusted Pipelines (m)
10
Asbestos
Cement
0
Cast
Iron
117
8
1874
6
Mild Steel
PVC
Total
0
0
117
1338
1086
0
4298
39414
5504
433
0
45351
4
1774
546
0
0
2320
3
146207
40305
0
0
186512
Total
189269
47810
1519
0
238598
Page 298
Chapter VI
Figure VI-69: Location and Details of Rusted/Damaged Pipe
Page 299
Chapter VI
281. Unfortunately, unaccounted for water (UFW) cannot be measured at present due to the
lack of bulk meters at the tube wells and household meters. There is also believed to be
significant wastage of water at uncontrolled private storage tanks and household taps. Given that
water is supplied at a fixed rate, there is little incentive for households to save water. The fixed
rate water tariff has recently been increased, although it is still low to achieve cost recovery for
the water supply services. Currently the TMA estimates that less than 40% of the O&M costs are
recovered. Since a high proportion of the O&M costs relate to power costs, significant improved
performance could be made if pumping costs can be reduced.
282. There would appear to be considerable scope for savings on power costs. The energy
audit conducted under the PCIIP PPTA projected savings in the order of 30%. Further, the
system appears to be operated in an inefficient manner with a probable high UFW, significant
wastage at the household level and direct, uncontrolled pumping into the distribution system.
There is considerable potential for significant reduction in the quantity of water pumped which
would also result in power savings.
R.
Sewerage and Drainage
Collection System
283. Sialkot is traversed by two water channels or nullahs, the Bhaid and Aik Nullahs. The
Bhaid Nullah drains the northern part of the municipal area and part of the Cantonment while the
Aik Nullah drains the southern part of the municipal area. The Bhaid Nullah has a relatively small
catchment area but receives wastewater from many industries and is highly polluted. It also has
limited carrying capacity, which is exacerbated by many encroachments along its banks. The Aik
Nullah originates in Jannu Hills, is 66 km in length, has a much larger catchment but generally
presents less of a threat to the town than does the Bhaid Nullah.
284. Both wastewater and storm water drainage are collected by a combination of sewers and
open drains which eventually discharge into either the Aik or Bhaid Nullah or a tributary of the
Bhaid Nullah, the Ganda Nullah, adjacent to the city core area. Water from all nullahs flowing
through the town eventually drain into the Chenab River. Figure VI-70 presents the overview of
sewerage and drainage disposal system.
Figure VI-70: Overview of Wastewater Disposal System
ve
r
Palhu Nala
ab
Ri
Bhaid Nala
Ch
en
Sodhra
Sambrial
Sialkot
Aik Nala
Khanki
Wazirabad
Source: Sialkot Water Supply, Sewerage Drainage Strategy and Action Pan, Draft Final, December 2010,
GHK Consulting Ltd.
Page 300
Chapter VI
285. Sialkot has a relatively well-developed sewerage system as shown in Figure VI-71.
There are essentially six separate catchment areas that comprise the sewerage system as
shown in Figure VI-72. Sewage from these catchment areas is collected by the sewerage
network and conveyed to disposal stations from where raw sewage is discharged to the Aik
Nullah, the Bhaid Nullah or the Ganda Nullah. Due to the dispersed nature of industries in
Sialkot, the sewage received at the disposal stations contains a mix of domestic and industrial
wastewater. During storms, a considerable quantity of storm water also finds its way into the
sewerage system either through interconnections or through the practice of lifting manholes
during flood events to alleviate flooding.
286. The total length of the sewerage network in Sialkot city is 178km while overall coverage
is approximately 49% with the remaining part of the city served through covered or open drains.
In consultation with TMA staff, a detailed assessment of the sewerage network was conducted
and the portion of the network, which is choked and not operational, was identified. Details of the
damaged/choked sewers are shown in Figure VI-73. In addition, detailed information regarding
the diameter, material and location of the sewerage network was collected. The information was
used to plot GIS maps. The assessment was based on the information and knowledge staff had
based on their routine operation and maintenance activities. Physical verification and
assessment regarding the selected attributes was done where information was not available with
the staff or in the records. The conditional survey concluded overall 15km of sewer falling in
category F requiring replacement while around 14km sewer is choked and can be unblocked
keeping in view the condition of the sewers. Table VI-74 presents the condition of the sewerage
network. Sewers falling into category F are in poor condition and need to be replaced while those
falling in category D are choked and need to be unblocked.
Page 301
Chapter VI
Figure VI-71: Sewerage Network
Page 302
Chapter VI
Figure VI-72: Catchment Areas
Page 303
Chapter VI
Figure VI-73: Drainage / Chocked Sewers
Page 304
Chapter VI
Table VI-74: Condition of the Sewerage Network
Diameter
(Inches)
Condition and Length of Pipeline (m)
A
B
C
D
60
54
2837
48
902
42
795
271
36
1005
5463
572
18
12
671
9
Total
3945
Total
1740
1740
1818
14500
2289
1387
1066
6563
16190
1711
178
1889
3142
104
700
4518
1465
660
71327
2979
910
837
76724
26113
5692
166
2689
34660
110618
11672
14941
14525
155701
30
24
9845
F
526
2633
2125
Attributes-Condition:
A = Excellent: No noticeable defects. Some aging or wear may be visible.
B = Good: Only minor deterioration or defects are evident.
C = Fair: Some deterioration or defects are evident, but function is not significantly affected.
D = Poor: Serious deterioration in at least some portion of the structure. Function is inadequate.
F = Failed: No longer functional. General failure or complete failure of a major structural component
287.
The sewerage catchment areas are as follows:
(i)
Disposal to Bhaik Nullah/Ganda Nullah
288. Iqbal Town/Dara Arayan 1 and 2: This is the largest catchment and receives sewage
from the central and western parts of town to where it is discharged the Bhaid Nullah at Iqbal
Town Disposal Station. Dara Arayan 1 and 2 Pumping Stations were originally designed to pump
sewage into a 54-inch diameter sewer leading to Iqbal Town Disposal Station (or the Main
Pumping Station). However, the 54-inch sewer has been blocked for some time and flow from
the Dara Arayan Pumping Stations is now discharged into the Ganda Nullah and eventually into
Bhaid Nullah at a location upstream of the Iqbal Town Disposal Station. In addition, other large
sewers in this catchment area are blocked which results in surcharging into the drainage system
which eventually drains into Bhaid Nullah. The Main Pumping Station at Iqbal Town is in poor
condition and sewage either surcharges upstream or overflows into an open drain adjacent to the
pumping station. The TMA is in the process of replacing part of the blocked 54-inch sewer, which
should reduce the surcharging to some extent.
289. Model Town: A sewerage system covering part of Model Town discharges to the Model
Town Disposal Station from where it is pumped to Ganda Nullah and then to Bhaid Nullah. The
Model Town Disposal Station is operational although in poor condition with two of the three
pumps working.
Page 305
Chapter VI
290. Jail Road: The area north of the railway line along Kachery Road discharges directly the
Bhaid Nullah, except during the rainy season when the nullah level is high and sewage is
pumped by the Jail Road Disposal Station into the nullah. Two pumps are operational at this
Disposal Station.
291. Commissioner Road: The area adjacent to Commissioner Road in the northwest of the
town drains into Bhaid Nullah via open drains in the area. Sewage was originally pumped into the
Bhaid Nullah by means of the Commissioner Road Disposal Station, but this facility is now not
functional. Most of the sewage coming to this disposal station has been diverted for direct
disposal into drains and nullahs. During the rainy season when the level of Bhaid Nullah
increases, sewage cannot discharge into the nullah.
292. Khan Mahal Road: This is a small pumping station that pumps sewage from a small
system in Ahmed Pura to the east of the town into the Bhaid Nullah. It is currently operational
(ii)
Disposal to Aik Nullah
293. Haji Pura: Sewage from collection systems in Fateh Garh, Shahab Pura and Haji Pura
Union Councils drain directly to the Aik Nullah adjacent to the Haji Pura Disposal Station. This
Disposal Station is designed to operate only during the rainy season when the level of the Aik
nullah is such that direct discharge is not possible. However, it is reported to have operated on
only a few occasions since the sewerage collection system was installed as part of a World Bank
project in the 1990’s. The Disposal Station is reported to be operational and appears to be in
good condition.
294. Rangpura: Sewage from part of Pura Heera to the west of the town is drained to
Rangpura Disposal Station from where it discharges directly to the Aik Nullah except in the rainy
season when it is pumped when the level of the Aik Nullah dictates.
295. Pasrur Road: A sewerage collection system has been developed south of the town and
the Aik Nullah in the Union Councils of Naika Pura and Habib Pura as well as covering part of
Doburji Araian which is outside the current TMA boundary. This system drains to Aik Nullah at
Chowk Naika Pura Pull Ali at the northern extent of Pasrur Road. No pumping station is provided
at this location on the Aik Nullah and it is assumed that surcharging may occur when the Aik
Nullah reaches a certain level during the rainy season.
296. There are several other locations along the Aik Nullah where sewage is conveyed directly
to the Nullah. These include some areas in Naika Pura upstream of the Pasrur Road discharge
point.
297. Table VI-75 presents the details of the pumping stations installed, installed capacity,
quantity of water being discharged and type of pumping facility. Apart from pumping stations,
some drains discharge sewage directly into the two nullahs through gravity.
Page 306
Chapter VI
Table VI-75: Details of Sewage Disposal Stations
S
No
Disposal
points or
disposal
works
Location
Installed pumping capacity
Pumping
or Gravity
Pump
No
Discharge
(Cusecs)
Pump
type
Operational
status
Working
hours/day
Water quantity
discharged/day
(mgd)
1
2.5
Sullage
Functional
6
0.342
Total water
quantity
discharged
(mgd)
Ultimate
disposal
0.342
Through
gravity
0.8208
Nil
1.026
Through
gravity
2.1888
Through
gravity
Nil
Through
gravity
Nil
Through
2
1
2
3
Dara Araiyan
Abbot Road
Main Disposal
Dara Araiyan
Model town
3
Both
4
1
4
Sullage
Functional
9
2
4
Sullage
Functional
Standby
0.8208
3
Pumping
Pumping
4
1
3
Sullage
Functional
9
0.6156
2
2
Sullage
Under repair
9
0.4104
3
5
Sullage
Under repair
Standby
4
1
4
Sullage
Functional
12
1.944
2
4
Sullage
Functional
12
1.944
3
4
Iqbal town
Pumping
4
1
5
Sullage
2
5
3
5
5
Chan Tarakh
Anwar Chowk
Daska Road
Both
4
6
Rung Pura
Both
1
7
Seasonal
Sullage
Functional
Under
Repair
Sullage
Under repair
Seasonal
Sullage
Functional
Seasonal
Seasonal
Page 307
S
No
Disposal
points or
disposal
works
Location
Bann
Chapter VI
Installed pumping capacity
Pumping
or Gravity
Pump
No
Discharge
(Cusecs)
Pump
type
Operational
status
Working
hours/day
2
4
Sullage
Functional
Seasonal
1
3
Sullage
Functional
Seasonal
2
2
Sullage
Functional
Seasonal
Water quantity
discharged/day
(mgd)
Total water
quantity
discharged
(mgd)
Ultimate
disposal
gravity
3
4
3
7
Jail Road
Both
4
1
1
Sullage
Functional
8
Nil
Through
gravity
0.1824
Nil
0.1824
2
8
Khan Mahel
Road
3
Pumping
4
Page 308
Chapter VI
Treatment and Disposal
298. As discussed above, wastewater is discharged directly to the Aik and Bhaik Nullahs
either by gravity or pumping at disposal stations. No treatment aside from some rudimentary
screening at some of the pump stations is undertaken, but since most of the pump stations do
not operate effectively even screening is generally not implemented. The outcome can be clearly
observed – the Bhaid Nullah, which has a significantly lower flow than the Aik Nullah, is grossly
polluted and is probably effectively a ‘dead ‘water body and completely anaerobic. The Aik Nullah
is also in poor condition, but with a much larger base flow and fall, is able to demonstrate some
kind of recovery downstream through a degree of aeration.
299. Sialkot is a major industrial center with many tanneries, leather garment and sports
goods producing units, rice husking mills and flour mills in the city all of which produce significant
quantities of highly polluted wastewater. Moreover, these industries tend to be scattered
throughout the city resulting in industrial effluent being discharged into most of the city drains and
sewers. There has been an attempt by the city through the Chamber of Commerce to develop an
industrial zone to concentrate these industries in one area but this has not been successful to
date. It is understood that most of these industries do not pre-treat the wastewater, but directly
discharge untreated waste to sewers, drains or nullahs.
300. Municipal wastewater treatment plants are designed to treat wastewater from domestic
sources with a BOD in the order of 200-250 mg/L. Industrial wastewater with BODs far in excess
of that of domestic wastewater need to be either pre-treated to domestic standard before being
discharged to the sewer or diverted from the sewerage system. Alternatively, a regime can be
established whereby the strength of industrial wastes is monitored and a fee charged for
wastewater in excess of a specified standard. Without these practices in place, the cost of
providing treatment facilities and treating wastewater with strengths considerably higher than that
of domestic wastewater would be prohibitive. If the industrial wastes in Sialkot are being currently
discharged into sewers and drains without pre-treatment prior to discharge to the nullahs, it will
not be feasible to install municipal treatment facilities until such time that a system is in place
either to require industries to pre-treat their wastewater or industrial effluent discharges are
diverted away from the sewer and urban drainage system.
Storm water Drainage System
301. In addition to the piped sewerage system discussed above, a network of open and
covered drains discharging to the Aik and Bhaid Nullahs at a number of locations covers much of
the current municipal area. These drains are meant to convey storm water drainage, but in fact
convey both storm water drainage and wastewater. Wastewater enters the drains resulting from
surcharging and overflows from the sewerage system as well as from direct connections from
some households. Storm water is discharged to the nullahs at both the wastewater disposal
stations and at separate storm water disposal stations.
302.
The storm water drainage network is shown in Figure VI-76.
Page 309
Chapter VI
Figure VI-76: Drainage Network-Sialkot
Page 310
Chapter VI
Flood Assessment and Risk
303. The Urban Unit has recently prepared a Flood Plan for Sialkot District. This was in
response to unprecedented flooding which occurred in the District in September 2014. The
principal water bodies flowing through Sialkot City are the Bhaid Nullah, the Aik Nullah and
the Pulkhu Nullah. Channelization works at a cost of Rs 45 million have recently been
carried out on the Aik Nullah to increase its capacity such that while flood flows in the Aik
Nullah may still result in flooding in some parts of the District, it should not threaten Sialkot
City. Similarly, flooding in the Pulkhu Nullah is not a risk to Sialkot City.
304. Figure VI-77 below shows the extent of flood risk within the current TMA boundaries
indicating that the highest risk is at the western extent of the city.
Figure VI-77: Flood Risk Map
305. The main source of flooding in Sialkot City is the Bhaid Nullah. During the high floods of
2014, it caused devastation in adjacent areas as it became unable to accommodate floodwater
due to the narrow bed and deposition of silt. A comprehensive scheme to cope with flooding of
Bhaid Nullah with a cost of Rs 173 million to provide for desilting and removal of encroachments
is currently in progress. The scheme is being executed by PHED in which 3,500 ft of the nullah
will be desilted and the width increased from the present 12 ft to a maximum of 25-49 ft.
Flooding of the Bhaid Nullah presents a health hazard in that during these periods raw sewage
will be mixing with storm water on the streets.
Page 311
306.
Chapter VI
Flooding in Sialkot has several causes:
306.1. The nullahs have insufficient capacity to cater for storm flows and the water level
rises such that it overflows the banks;
o
The level in the nullahs becomes higher than the level in the drains discharging to the
nullahs resulting in backflow in the drains. Under these circumstances the TMA close
penstocks where the drain discharges to the nullah causing the drains to overflow in
the city. Some of the storm water disposal stations are equipped with pumps which
can be brought into service under these conditions to pump water from the drains into
the nullahs. However, in general these pumps are not in good condition and lack the
capacity to discharge the floodwaters to the nullahs.
o
Sewers are blocked and surcharge upstream resulting in sewage and storm water
being discharged from the sewers into the streets. This is exacerbated during high
rainfall when additional storm water enters the sewerage system and manholes are
opened by the operations staff to help cope with the floods.
o
The local drainage system has inadequate capacity to handle the flood flows
resulting in local flooding which may take some hours to dissipate.
o
Dumping of solid waste in the open drains and in the nullahs severely reduces their
capacity and results in additional flooding.
307. The issue related to the capacity of the nullahs is being addressed through the works
being undertaken on the Aik and Bhaid Nullahs by the Dep’t of Irrigation and PHED as discussed
above. It is not clear from the available reports whether these works will increase the capacity of
the nullahs to the extent that the water level will not rise above the inlet drain levels during
periods of high rainfall.
308. Improving the sewerage system in the city through unblocking sewers and increasing
capacity where necessary to prevent surcharging of the sewers will prevent sewage being
discharged into the streets thereby addressing a serious health hazard. Improvement in solid
waste management, by preventing deposition of garbage in the nullahs will also improve their
capacity to handle flood flows.
S.
Operation and Maintenance of the Water Supply, Wastewater and
Drainage Systems
309. The TMA is responsible for the operation and maintenance of the water supply,
sewerage and drainage systems within the current Sialkot City urban boundaries. The
organogram of the Infrastructure and Services Division responsible for water supply operations is
shown on Figure VI-78.
Page 312
Chapter VI
Figure VI-78 - Organogram of Water Supply Unit-TMA Sialkot
TO I&S
ATO
Mechanical
Sub engineer
1(1)
Foreman
2 (2)
Storekeeper
1 (1)
Office clerk
1(1)
Assistant foreman
1 (1)
TW operators
108 (103)
Key man 17
(17)
Oilman
2 (2)
Plumbers
17 (14)
Chlorine mistri &
Quli
1(1)
Quli
28 (28)
Helper
1 (1)
310. There is a need for professional management of water supply and wastewater collection
and treatment systems in Sialkot. Efficiency is the key issue in the assessment of existing water
and wastewater institutions in Sialkot since it has been argued that private sector involvement
promotes efficiency. There are many reasons for current inefficiencies in the sector, but poor
governance is the root cause of the issues that beset the water supply sector, particularly in
service coverage, (especially among the poor), prevalence of water vendors, intermittent supply,
collection efficiency, water accountability, Non-Revenue Water (NRW) and the continued
pollution of water bodies in the city. Key causes and impact of poor governance are summarized
in the governance problem tree in Figure VI-79.
Page 313
Chapter VI
Figure VI-79 - Governance Problem Tree
IMPACTS
High NRW, low water
accountability, low
supply and service
coverage
Poor service delivery,
deteriorating environment
and quality of life, low
consumer awareness and
expectation
Low financial
accountability
Low tariffs
POOR GOVERNANCE
CORE PROBLEM
CAUSES
Poor Infrastructure
construction,
maintenance and
operations
Strategic Management
Constraints
Capacity and Rigid HR
Policies and Procedure
Constraints
Lack of strategic direction –
focus is in on day to day
business
Lack of technical capacity in
existing staff
Disconnect between planning,
construction and operations
Standard Organizational
Structure - no provision for
sector specific skill and man
power
Lack of information system
for effective planning and
decision making
Week coordination between
policy maker and Service
provider
Weak accountability
mechanism and enforcement
Operations and Management
Lacks Priority
Insufficient / poor regulatory
control
No incentive for capacity
development – not linked to
career and performance
management
Diploma engineers prepare
and supervise scheme while
senior engineers restricted to
clerical tasks
Difficulty to recruit suitable
staff on standardised pay
scale and benefits
Weak Knowledge about
rules, regulation, codes and
current best practices
Political, Regulatory and
Autonomy constrains
Institutional Constraints
Political resistance to tariff
and user fee and little
political support for cost
recovery
Lack of specialized institution
for urban water and waste
sector
Week regulatory mechanism
– government is owner,
regulator, and operator
Pressure and interference in
development schemes and
budget preparation
Formal and informal control
over appointments,
promotions and transfers
Political involvement in
technical matters
Vested interest in status quo
Low tariff and revenue
collection, flat charging
system for services.
Week performance
management and
accountability mechanism
Weak sector policy and
performance targets
Outdated rules, regulation,
design and codes
Lack of planning culture
Lack of clear division of
responsibilities among various
service providers
Rent seeking behaviour/
culture to overlook design and
standards
311. One of the most important considerations in operation of water and wastewater
infrastructure is autonomy of the utility to manage its business efficiently and competently. Utility
services cannot always avoid political interference but there is a need to discourage elected and
senior officials becoming involved in daily operations to the extent that they control management,
replace staff on political grounds and control staffing. Under the current arrangements in Sialkot,
management of human resources is weak and there is lack of skilled staff, clear job descriptions
are non-existent and promotions are based on age, length of service and personal connections
and are generally not on merit. As a result, there are few incentives for staff to perform well.
Recruitment is also slow and regularly provincial government imposes bans on recruitment and
in most cases positions stay vacant for over a year.
312. The TMA have very limited qualified technical and engineering professionals and even
their skills largely go untapped in the climate of low autonomy, accountability transparency and
indifferent management. O&M is a poor relation to development in the absence of incentives and
low tariffs do not help. Operational staff can often collude with customers to create their own
incentives. Non-Revenue Water (NRW), intermittent water supply and low service coverage are
direct results of the lack of autonomy and accountability and are indications of poor governance.
Part of the governance problem lies in having a single entity as owner, regulator, and operator.
Self-regulation can work only in a highly disciplined society and these responsibilities are best
kept separate. If poor governance is the root of the problem and government is in control,
government can hardly be expected to reform itself. There are too many vested interests and the
people who stand to make a considerable benefit from those interests are too many and too
comfortable with the status quo.
Page 314
Chapter VI
313. Legislation is necessary but insufficient to correct these problems. Policy transparency is
fundamental and civil society must hold government accountable for implementing the policies.
The water and wastewater section of the TMA, on the other hand, needs autonomy,
accountability, incentives, and the ability to perform. Key contributors and impacts of improved
governance are summarized in Figure VI-80.
Figure VI-80- Governance Solution Tree
IMPACTS
Performance, Incentives
and Accountability
Private sector
participation and
investment
T.
Maintenance,
rehabilitation and recycling
Sustainability
Improved coverage and
supply
Competitive pay and benefits,
Open market recruitment,
Capacity development
Consumer education and
awareness
IMPROVED GOVERNANCE
CORE SOLUTION
CAUSES
Operation and
maintenance efficiency
Better environment
Improvement sanitation
Regulatory mechanism
and effective body
Transparent Policies and
Procedures
Tariffs and user fee for full
cost recovery and
improvement
Civil Society and
Consumer involvement
Services in Low Income Areas
Social Impacts of Water Supply and Sewerage in Sialkot
(i)
Water Supply
314. In the social surveys undertaken under the PFS, water supply emerged as the main issue
for the people living in the poor areas. The dwellers of the area are not satisfied with the
available water supply, such that in some areas they have disconnected the water supply due to
poor quality, due to the water supply having a bad smell ostensibly due to interconnection
between the water and sewerage systems. Most people use the water supply for washing
purposes and are fetching the water from the filter plants installed in the various parts of the city.
In some areas water is pumped from private wells installed by the households.
315. People are concerned that the poor quality of the water is causing diseases such as
hepatitis, diarrhea, worm infections, and malaria. Regarding the payment, they are paying on
average Rs.626 on quarterly basis. Table VI-81 indicates that water supply is available to 55% of
the sampled houses. Among the supplied households, 48% are satisfied while 52% are
dissatisfied in terms of poor quality.
Page 315
Chapter VI
Table VI-81: Access to Social Amenities in the Project Area
Social Amenities
Available
Satisfactory
Electricity
Water Supply
Sewerage/Drainage
Hospital
School
100%
55%
59%
78%
98%
65%
48%
33%
54%
71%
NonSatisfactory
35%
52%
67%
46%
29%
No Access
0
45%
41%
22%
2%
Mitigation Measures
 The local community will pay an additional Rs. 80 provided that potable water is made
available to them.

They also giving the assurance to facilitate the project team in the smooth functioning of
project activities.

In case of availability of funds, TMA intends to replace of water supply pipelines at
various sections and restore abandoned bores.

NGOs agreed to mobilize the community for their participation.

The Resettlement Expert will facilitate them to manage the Land Acquisition and
Resettlement (LAR) issues.
(ii)
Sewerage System
316. Sialkot is partly sewered and partly served by open and covered drains. The sewers are
in poor condition, either blocked or the underground pipes lack capacity to carry the generated
wastewater flow, resulting in overflows into the streets and some areas, especially Sakinder
Pura. In this area the female students (250 in number) can hardly reach to their Madrasa, namely
Kan-zul-Aman.
317. There are some areas where the sewerage system is not linked up with the main drain
and wastewater is flowing into the open private plots/places with the outcome that the
surrounding houses suffer from continuous foul odors due to wastewater ponding. The local
community considers the TMA to be responsible for the inefficient sewerage system. The field
survey (Table 5.9) shows that 59% of the households are connected with the drainage and
sewerage system. Among them, 33% are satisfied with the services while 67% are still looking
for the improvement of the sewerage and drainage system. People reported that on average they
are paying monthly Rs. 50 for the improvement of services on private basis, however, they are
ready to pay on average of Rs.60/- monthly if the system was to be improved.
Mitigation Measures:
 The local community is willing to pay Rs. 60/- monthly for an improved sewerage
system.

The community showed its willingness in participation throughout the project cycle.

The community will facilitate the project team in the problem identification.

TMA intends undertake the up-gradation of some problematic sections of the
sewerage system and provide the link to small drains with the main sewerage
system. Under the PCIIP, it will be done on priority basis.
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Chapter VI

The consultant will provide the support in addressing the LAR issues.

NGOs agreed to mobilize the community for their participation.
318. Rapid urbanization and population explosion have been responsible for the growth of
cities and towns, which eventually create the issue of land ownership rights for the Kachi
Abadies/Settlements. People have been living in these areas sine the 1960’s but are still waiting
for the land ownership rights, although the Kachi Abadi Act provides the proprietary right to the
dweller. In the project area, there are three formal Kachi Abadies and five informal Kachi Abadies
as shown in Table VI-82.
Table VI-82: Details of Poor Areas and Kachi Abadies
Sr.
No.
Population
Centre
No.
of
Household
No.
of
Populations
1
Pak Pura
200
2
Haji Pura Camp
150
1020
Formal Kachi Abadis
3
Marian
141
958
Formal Kachi Abadis
4
Pacca Garah
(Rajput Town)
375
2550
Informal Kachi Abadis
5
Baba Bahri
60
408
6
Gaun Shalla
250
1700
7
Sahray Maharaja
125
850
8
Deputy Bagh
23
156
Total
1324
9002
1360
Remarks
Formal Kachi Abadis
Source: TMA and Field Survey
Water Supply and Sewerage for Low Income Area
319. Overall four areas have been identified to be low-income area within the city boundary.
Figure VI-83 shows the location of low-income areas. The people residing in these areas have
small houses however the houses are pacca houses. Most of the people in these areas are
working on daily wages with limited income. The low income areas include:

Pacca Garha



Islam Pura
Minhas Pura
Muzzafar Pura
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Chapter VI
Figure VI-83: Poverty Areas in Sialkot City
Page 318
320.
Chapter VI
The overview of coverage of water supply services in low income areas is as below:
Pacca Garha
321. People do not have an access to a water supply and sewerage network. The
people are relying on self-catered water resources and dispose of their wastewater water
into open/covered drains.
Islam Pura
322. Approximately 10% of the people have an access to water supply services but a
sewerage network does not exist in this area. People are relying on self-catered water
resources and dispose of their wastewater water into open/covered drains.
Minhas Pura
323. People do not have access to water supply and sewerage services and are
relying on self-catered water resources and dispose of their wastewater water into
open/covered drains.
Muzaffar Pura
324. Approximately 70% of the people have access to water supply services but a
sewerage network does not exist in these areas. Wastewater generated is disposed of
into open drains or covered drains.
Investments
325. The investment plan includes cost for extension of water supply and sewerage services
in these areas. Water supply and sewerage network will be extended to these areas as part of a
medium term investment and are recommended to be prioritized as part of this medium term
investment plan.
U.
Sector Strategy - Water, Sanitation, Sewerage and Drainage
326. Poor sanitation and related water supply, both of which are impacted by the quality of
solid waste management, may be costing Sialkot as much as $30 million per year, and Sialkot in
the order of $15 million per year in lost economic activity. (see Chapter I and Chapter II) It is
obvious that the Water, Sanitation and Drainage component of the PICIIP is a major contribution
to developing Sialkot and Sialkot into the inclusive, safe, green, livable, resilient, sustainable and
competitive cities that they strive to be. To effectively achieve that contribution, Water, Sanitation
and Drainage must be approached within the over-arching guiding frameworks of the city’s
Integrated City Development Strategy (ICDS) and Climate Risk Vulnerability Assessment
(CRVA) as presented in Chapter IV and Chapter V of this Report. The three are mutually
supportive, as are the linkages between Water, Sanitation and Drainage and the other proposed
investment components of Solid Waste Management, Transport, and Institutional development.
Figure VI-84 illustrates these linkages. In summary, the ICDS establishes the urban form,
settlement patterns and land use patterns that will reduce sprawl and create a more compact city
supporting a more efficient and economical approach to the provision of water and sanitation
services, and promote effective drainage. The ICDS recognizes the need to address Water and
Sanitation from the people-oriented, community-based level and proposes Mahallah strategies
that support this. The ICDS proposes urban development that addresses CRVA climate change
responses in which Water, Sanitation and Drainage play critical roles by helping protect water
source quality, promote alternative sources such as rainwater harvesting and conservation to
replace dwindling traditional sources, and prevent flooding and related health impacts through
well-managed drainage systems. In connection with the Water, Sanitation and Drainage
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Chapter VI
component, ICDS addresses the severe problem of industrial effluent treatment by proposing
consolidated industrial parks where dedicated treatment plants can handle segregated industrial
wastes to the standards required to maintain environmental integrity. The Institutional component
integrates all of this through policy, regulation, plans at various levels, agency management and
municipal financial management.
Figure VI-84: Integrating Water, Sanitation and Drainage into the PICIIP
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Chapter VI
Key Issues with Current Infrastructure
V.
Sialkot Application to CDIA109
Water Supply
327. While the water supply system is considered to be generally good by Pakistan standards,
the City is concerned regarding the lowering of the water table, the inefficiency of the tube well
pumps, the probable high level of unaccounted for water resulting from the old and leaky
distribution system and the water quality being delivered to consumers. The City would like to
transition supply to a 24/7 water supply to improve services, improve public health, reduce water
consumption and conserve water resources, reduce operating costs and improve revenue
through increased public satisfaction in the water supply system. The expected outputs of the
PFS are:
 Identify investments in network strengthening and replacing faulty household
connections, pumps and motors to energy efficient system and new meters is the
main infrastructure component.
 Investments in rehabilitation and construction of new overhead reservoirs
 Recommendations for organizational management improvements to include training
for staff, hydraulic modeling, leak detection equipment, air compressors and jack
hammers, pipe welding sets, mobile generators, portable flow meters, cars, crew
cabs, tankers and trucks.
 Computerized maintenance management system to establish a dynamic asset
inventory.
 Preliminary viability and design of surface water usage for sustainability of water
sources.
328. The major concern of the City expressed in their application to CDIA is the level of
environmental pollution, the need for an efficient sewerage and drainage system and
contamination of the ground water providing water supply for the city.
329. Pollution from domestic, hospital and industrial waste is now at such dangerous levels,
that almost all of the water borne diseases can be traced back to the poor sanitation conditions,
contaminated water supply, and waste disposal practices in the city. The city is unable to cope
with the demands placed on its resources, nor offer suitable solutions and institutional
arrangements. The long-term aim of the city is to try and reverse the environmental damage that
has been done, and continues to this day.
330. The city anticipates that the CDIA assistance will identify new technology, practical and
cost effective solutions to the problems of managing water and wastewater, delivering potable
water and improved sewerage and drainage systems for a more environmentally friendly city.
The city also expects that the improvement in the services will benefit the city poor who are
getting low quality services and are more vulnerable to drainage ponding in the monsoon period.
331. The expected outputs from the PFS are:


109
Investments in sewerage and drainage network strengthening, rehabilitating and
replacing faulty sewerage systems, outdated pumps and motors to energy efficient
system.
Rehabilitating and construction of system for efficient disposal of rainwater.
CDIA Application and Assessment Form
Page 321



W.
Chapter VI
Recommendations for management improvements include training for staff, sewer
cleaning equipment and mobile generators.
Recommendations for automated maintenance management system.
Typology of potential service contracts for O & M of disposal stations.
Outcomes from Discussions, Field Visits and Analysis
Water Supply
332. In discussions with the TMA management, water supply was ranked as a priority below
wastewater and solid waste. Nevertheless, there are interventions required to improve delivery of
water supplies.
333. The major issue in the water supply system is one of efficiency. Water is delivered to
households with sufficient pressure but through inefficient pumping and water distribution
arrangements. It is likely that a large quantity of water is being wasted through losses in the
distribution system and wastage of water at the household level. There is high potential to
significantly reduce the quantity of water being pumped from the aquifer.
334. The energy audit conducted on the tube wells in Sialkot in 2010 demonstrated that the
discharge capacity of the tube wells was significantly below the rated capacity due to the
deterioration of the pumping equipment and the lowering water table. This study needs to be
updated to establish whether the water table is continuing to fall and the extent to which the
pumps now need to be modified. While the pumps can be modified to address the lower water
table, a longer term solution is required to address this situation such as control of the
construction of private wells, artificial recharge or demand management through pricing.
335. Currently the tube wells do not have pressure gauges or flow meters. This makes it
difficult to operate the tube wells efficiently and there is no way to measure the performance of
the tube wells or establish how much water is being lost in the network. While chlorination
facilities are in place at the tube well pumping stations, it is not clear whether the water is being
regularly chlorinated with the correct dosage.
336. The storage reservoirs remain out of service and the TMA operational staff appear
unwilling to bring them back into service since they believe this will involve additional pumping
and currently water is being delivered to households with satisfactory pressure. However, the
reservoirs are required to be in service if 24/7 water supplies are to be provided, to improve
efficiency of supply and to safeguard against disruptions to the power supply.
337. The ultimate aim should be to provide a 24/7 water supply. This is best done in stages
through developing District Metering Areas (DMAs) and working progressively to reduce leakage.
The Free Town Area (UC/42) was suggested as the most appropriate area to initially develop a
DMA.
338. Water tariffs have recently been revised but continue to be low and far below what is
required to maintain an effective operation and maintenance regime and to achieve cost recovery
for the water supply operations.
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Chapter VI
339. During discussions with the TMA, improvement in the sewerage and drainage systems
was identified as the key priority for infrastructure improvements in the city. Issues requiring
further analysis are:
340. Currently there are both substantial sewerage and storm water drainage systems
covering a large proportion of the existing municipal boundary. However, while ideally these
systems should operate separately, in fact each presently conveys both sewage and storm
water. It is understood that there are many blockages within the sewerage system resulting in
surcharged sewers and overflows from sewers into the drains. Surcharging also results in
damage to the sewers with sewer frequent sewer collapses.
341. The long-term objective should be to provide for separation of sewage and storm water
and the collection networks should continue to be designed as separate systems. By improving
the sewerage network such that sufficient capacity is provided and through rehabilitation of the
pumping stations, surcharging of the sewers should be eliminated thereby reducing the overflows
into the storm water drainage system. However, eliminating entry of storm water into the
sewerage system and vice versa at the household and street level will take time and will require
considerable monitoring and regulation by the TMA. This will not be achieved in the short term.
While the sewerage network should continue to be designed as a separate system, overflows to
the nullahs may need to be provided at specific locations and upstream of the treatment facilities
to divert flows greater than 2-3 times Average Dry Weather Flow.
342. Flooding of parts of the city during monsoon rains is a public health risk, a potential
source of damage to property and an inconvenience. The first step to addressing this is
improvement of the sewerage network thereby reducing surcharging of the sewers and overflow
into the city open drains. A second step would be to ensure that solid waste is not dumped into
the nullahs resulting in reduced carrying capacity. It is not clear at this stage whether flooding is
also caused by under capacity storm water drains or whether the nullahs lack carrying capacity
during flood periods. This needs to be investigated, but is a third level intervention after
improvement the sewerage and solid waste systems.
343. Contamination of the water supply system with sewage was cited by the TMA as a
serious issue. This is reportedly caused by the proximity of water supply and sewerage pipes
possibly laid in a common trench as well as through the poor condition of the pipes. Replacement
of the older, corroded pipes in the network and providing appropriate separation of the pipes
should reduce this problem. However, ultimately it is necessary to provide a 24-hour supply and
keep the water mains pressurized to prevent contaminated water entering the water mains.
344. Discharge of raw sewage into the canals and on land is unacceptable. A strategy to treat
this sewage prior to discharge in accordance with the current effluent standards must be
developed with some urgency.
345. Sialkot is highly industrialized with numerous highly polluting industries scattered around
the city discharging wastewater into drains, sewers and the nullahs. Provision of municipal
wastewater treatment plants will only be feasible provided that the industrial wastewater is either
separated from the domestic wastewater or is pre-treated to domestic standard prior to
discharging to the sewerage system.
346. No sewerage tariffs are applied in Sialkot and this needs to be addressed in order to
improve cost recovery and enable additional funds to be allocated to operation and maintenance
of the sewerage system.
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X.
Chapter VI
SWOT Analysis and Problem Tree for Water Supply, Sewerage and
Drainage
347. Based on discussions with local officials and an assessment of the current status of
water supply, sanitation and drainage facilities, a SWOT analysis for water supply, sewerage and
drainage infrastructure was undertaken for Sialkot and is shown in Table VI-85.
Table VI-85 – SWOT Analysis for Water Supply, Wastewater and Drainage Infrastructure in
Sialkot
Strengths
Good water supply and
sewerage networks with high
area coverage within pre-2001
city boundaries.
Current water supply being
provided to households with
good pressures, albeit in an
inefficient manner.
Weaknesses
Infrastructure old, not well maintained and
under capacity.
Significant blockages in sewerage system
resulting in surcharging and flooding during
monsoon period.
Structure in place for charging
for water supply and willingness
of TMA to increase charges to
improve cost recovery.
Low water supply tariffs cannot cover operation
and maintenance. No tariff in place for
sewerage
Raw sewage being discharged to water piping
system/bodies and land resulting in pollution
and health hazard.
Good awareness of city
administration of the
infrastructure issues facing the
city.
No control over discharge of effluent from
industries to water bodies or sewers resulting in
pollution and increasing cost of treating
municipal wastewater.
Although city is relatively flat,
sewers and drains can generally
gravitate to water bodies or
potential treatment plant sites.
Water supply system is operating inefficiently
with likely severe water losses and wastage of
water at household level.
Lack of training and development of TMA
technical staff.
Absence of knowledge and information about
valves and network with no mechanism to
monitor and control pressure in distribution
network has been a threat and may have
resulted in number of leakages and breakages
which are not visible from the ground.
Opportunities
Good quality water available
from aquifer in sufficient
quantities.
Some government land may be
available outside city boundaries
Weak monitoring system-The discharge of tube
wells cannot be monitored due to absence of
discharge meter this limiting information on
efficiency of tube wells.
Threats
Substantial development in peri-urban areas
outside city boundary and water
supply/sewerage service area creating high
demand for water supply and sanitation
facilities.
Over abstraction of water resulting in lowering
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Chapter VI
for location of sewage treatment
plants.
of water table, thereby increasing pumping
costs and impacting on sustainability of supply.
Active Chamber of Commerce
which may provide opportunity to
address industrial pollution.
City administration attempting to
develop an industrial estate that
will concentrate industries in one
area.
.
Many high pollution industries such as
tanneries scattered throughout city discharging
wastewater into sewers, drains and nullahs
resulting in highly polluted water bodies.
.
348.
This leads to the problem tree as shown in Figure VI-86.
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Chapter VI
Figure VI-86: Problem Tree-Sialkot Water, Sewerage and Drainage
IMPACTS
CORE
PROBLEM
CAUSES
Decline in service quality
standards and revenue
collection
Low coverage, poverty,
deteriorating quality of life, poor
environmental and health
conditions
Wastage and inefficient use of
available resources
Absence of integrated urban
development approach, unplanned city
expansion and growth
Poor Urban Water, Wastewater and Drainage Infrastructure and
Service Delivery
Institutional capacity and
regulation constraint
Resource Constraint
Absence of service delivery
standards
Inadequate and insufficient
human and financial
resources
Absence of performance based
incentives
Inadequate investments in
infrastructure
Demographic and Social
Issues
High rate of rural to urban
migration
Population growth requiring
rapid investments in sector
Urban Planning Constraints
Lack of urban development plans and
master plans
Political driven development
Political interference
Low investments on
Local culture and norms
Lack of coordination among
departments
Poor enforcement of regulation
and policies
Lack of training plan and
resources
Security constrains
Lack of updated and validated data
Outdated rules and regulation
Absence of water regulator
and accountability mechanism
Absence of advanced tools
and machinery
city population to double in
next 20 years
Insufficient regulatory
control over municipal
growth
Overage infrastructure
Page 326
Y.
Chapter VI
Roadmap - Water, Sanitation, Sewerage and Drainage
Infrastructure Development Options
349. The Medium Term Infrastructure Investment Plan (MTIIP) for water supply, sewerage
and drainage in Sialkot was presented in the draft Interim Report and subsequently discussed
with the Provincial Government through the Urban Unit and the Sialkot TMA. The MTIIP was
formulated by consideration of a number of development options in each of the sectors to
address infrastructure deficiencies. The appropriate options for inclusion in the Plan were
selected as part of the consultation process with the stakeholders. Medium term and long term
development programs were included in the MTIIP, with the medium term programs being further
subjected to pre-feasibility analysis as presented in Chapter 8 of this report.
Strategic Approach for MTIIP
(i)
Water Supply
350. The primary objective in investment in the water supply is to improve the efficiency and
level of service such that potable water will be supplied to households on a 24/7 basis. Although
the current groundwater resources are more than adequate to supply sufficient water to
consumers, this is not occurring primarily due to the inefficiency of supply. The quality of water
delivered at the household level is also unreliable. Inefficiency results from the low efficiency of
many of the tube well pumps, the practice of pumping directly into the distribution network
without utilizing the overhead storage reservoirs, the likely high losses within the distribution
network and the wastage of water at the household level. Water quality is impacted upon by the
pollution of the aquifers resulting from the highly polluted nature of the water bodies in Sialkot,
the poor condition of the water supply and sewerage pipelines and the potential pollution at the
household level from household storage arrangements.
351. Short-term interventions will therefore focus on increasing the inefficiency and reliability
of supply. The energy audit of the tube well installations conducted in 2010 identified a range of
options to increase the efficiency of supply. Some of the recommendations from this energy audit
have been implemented by the TMA, but the short-term interventions should complete this
process. Chlorination facilities must be provided at all tube well installations to ensure that water
pumped into the distribution system will retain chlorine residuals throughout the system. Old and
rusted pipes need to be replaced to reduce water losses, but also to prevent cross connection
between the water supply and the sewerage systems. Moreover, the under capacity network
needs to be upgraded to ensure the water supply to those users at the extreme ends of the
network. Maintaining 24-hour supply and pressurized pipelines will also improve water quality in
the distribution system.
352. Commencement of a program to reduce water losses in the distribution system will also
be an important short-term initiative. This will require identifying District Metering Area (DMA)
zones within the city that can be isolated to determine where water losses are occurring and
make the necessary interventions. This process can be commenced in the short term but will
likely be phased over the medium and long term time frames. As part of this process, the
overhead reservoirs will need to be rehabilitated and brought back into service. Overhead
reservoirs will provide the focal point of the DMA zones. Currently available storage from the
overhead reservoirs (although not in service) is less than one hour of the daily water demand.
Industry standards require 3-4 hours storage to balance diurnal demands so additional storage
will need to be progressively provide in the medium to long term. Storage is also required to
address load shedding which is currently prevalent in Sialkot and which is expected to continue
in the foreseeable future.
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Chapter VI
353. The efficiency of the distribution system and the water quality delivered is impacted upon
by the prevalence of households to utilize their own household storage tanks. While this practice
continues it is unlikely that 24/7 water supply will be able to be provided. The only way to
discourage the use of personal storage facilities is to provide confidence to consumers that water
will be readily available at the tap on a 24-hour basis. While a 24/7 supply for Sialkot is highly
feasible, it will take time for consumers to gain confidence in the system.
354. Currently, about 75% of residents within the current TMA boundaries have access to
water supply. Providing supply to the balance of residents as well as those residents in the three
Union Councils: Doburji Araian, Pindi Araian and Talwarra Mughlan will be a medium to longterm intervention once the efficiency of supply to the current service area has been improved. In
terms of services to poor communities, in general these communities also have access to water
supply services, although the level of service provided appears to be often inferior to those
wealthier areas. This is probably due to the fact that their coping mechanisms are not as well
developed and therefore they suffer disproportionately when the service is interrupted or water
quality deteriorates. Provision of a more reliable service will assist in providing equity of supply.
355. There is anecdotal evidence that the water table level in Sialkot has been dropping over
the past decade with a drop of 10 ft over the past decade having been mentioned. However, this
is not necessarily confirmed from data from the Department of Irrigation which shows no
significant change in water table levels. Nevertheless, climate change is likely to impact on the
surface water resources which provide recharge to the aquifers thereby possibly impacting on
the sustainability of supply, but also on the cost of pumping resulting from the lowering of the
water table. Interventions to address the sustainability of the aquifer and to reduce the energy
costs of supply of water will need to be considered in the medium to long term. Initially,
encouragement of household to adopt rainwater harvesting at the household level could be
practiced though an incentive scheme. In the longer term, options such as aquifer recharge and
use of treated surface water might be considered. A groundwater study to investigate the longterm sustainability of the aquifer will be a short-term initiative.
356. Improvements in water supply (and sewerage) infrastructure in Sialkot will not be
sustainable without significant institutional change that will lead to a more effective operation and
maintenance regime. There are a number of management options available for the water supply
and sewerage systems ranging from strengthening the existing TMA structure, outsourcing of
functions and various forms of private sector involvement. These need to be evaluated through
wide-ranging consultations with stakeholders as apriority activity in the short term.
(ii)
Sewerage
357. The condition of the water bodies as a result of discharge of domestic and industrial
effluent is considered by the TMA to be the most critical infrastructure aspect in Sialkot. Not only
is this a health hazard, but it is also a serious impediment to Sialkot continuing its development
as a major economic hub of Punjab and of Pakistan. The most critical intervention in the
sewerage sector is therefore to reduce the discharge of untreated wastewater into the water
bodies. At the same time, the poor condition and prevalence of blockages in many of the sewers
contributes to surcharging of the sewers resulting in overflows into the streets, the drains and the
nullahs. Surcharging of the sewers is also caused by the poor condition of the disposal stations
which are unable to discharge the quantities of sewage received, especially in the rainy season.
358. The initial short term approach to improving sewerage infrastructure will therefore be
preventing surcharging and sewage overflows into open drains by clearing blocked sewers,
upgrading and rehabilitating the sewer network and the disposal stations such that sewage can
be conveyed to the water bodies and not overflow into the streets and the storm water drainage
system. At the same time, interconnections from the storm water drainage system to the
sewerage system need to be eliminated to prevent overloading of the sewers during high rainfall.
The practice of opening sewer manholes to discharge storm water should be ceased. A program
to replacement old and damaged sewers should also be commenced in the short term. In order
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Chapter VI
to undertake cleaning and unblocking of sewers, the operating agency must be provided with
appropriate sewer maintenance equipment and this should be a critical short-term priority.
359. Once the sewage is flowing more effectively and the disposal stations have been
rehabilitated, the priority will be to improve the quality of the Bhaid Nullah and the Aik Nullah by
treating the sewage before it is discharged to the water bodies. However, this will need to be
coordinated with a program to require industries to pre-treat wastewater before discharging to the
sewer or re-locating industries to industrial parks where a common treatment facility could be
provided. It is likely therefore that providing treatment facilities will be at best a medium term
activity or possible long term. In the short to medium term, however, it may be possible to provide
primary treatment facilities at the two major disposal stations (Haji Pura and Iqbal Town) which
will result in significant improvement in BOD and suspended solids and contribute to
improvement in the water quality in the Bhaid and Aik Nullahs. In the longer term as solutions to
the disposal of industrial wastewater are implemented, sewage could be conveyed to treatment
plants outside the current TMA boundary where secondary treatment could be provided and
water quality further improved. Locations for treatment facilities have been identified to the
northwest and southwest of the current TMA boundary where treated sewage can be discharged
to the Palhu and Aik Nullahs respectively.
360. Once the existing sewerage system is operating more effectively and better quality
effluent is being discharged to the nullahs, consideration should be given to expanding the
collection network such as to increase the coverage. It is estimated that currently only about 49%
of the population within the existing TMA has access to sewerage. Coverage could be increased
gradually through the provision of the secondary and tertiary network and upgrading of trunk
sewers as necessary during the medium to long term. This will include providing a sewerage
network in the three Union Councils, Doburji Araian, Pindi Araian and Talwarra Mughlan.
361. Provision of improved sewerage services should be accompanied by a charging regime
that enables sufficient revenue to allow for appropriate operation and maintenance. However,
together, with a connection fee, often acts a disincentive for people to connect to the sewerage
system especially for the low-income communities. This has been addressed in the past in some
cities by providing some subsidies through an Output Based Aid program that enables the
sewerage authority to make connections for residents at subsidized rates.
(iii)
Storm water Drainage
362. Sialkot has been regularly impacted by serious flooding over many years, which has
impacted on livelihoods, resulted in damage to property and increased maintenance costs for
municipal infrastructure. There are numerous factors that result in flooding in the city. The
capacities of the Aik and Bhaid Nullahs which bound the town are inadequate to discharge major
floods and are overtopped resulting in flooding in the city; during periods of high rainfall, the
levels of the Nullahs exceeds that of the local drains necessitating closing of outlet penstocks on
the drains resulting in backflows and flooding in the city; the capacities of the nullahs and local
open drains are reduced by indiscriminate deposition of solid waste; the trunk sewers are
blocked and have limited capacity causing surcharging during periods of high rainfall; and the
local drains do not have capacity to cope with major storms causing local flooding.
363. Projects are ongoing with the Irrigation Department and the TMA to increase the capacity
of the Bhaid and Aik Nullahs such that they can handle major storm flows. This will reduce the
events by which the level of the nullahs prevents the free discharge of the open drains. The solid
waste interventions under the PIICP should reduce the extent of deposition of solid waste into
the drains and the TMA is now undertaking regular dredging programs in the nullahs.
Interventions under the PIICP sewerage program discussed above will improve the performance
of the sewerage system such that surcharging of the system no longer occurs, even during high
rainfall periods. These interventions should reduce the frequency of flooding in the short to
medium term. In the longer term, as the city develops in accordance with the ICDS, more green
spaces will reduce the runoff and ponds developed within the green spaces will act as retention
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Chapter VI
basins to reduce the impact of flooding. It may also be necessary to increase the capacity of the
existing open drains such that they can cope with floods of 2-5 years return period.
Water Supply Development Options
(i)
Water Source
Tube Wells
364. Overall 95 tube wells are currently supplying water within the existing city boundary.
These tube wells have a rated capacity of 149.5 cusecs or 80 MGD. The water demand within
the existing TMA boundary which is served by these tube wells is currently estimated to be 39.3
MGD and is projected to increase to 48.3 MGD by 2035. Provided these tube wells operate
efficiently, and assuming pumping hours are restricted to 12-16 hours per day, there is clearly
sufficient water for the existing service area for the foreseeable future and no need to develop
additional tube wells. Rehabilitation and maintenance of the existing facilities will be sufficient.
365. However, should the service area expand to include the proposed 2035 municipal
boundaries outlined in Chapter 2, the water demand will grow to 82.6 MGD by 2035. In the
longer term, therefore as these peripheral areas develop and are incorporated into the municipal
boundary there will be a need to construct additional tube wells to augment those which have
been installed by PHED in these areas.
366. Given the available groundwater resource, it is likely that supply of water from tube wells
will remain the principal water source for the foreseeable future. However, alternative sources
may need to be considered in the longer term given the reported lowering of the water table in
the vicinity of Sialkot city, the potential impact of climate change on recharge and the continued
high cost of pumping. These alternative water source options include rainwater harvesting,
artificial recharge and surface water development.
Rainwater Harvesting and Artificial Recharge
367. Rainwater harvesting can play a significant role in ground water recharge, as
groundwater levels in Sialkot are dropping and this raises the question as to (a) whether natural
groundwater recharge is decreasing and (b) whether some means is available to increase
groundwater recharge rates. The answer to the first question can be provided by carrying out a
study on the natural recharge of ground water.
368. One option for increasing the rate of recharge will be to create storm water holding areas,
which will serve the dual purpose of attenuating peak storm flows and allowing recharge but it will
be complex due to the limited space available in all areas of the city. It does not appear to be
viable for the areas where there is lack of open space. However, it should be considered as an
integral part of the design of any parks provided as part of the overall planning approach. In
addition, recharge tube wells can serve the purpose of recharging deep aquifers or injection wells
can be provided for recharge through percolation. Recharge through abandoned dug wells can
be another option and recharge trenches can be built where permeable strata is available at
shallow depths. However, converting from a ground water source to a surface water source is the
most suitable way to address the alarming scale of ground water depletion.
Surface Water Development
369. The imbalance between ground water recharge and ground water abstraction is likely to
develop into a crisis and water insecurity issue. The Upper Chenab canal is passing by Sambrial
Tehsil of Sialkot District while river Chenab crosses by Wazirabad District which is located 45km
away from Sialkot. In the long term the available surface water resources (Chenab river and
Upper Chenab canal) need to be explored for domestic water supply project in Sialkot as well as
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Chapter VI
adjacent cities. Water filtration plants may be designed and constructed for treatment of this
water.
(ii)
Distribution Network
370. The following interventions are required to improve the distribution network and system
efficiency
 Replacement of pipelines in the existing distribution network: A total 238 km of
the 357 km network is in poor condition and needs to be replaced, comprising
pipelines ranging in diameter from 2-10 inches.
 Replacement of all asbestos cement pipes due to the detrimental effect on health.
There is a total of 73 km of asbestos cement pipes in the network with diameters
between 3and 8 inches.
 Pipe Network Improvement/Rehabilitation. This relates to the Bogra Fateh Garh
water supply scheme supplying 400 households which has never worked effectively
and needs replacement.

Pipe Upgradation. Upgrading of under capacity pipelines within the existing network.
This involves the upgrading of 28 km of 3 and 4-inch diameter pipelines to 6-inch
diameter.
371. All these interventions are of an urgent nature to improve the performance of the existing
network and are included as medium term development needs.
(iii)
Extension of Services to Uncovered Area
372. Within current TMA boundary: Approximately 25% of the area within the current city
boundary (14,400 households or 91,000 people) does not have access to water supply. The
uncovered population is relying on private water resources (bore, open dug well and hand
pump). In order to reach these beneficiaries additional water supply schemes comprising of tube
wells and distribution network has been included in the short-term investment plan.
373. Outside current TMA boundary: PHED is responsible for the construction of schemes
outside the urban boundary (rural areas). Within the three Union Councils proposed to be
included in the urban boundary, it is estimated by PHED/TMA that 3,850 households or 25,000
people do not have water supply coverage.
374. The Medium Term Plan will provide water supply services to 50% of those unserved
areas within the current city boundary, including four new overhead reservoirs. No additional tube
wells are required to serve these areas. The remaining 50% will be included as part of the longer
term plan. Areas outside the current city boundary will be included in the long-term plan. Eight
additional tube wells are required to supply the unserved areas in the 3 UCs proposed to soon be
included in the municipal boundary. Further water supply infrastructure will be required in the
long term to supply the area within the suggested 2035 boundaries, the details of which will be
dependent on an inventory of the existing water supply infrastructure in those areas.
(iv)
Over Head Reservoirs
375. In the medium term, nine of the existing eleven OHRs will be rehabilitated to provide a
total storage capacity of 315,000 gallons or 0.37 hours storage at the current demand excluding
system losses. Storage will be increased as part of the medium term development plan to one
hour requiring an additional 540,000 gallons of storage.
376. In the longer term, storage should be increased to at least 3 hours. This is considered
necessary to balance supply and demand without giving consideration to fire-fighting water
availability and the impact of load, which would require additional 1.7 million gallons storage
within the current service area and 600,000 gallons in the additional 3 UCs just to meet the
existing demand. If the future 2035 demand from the projected 2035 boundaries is taken into
account, a total storage of 8.8 million gallons is required to provide 3 hours storage. Clearly
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Chapter VI
provision of additional storage will need to be incremental and the long-term investment for
storage shown in the MTIIP below takes into account the provision of 3 hours storage for the
current service area plus the requirements of the 3 UCs at the current demand.
(v)
Distribution Network Improvement Program
377. For improved monitoring, better control and improved service delivery the Sialkot city
water supply system has been divided into 20 zones through consultation with water team of
TMA Sialkot. These zones will be refined over time through detailed hydraulic modeling. In the
medium term, a Non-Revenue Water Reduction program will be piloted in selected two zones of
Sialkot. The zones will be established by installing bulk meters, customer meters and a SCADA
system to establish the baseline for the estimation of NRW in the selected zone. Table VI-87 and
Figure VI-88 presents the proposed water supply zones of the Sialkot city.
378.
In the longer term, the NRW reduction program will be extended to all 20 zones.
Table VI-87 - Details of Zones-Water Supply Network
A
B
C
D
E
F
G
H
I
J
K
Total
No
Parcels
13352
13112
514
12915
NA
2924
10146
10516
8881
5813
5125
L
Data not available
Residential
Parcels
6632
7767
41
8718
NA
1147
7002
6776
4539
3493
3335
Data not available
M
Data not available
Data not available
N
Data not available
Data not available
O
Data not available
Data not available
P
Data not available
Data not available
Q
R
S
1178
2371
991
602
1197
421
Zones
of
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Chapter VI
Figure VI-88: Water Supply Zoning – Sialkot City
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Chapter VI
(i)
Sewerage Collection and Treatment
Sewerage Maintenance Equipment
379. TMA has acquired limited equipment for maintenance of the sewers but keeping in view
the coverage and future expansion plan, additional equipment will be required for operation and
maintenance of the sewerage network. Safety equipment and procedures for operation and
maintenance of the sewers does not exist and is not followed by the staff and this has serious
repercussions on health and safety of the operations team despite the TMA following a program
of unblocking choked sewers over a period of time. In the medium term, equipment such as
CCTV for sewer inspection, jetting equipment for sewer cleaning, safety equipment for working in
confined spaces and personnel protective equipment will be provided. These will need to be
continually replenished over the long term.
Unblocking and Replacement of Existing Sewers
380. TMA has been engaged in unblocking the choked sewers using the available equipment
and resources, however a significant length of the network is still blocked and either needs to be
unblocked or replaced. In the medium term, a further 9.3 km of sewers will need to be unblocked.
Development of the Collection and Wastewater Treatment Systems
381. Two options were considered for the development of the sewerage collection system as
follows:
Option 1:
Drain all areas north of Aik Nullah (except Fateh Garrh, Shahab Pura and
Haji Pura) to a wastewater treatment plant located north of Airport Road
and discharging into Palhu Nullah; drain all areas south of Aik Nullah plus
Fateh Garrh, Shahab Pura and Haji Pura to the south to a treatment plant
along Daska Road; drain sewage from the Doburji Araian, Talwarra
Mughlan and Pindi Araian to a smaller treatment plant to the east. This is
shown on Figure 8.2 below.
Option 2:
Where possible, upgrade existing disposal stations to wastewater
treatment plants in order to save on large trunk sewers necessary to
convey sewage to the treatment plants discussed in Option 1.
382. The only two disposal stations where land space is sufficient to even consider a
treatment facility are Iqbal Town and Haji Pura with areas of about 0.4 ha each. However, given
the inflows to these two facilities it is likely only primary treatment could be provided. The
estimated cost of upgrading and providing additional trunk sewers for these two options is USD
12 million for Option 1 and USD 6.5 million for Option 2. The cost of providing secondary
treatment for the existing service area would be in the order of USD 20 million, compared with
USD 8 million to provide primary treatment at Haji Pura and Iqbal Town. However, the available
space at the two disposal stations is only sufficient to provide primary treatment up until 2020
after which additional land would be required to accommodate the increased flows.
383. Based on the above, the Provincial Government and the TMA proposed that the two
secondary treatment plants to treat sewage from the existing service area be implemented in the
medium term. The third treatment facility to treat sewage from Doburji Araian, Talwarra Mughlan
and Pindi Araian would be constructed in the long term.
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Chapter VI
384. The treatment plant capacity required at each of the three treatment plants is shown
below in Table VI-89.
Year
2015
2025
2035
Table VI-89 – Required Wastewater Treatment Plant Capacities
Required Treatment Plant ADWF Capacity (MGD)
WWTP-1
WWTP-2
WWTP-3
Total
8.4
3.3
11.7
17.9
6.9
3.2
29.0
36.1
14.0
8.3
58.4
Note: Loadings assume that 50% of existing service area is connected in 2015, 75% in 2025 and 100% of
population of proposed 2035 boundaries connected by 2035
385. It is proposed that the medium term development should include the construction of
WWTP’s 1 and 2 with sufficient capacity to treat 2025 flows. Construction if WWTP-3 and
expansion of WWTPs 1 and 2 to cater for the 2035 flows will be part of the long term
development.
Construction of Trunk Sewers
386. In order to convey sewage to the treatment plants, it will be necessary to install extensive
trunk sewers which will collect sewage from the disposal stations. The existing disposal stations
will be converted into pumping stations. The trunk sewers will include inceptor sewers laid
alongside the Aik and Bhaid nullahs. At total of 34 km of trunk mains with diameters between 24
inch and 84 inch will be required. All these trunk sewers will be installed in the medium term.
Details are provided in Section 8.2.2.
Extension of Sewerage Services to New Areas
387. In addition to constructing the trunk mains it will be necessary to provide secondary and
tertiary sewers in those uncovered areas that will convey sewage to the trunk mains. This will be
phased over the medium and longer term to eventually reach 100% coverage. Decisions on the
priority areas to service will require further consultation with the TMA/Municipal Corporation and
the community during the PPTA stage.
388. Currently it is estimated that about 250,000 people within the TMA boundary have access
to sewerage services, which represents 49% of the estimated 2015 population. It is proposed to
extend the sewerage system to 50% of the unserved areas during the medium term. The cost of
providing 100% sewerage coverage within the existing TMA boundaries and 50-70% coverage in
the three UCs proposed to be incorporated, excluding the cost of trunk mains is estimated to be
as shown in Table 8.8.
Disposal/Pumping Stations
389. Under Option 1 discussed above, the existing disposal stations will be converted into
Pumping Stations to transfer sewage to the two secondary treatment facilities. However, prior to
construction of the treatment facilities, the pumping stations will continue to operate as disposal
stations but will be upgraded such that they can handle the inflow thereby preventing surcharging
of the upstream sewers. Rehabilitation of the disposal stations and conversion to pumping
stations will be undertaken in the medium term
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Chapter VI
390. There are estimated to be over 2,500 industrial establishments within Sialkot, spread
throughout the town and discharging effluent into the local drainage and sewerage systems as
well as directly into the Aik and Bhaid Nullahs. These include highly polluting industries such as
tanneries. Few, if any, provide any pre-treatment prior to discharge into the city water bodies.
The primary wastewater strategy is for both domestic and industrial wastewater to be treated
before disposing of them into water bodies or allowing them to percolate back into underground
aquifers. The existing high level of pollution being directly discharged into the environment is
unacceptable and unsustainable. However, the wastewater treatment proposals developed
above relate to treating of domestic standard sewage and it is not practical for municipal
wastewater facilities to treat much stronger industrial effluent. There are several options for
handling industrial effluent.
 Industries can pre-treat their wastewater to domestic standard before discharging to
the municipal sewer. This normally requires penalties for industrial wastewater
discharge to be in place such that it makes economic sense for the industries to
install per-treatment facilities.


Industries can relocate to industrial parks where a common treatment facility can be
provided.
A regime can be established whereby effluent from industries are monitored and a
fee is payable for effluent that exceeds a pre-established quality. Revenue should
then be ‘ring-fenced’ to provide for the additional treatment costs.
391. There is currently a system in place that penalizes industries for discharging effluent that
exceeds the prescribed standards into water bodies and the EPA advises that there are currently
over 250 cases on-going against industries in Sialkot. However, the level of enforcement is not
clear and it is unlikely that a system is in place that allows revenue from penalties to be provided
to the sewerage system operators to compensate for additional operational costs.
392. There has been a plan formulated by the Sialkot Chamber of Commerce to re-locate
industries to an industrial park outside the current TMA boundary including provision of a
common wastewater treatment plant. This approach has been incorporated into the City
Development Strategy which proposes several industrial parks. However, this concept has been
slow to develop and the sheer number of industries in the city and their dispersion exacerbates
the situation across the city.
393. However, the bottom line is that provision of municipal wastewater treatment facilities will
not be practical while industrial effluent is still being discharged into the drains and sewers. The
timing of providing municipal wastewater treatment facilities will therefore be dependent on when
a solution is reached that will eliminate discharge of industrial waste into sewers and drains.
(ii)
Storm water Drainage
394. The ongoing projects to increase the capacity of the Aik and Bhaid nullahs is expected to
alleviate the major flooding in the city. The proposed medium term interventions to upgrade the
sewerage system proposed under this PFS as well as the solid waste activities will eliminate
surcharging of the sewers during flooding and further increase the capacity of the nullahs to
handle major floods. Local flooding is still likely to occur due to the under capacity of the storm
water drainage system. This may be addressed in the longer term by a program to increase the
capacity of the local drains to provide them with capacity to cope with floods of a 2-5 year return
period. Develop of ponds within proposed new green spaces within the city will also act as
retention basins to reduce local flooding.
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Z.
Chapter VI
Medium Term Infrastructure Investment Plan
395. Based on the above proposals, the Medium Term Infrastructure Investment Plan is
shown in Table VI-90.
Table VI-90 – Medium Term Infrastructure Investment Plan
No
Projects and Sub Projects
1
Water Supply Infrastructure
1.1
Rehabilitation
Production-Rehabilitation of
Tube wells
Replacement of Turbine Pumps and
motors (12 Nos)
Switchgear, Electrical works and
Chlorination Equipment (95 tube
wells)
Improving the efficiency of 60%
tube wells after energy audit (VFDs,
PFIs, Pressure gauges, hour
meters, Non return valves, air
release valves, gate valves)
Re boring of new tube wells
including installation of turbine
replacement (11 Nos)
Rehabilitation of Distribution
Network and storage
Replacement of Rusted/Damaged
Pipes(238 km)
Replacement of Asbestos Cement
Pipes (262km)
Rehabilitation of Fateh Garrh
distribution system
Upgradation of under capacity pipe
1.1.1
1.1.2
1.2
Rehabilitation of existing reservoirs
(9 OHR)
Provision of new water supply
infrastructure
Extension of water supply services
to unserved area (91000
beneficiaries)
Provision of new water supply
schemes in 3 UCs to be
incorporated into TMA/Corporation
(25000 beneficiaries)
Construction of 4 new reservoirsmedium term plan
Estimated Expenditure
(in USD)
(In PKR)
Medium
Term
Total
Medium
Term
0.34
0.34
34.0
34.0
0.05
0.05
5.00
5.00
0.30
0.30
30.0
30.0
0.55
0
55.00
57.00
3.10
3.10
310.0
0
310.0
1.09
1.09
109.0
0
109.0
0.01
0.01
1.0
0
1.0
0.03
0.03
3.0
0
3.0
0.09
0.09
9.0
0
9.0
1.36
2.72
136.0
136.0
272.0
0.75
0.75
75.0
75.0
1.95
2.75
195.0
275.0
Long
Term
0.55
1.36
0.80
80.0
Long
term
Total
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No
1.3
1.4
Cost of 8 new tube wells in
extended area (outside current city
boundary)
Development of DNI Zones and
NRW program (Two selected
zones)-4800hh/zone
Development of DNI Zones/PRV,
Cost of networking/installation of
valves, PRV, leak detection
equipment for 9600 households
Customer meters for 9600
customers
SCADA system, bulk metering and
laptops
Development of DNI Zones and
NRW program (12 remaining
zones)
Development of DNI Zones/PRV,
Cost of networking/installation of
valves, PRV, leak detection
equipment for 9600 households
Provision of customer meters
(40000 customers)
Cost for OHR for 24/7 supply (long
term plan)
Sub-total Water Supply
Chapter VI
(in USD)
(In PKR)
Medium
Term
Medium
Term
2.1
2.3
0.40
0.40
0.42
42.0
Long
term
Total
40.0
40.0
42.0
0.60
3.60
4.20
60.0
360.0
420.0
0.50
2.80
3.30
50.0
280.0
330.0
2.57
2.57
257.0
257.0
3.62
3.62
362.0
362.0
1.89
1.89
19.49
28.18
869.0
189.0
1949.
0
189.0
2818.
0
0.40
0.40
40.0
40.0
2.66
2.66
266.0
266.0
2.00
2.00
0
200.0
5.31
6.95
12.26
531.0
695.0
10.00
7.69
17.69
1000.0
769.0
2.28
228.0
Infrastructure
Rehabilitation Works
Sewerage pipe needing
replacement (15km)
Rehabilitation of Disposal
Stations/New Pumping Stations (8
DS)
Improvement of Local drains
2.2
Total
0.42
8.69
2
Long
Term
Construction of trunk sewers and
sewerage system extension
Upgradation and provision of new
trunk sewers (GRP)
Extension into unserved areas
Construction of new sewage
treatment plants
Land acquisition cost of Treatment
plants (2 nos)
2.28
200.0
1226.
0
1769.
0
228.0
Page 338
No
3
3.1
3.2
3.3
Construction of sewage treatment
plants (2 Nos)
Subtotal Sewerage and Drainage
Facilities and Equipment
Water and Sewerage maintenance
equipment
Office space (45000 sq.ft) and
systems and equipment
Workshop, stores, 10 pickups,
motorcycles, and control room
Subtotal (O&M)
Grand total
Chapter VI
(in USD)
(In PKR)
Medium
Term
Long
Term
Total
Medium
Term
Long
term
23.80
9.91
33.71
2380.0
44.45
26.55
71.00
4445.0
991.0
2655.
0
1.05
1.05
105.0
105.0
0.60
0.60
60.0
60.0
0.50
0.50
50.0
50.0
2.1
101.3
3
215.0
2.15
0.0
55.29
46.09
5529.0
0.0
4609.
0
Total
3371.
0
7100.
0
215.0
1013
3.0
Pre-Feasibility Study for Medium Term Investments
396. The MTIIP shown in Table 7.3 above identified USD 53.95 millions of investment to be
undertaken for water supply and sewerage in Sialkot in the medium term. The proposed
components of the investment are as follows:
Component 1 – Water Supply Infrastructure
Rehabilitation of Existing Infrastructure
Provision of New Water Supply Infrastructure
Development of DNI Zones and NRW Reduction
Component 2 – Sewerage and Drainage Infrastructure
Sewerage and Drainage Rehabilitation
Extension of Sewerage to Unserved Areas
Construction of Sewage Treatment Plants
Component 3 – Operation and Maintenance Facilities and Equipment
AA.
Component 1.1 - Rehabilitation of Existing Infrastructure
(i)
Rehabilitation of Tube Wells
397. The objective of this sub-component is to restore the 95 tube wells to their original design
rating such that a total capacity of 149.5 cusecs can be achieved. Since the 2010 energy audit,
TMA has been re boring wells considering the reduced discharge of the tube wells. In most of the
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Chapter VI
cases re-boring has been done, however the turbines of existing tube wells have been reinstalled in new re-bored wells. Seven of the installations have no chlorination facilities and new
units need to be installed at these locations. The rehabilitation works required at the 95 tube
wells within the existing service area is as follows:

Replacement of turbine pumps and motors at twelve (12) re-bored tube wells.

Provision of new switchgear and electrical installations at all 95 tube wells.

Provision of new chlorination units in seven (7) tube well installations and
rehabilitation of existing chlorination units in remaining tube wells.

Improving the efficiency of 60% of the tube wells in accordance with the 2010
energy audit through provision of bulk meters, pressure gauges, non-return valves,
air valves, installation of capacitors, upgrading of delivery pipes as required.
Installation of SCADA and bringing into service overhead reservoirs (costed
separately) will also allow for more efficient operation of the wells.
398. A further survey is being undertaken of all tube wells supplying water to Sialkot City in
order to update the 2010 Energy Audit. This may result in some modifications to the above
proposed works.
399. The list of tube wells with details of proposed investment is presented in Annex A. The
total cost of these rehabilitation works is estimated to be USD 740,000
(ii)
Rehabilitation of Distribution Network and Storage
Replacement of Rusted/Damaged Pipes
400. Approximately 75% of the city has coverage for water supply through a piped network.
The major portion of the city is supplied by the piped network constructed by TMA while some
public buildings and large installations have their own arrangements (tube wells and OHRs). In
addition, privately constructed housing schemes including the Wapda colony, MAG town, and the
Government Polytechnic staff colony have poor condition/rusted networks, which are proposed to
be replaced as a short-term investment plan. Based on an assessment of the piped network in
consultation with the TMA operational staff, a total of 238 km of the network is in poor condition
and needs to be replaced as part of the medium term plan. Figure VI-69 shows the pipe network
that needs to be replaced. Table VI-91 shows the details of the pipe requiring replacement.
Table VI-91: Rusted/Damaged Pipes Required to be Replaced
Pipe
Diameter
(ins)
10
8
6
4
3
Total
401.
Length of Pipeline to be Replaced (m)
Asbestos Cast Iron Mild
PVC
Cement
Steel
117
1,874
1,338
1,086
39,414
5,504
433
1,774
546
146,207
40,305
189,269
47,810
1,519
0
Total Length
117
4,298
45,351
2,320
186,512
238,598
The total cost of replacement of the rusted/damaged pipes is USD 3.1 million
Replacement of Asbestos Pipe
402. Keeping in view the detrimental effects of asbestos on health it is proposed to replace the
asbestos cement pipes as part of the medium term investment plan. Details of asbestos pipes in
the network is presented in Table VI-92. 189 km of asbestos cement pipe will be replaced under
the above item and 22 km will be upgraded so the balance of 51 km will need to be replaced at a
cost of PKR 90.7 million or USD 0.91 million
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Chapter VI
Table VI-92: Details of Asbestos Pipe to be Replaced
Pipe Diameter
(ins)
8
6
4
3
Total
Total Length of AC
Pipe (m)
3,014
60,860
1,831
195,870
261,575
Rusted/Damaged Pipe to
be Replaced (m)
1,874
39,414
1,774
146,207
189,269
Balance of AC Pipe
to be Replaced (m)
1140
21446
1057
49663
73,306
Rehabilitation of Fateh Garh Distribution System
403. In Union Council Fateh Garh, a water supply scheme was constructed for Bogra serving
approximately 400 households. The scheme consists of tube wells and a water distribution
network. Due to technical flaws the scheme has never been operated and has not been
functional since the construction was completed. TMA and PHED staff report inadequacy of the
distribution network (inappropriate design) limiting the supply water to the target population. The
tube wells installed are functional and can be used if the pipe network is replaced. The scheme
is proposed to be rehabilitated through replacing the pipe network at an estimated cost of PKR 1
million or USD 10,000.
Pipe Upgradation
404. During past few years services have been extended to new customers from the existing
network. However, the extended network was connected to a low capacity existing tertiary
network, which is affecting the quality of service in the existing area as well as the extended
area. This pipe network needs to be upgraded to larger diameter pipe. The network was
identified in consultation with TMA staff based on available information and complaints received
from the respective area. The total length of the pipe network to be upgraded to 6-inch diameter
pipe is 28km. A breakdown of current pipe network requiring up gradation is presented in Table
VI-93. The estimated cost of these upgrading works is PKR 72.15 million or USD 721,500. This
does not include the cost of replacing Asbestos pipe as cost of asbestos pipe replacement has
been included in Table VI-92.
Table VI-93: Pipe Network Requiring Upgradation
Pipe
Diameter
(ins)
3
4
Total
Length of Pipe Requiring Upgrading (m)
Cast Iron
Mild Steel
Asbestos
Cement
3,347
0
20,370
547
0
2,247
3.894
0
22,617
PVC
Total
1,799
0
1,799
25.516
2,794
26,310
Rehabilitation of Existing Overhead Reservoirs
405. This item will comprise the rehabilitation and bringing back into service of nine (9) of the
existing eleven (11) overhead reservoirs. The other two cannot be rehabilitated. The
rehabilitation works will include:
 Replacement of doors and windows.
 Plastering, fillers and minor structural repairs
 Connection on inlet and outlet pipework and valves
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Chapter VI
406. The estimated cost of rehabilitation is PKR 8.5 million or USD 85,500. Once rehabilitated,
a total of 315,000 gallons of storage will be available or only 0.37 hours of storage at the current
water demand.
Component 1.2 - Provision of New Water Supply Infrastructure
(i)
Extension of Water Supply Services to Unserved Areas within Existing Service
Area
407.
94.
Details of the uncovered population within the existing service area is shown in Table VI-
Table VI-94 – Uncovered Population within Existing Service Area
Union Council
Muzafar Pura
Kotli Behram
Shahab Pura
Model Town
Fateh Garh
Miana Pura
Total
No. of
Uncovered HH
No. of
Beneficiaries
3309
2124
820
79
2784
4846
13,962
21,508
13,806
5,330
513.5
18,096
31,824
91,077
408. The medium term plan will provide water supply for 50% of this population at a cost of
PKR 140 million or USD 1.36 million. Since these areas are distributed throughout the service
area, no additional tube wells will be required since the water source for the existing service area
is adequate until 2035. Details of the areas to be provided with supply during the medium term
will be determined during the feasibility study.
(ii)
Construction of new Overhead Reservoirs
409. During the medium term, storage within the existing service area will be increased from
0.37 hours to 1 hour as a first stage in increasing storage to the desirable industry standard of 3
hours. This will require an additional 540,000 gallons of storage which will be provided by an
additional five (5) 100,000-gallon capacity reservoirs at a cost of PKR 100 million or USD 1
million. The location of the reservoirs will be determined during the feasibility study on the basis
of a hydraulic model which will establish the optimum location of reservoirs subject to the
availability of suitable land.
Component 1.3 - Development of DNI Zones and NRW Program
410. A Non-Revenue Water Reduction program is recommended to be piloted in two selected
two zones of Sialkot. The contractor engaged for NRW reduction program will establish the
zones by installing bulk meters, customer meters and a SCADA system to establish the baseline
for the estimation of NRW in the selected zone. Targets for NRW reduction will be established
and infrastructure will be improved for the NRW reduction program. Moreover, it is important to
highlight that customer’s meters can only be installed once 24/7 supply is ensured in selected
zone which will require adequate storage to cater the water demand for 24/7. Moreover, it is
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Chapter VI
assumed that government will introduce a volumetric charging system once services are
improved and a 24/7 supply is ensured in the target area. The program apart from improved
service delivery will enhance revenue and reduce energy and water losses in the system. It is
anticipated that apart from water losses in the system, service connections may also be
improved keeping in view water losses at connections level and quality of service connections
contributing to water losses. The estimated cost for improvement of services to 24/7 in two
selected DMZs is PKR 110 million or USD 1.1 million. During the program implementation, the
utility is recommended to be equipped with leak detection equipment to detect and fix the
leakages in the system. The complaint addressal system will be improved for improved
efficiency.
411. In order to improve the service delivery, enhance revenue and introduce bulk metering
and customer metering, the following two zones have been selected where a 24/7 water supply
concept will be piloted. A map showing the two selected zones and existing water supply
infrastructure in these zones has been prepared as previously referenced.
Model Town
412. The total number of land parcels in the zone is 5,125 (3,335 residential plots). One
Overhead reservoir and three tube wells are feeding water supply to the zone. For 24/7; 3-4
hours storage will be required which is already available in terms of the overall 50,000gallons
OHR in the selected zone.
Water Works
413. The total number of land parcel in the zone is 10,516 (6,776 residential plots). Two
Overhead reservoirs (300,000 gallons) and three tube wells are feeding water supply to the zone.
For 24/7; 3-4 hours storage will be required which is already available in terms of overall 300,000
gallons storage in the selected zone.
Installation of SCADA
414. Supervisory Control and Data Acquisition (SCADA) will be installed to facilitate more
efficient water supply system operation. It will allow automatic operation of tube well pumping
stations based on the reservoir levels and system pressure. It will enable real time measurement
of flows and pressures throughout the system and will enable accurate assessment of water
losses. SCADA is essentially a real-time industrial process control system used to centrally
monitor and/or control remote or local industrial equipment such as valves, pumps, sensors, etc.
415. SCADA is a combination of telemetry and data acquisition, which will perform the
functions of (i) data acquisition; (ii) networked data communication; and (iii) data presentation.
This will be enabled by the following SCADA components:




Sensors (either digital or analogue) and control relays that directly interface with
the managed system.
Remote telemetry units (RTUs). These are small computerized units deployed in the
field at specific sites and locations. RTUs serve as local collection points for gathering
reports from sensors and delivering commands to control relays.
SCADA master unit. This is a larger computer console that serves as the central
processor for the SCADA system. Master unit provides a human interface to the
system.
The communication network that connects the SCADA master unit to the RTUs in
the field.
416. This is illustrated in Figure VI-95 below. The estimated cost of providing the SCADA
system is USD 63000.
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Chapter VI
Figure VI-95 – SCADA System Schematic
GPRS
Remote
Terminal
Flow meter
or Sensor
GPRS
SCADA Master Unit
Remote Terminal
Unit (RTU)
Flow meter
or Sensor
BB.
Component 2 – Sewerage and Drainage Infrastructure
(i)
Component 2.1 - Sewerage and Drainage Rehabilitation
Sewerage Pipes Needing Replacement
417. Table 4.6 above shows that there are 14.9 km of sewers that require unblocking and 14.5
km of sewer that require replacement. The breakdown in terms of sewer diameters is shown in
Table VI-96 below.
Table VI-96 – Sewers Requiring Unblocking and Replacement
Sewer Diameter
(inches)
60
54
48
36
30
24
12
9
Total
Sewers Requiring
Unblocking (m)
9,845
1,837
2,633
910
166
14,941
Sewers Requiring
Replacement (m)
1,740
1,818
6,563
178
700
837
2,689
14,525
418. It is likely that the blocked sewers will be part of the ongoing program of sewer
unblocking being undertaken by the TMA, which may be accelerated if additional sewer jetting
equipment can be the subject of an early procurement program once the loan is approved.
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Chapter VI
However, unblocking of a nominal length of sewer could also be included as part of medium term
interventions.
419. The sewers requiring replacement have been determined based on the condition survey
conducted in association with the TMA operational staff. However, this can only be confirmed by
means of a CCTV survey conducted after sewers have been unblocked. Early procurement of
the CCTV and sewer jetting equipment specified in Component 3 below would enable a further
assessment to be made prior to the commencement of the contract for sewer replacement
thereby ensuring the correct quantities to be specified in the contract.
420. The estimated cost for the replacement of the 14.5 km of sewer pipeline is PKR 212
million or USD 2.12 million.
Rehabilitation of Disposal Stations/New Pumping Stations
421. During the medium term plan, the existing disposal stations will be converted into
Pumping Stations to transfer sewage to the two large treatment facilities –WWTP-1 and WWTP2. The current estimated inflow and projected 2035 inflow to each of the pumping stations is
shown below in Table VI-97, together with the cost to develop. However, prior to construction of
the treatment facilities, the pumping stations will continue to operate as disposal stations but will
be upgraded such that they can handle the inflow thereby preventing surcharging of the
upstream sewers.
422. The upgraded pumping stations can be of the submersible type or the wet well/dry well
type with vertical turbine sewage pumps. While in the past, submersible pumps were only used
for smaller lift stations, the cost of larger submersible pumps have become more competitive
such that in many countries installations of up to 250 HP may utilize submersible pumps.
Submersible installations are often preferred since they can be cost effective as only one well is
required, they can be operated from ground level without the need to enter confined spaces, they
have a lesser profile and visual impact and are generally less expensive to maintain. On the
other hand, wet well/dry well installations provide easy access to the pumps for condition
monitoring, inspection and in-situ maintenance. In the case of Pakistan, the larger submersible
pumps would need to be imported and would likely be more expensive than the dry well vertical
pumps and operators are more familiar with the wet well/dry well installations. It could be
possible to provide submersible installations at Jail Road, Model Town, Dara Araian, Rangpura
and Khan Mahal stations, but this can be decided at the design stage. Costing has been done on
the basis of wet well/dry well installations. Costing has also been done on the basis of upgrading
the existing installations, although at the design stage it may be considered appropriate to
demolish the exiting installation and construct an entirely new facility given the poor condition of
some of the existing stations.
423. The larger pumping stations should be provided with screening facilities upstream of the
inlet to remove coarse solids. Given the size of the installations, mechanized screens such as
step screens would be appropriate although this provides another element of operational
complexity.
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Chapter VI
Table VI-97: Upgrading of Disposal Stations/Pumping Stations
Name
2015 (current)
Inflow (MGD)
2035 Inflow
(MGD)
2015 Power
Requirement
(HP)
2035 Power
Requirement
(HP)
Current Status
Proposed
Type of
Installation
ADW
F
0.36
Desig
n
2.41
ADW
F
4.51
Desig
n
16.90
37
296
Not functional
72
166
45 HP installed.
Functioning
9.23
66
162
100 HP installed,
50 HP functioning
1.19
5.35
32
93
30 HP installed
and functioning
7.57
3.00
11.24
133
197
3.82
14.32
15.16
45.48
251
800
Khan Mahal
Road
0.04
0.24
1.66
7.45
5
131
80 HP installed,
functioning
220 HP installed,
100HP functioning
25 HP installed,
functioning
Rang Pura
0.28
1.70
2.98
11.17
30
196
100 HP installed,
functioning
Haji Pura
4.44
12.91
8.62
25.86
227
454
4.26
13.75
-
241
150 HP installed,
functioning
No current PS
installed
Wet Well/Dry
Well
Submersible
or wet well/dry
well
Submersible
or wet well/dry
well
Submersible
or wet well/dry
well
Wet Well/Dry
Well
Wet Well/Dry
Well
Submersible
or wet well/dry
well
Submersible
or wet well/dry
well
Wet Well/Dry
Well
Wet Well/Dry
Well
0.78
4.10
2.11
9.48
Model Town
0.72
3.76
2.46
Dara Ariana 1
0.31
1.85
Dara Ariana 2
1.68
Iqbal Town
Commissione
r Road
Jail Road
New PS at
Pasrur Road
-
Cost to
Upgrade/
Replace
USD
0.28
0.16
0.16
0.10
0.19
0.78
0.13
0.19
0.44
0.23
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(ii)
Chapter VI
Component 2.2 - Construction of Trunk Sewers and Sewerage System Extensions
Upgradation and Provision of New Trunk Sewers
424. The required trunk sewer upgrading and new trunk sewer development for Options 1 and
2 is outlined below in Table VI-98. The strategy would include collector sewers along significant
lengths of both the Aik and the Bhaid Nullahs to collect low-lying areas and prevent sewage from
discharging directly into the nullahs. All disposal stations (except Iqbal town and Haji Pura in
Option 2) would be converted to pumping stations. The location of the trunk sewers is shown on
Figure VI-99. Pipe materials for large trunk mains should be given serious consideration. The
current practice in Sialkot is to use RCC pipes for large trunk mains. However, RCC pipes are
susceptible to crown corrosion, especially for flat sewers, which will be the case in Sialkot and
will therefore be subject to collapse and a shorter life span. Materials such as GRP and FRP
would be preferred, but would need to be imported. Epoxy lined RCC pipes would also be an
option.
Table VI-98 – Details of Upgrading and Provision of New Trunk Sewers
Sewer Segment
Commissioner Road System
Jammu Rd to Khan Mahal PS
Rangpura Road to Khan Mahal
Khan Mahal PS to Rex Cinema Chowk (via
College Road)
Rex Cinema Chowk to Commissioner Rd PS
Commissioner Road PS to Jail Rd PS
(Collector Sewer)
Jail Rd PS to Khadam Ali Road (Collector
Sewer)
Khadam Ali Rd to Head Marala Road
Model Town System
Model Town PS to Defense Road
Iqbal Town System
Rangpura DS to Circular Road
Circular Road to Church Road
Maharaja Road
Church Road to Tehsil Bazaar Road
Tehsil Bazaar Road to Aslam Chowk
Mujahid Road
Aibat Road to DA1
Iqbal Town to WWTP-1
Iqbal Town DS to Kashmir Road
Kashmir Road to Kullowal Road
Kullowal Road to WWTP-1
Haji Pura System
Fateh Garh Road 2
Defense Road to Daska Road
Daska Road 2
Daska Road to Haji Pura DS
Nullah Aik Collector Sewer 1
Nullah Aik Collector Sewer 2
Existing Dia.
Required Dia.
(mm)
Length (m)
-
600
750
750
800
1200
1000
600/900
-
900
1000
700
1400
_
1200
600
_
1200
3500
-
1000
2000
600
900
900
Egg-Shape
450
800
900
750
1000
1000
750
600
1100
1300
850
400
300
1400
850
-
1500
1800
2100
1400
2100
1500
750
750
600
750
-
900
900
750
900
600
750
1100
700
600
200
850
1000
Page 347
Chowk Naika Pura Pull Aik (Pasrur Road)
System
Collector Sewer on Aik Nullah
Zafarwal Road Sewer
System to WWTP-2
Pasrur Road PS to Daska Road 2
Haji Pura PS to Defense Road
Daska Rd 2 Sewer to WWTP 2
Chapter VI
600
600
750
900
1250
-
1000
1200
1350
3600
300
1500
425. The estimated cost of construction of these trunk sewers, which comprises 34.4 km, PKR
531 million or USD 5.31 million.
Page 348
Chapter VI
Figure VI-99: Proposed Wastewater Treatment Plants and Trunk Sewers
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Chapter VI
Extension into Unserved areas
426. In addition to constructing the trunk mains it will be necessary to provide secondary and
tertiary sewers in those uncovered areas that will convey sewage to the trunk mains. This will be
phased over the medium and longer term to eventually reach 100% coverage. Decisions on the
priority areas to service will require further consultation with the TMA/Municipal Corporation and
the community during the PPTA stage.
427. Currently it is estimated that about 250,000 people within the TMA boundary have access
to sewerage services, which represents 49% of the estimated 2015 population. The cost of
providing 100% sewerage coverage within the existing TMA boundaries and 50-70% coverage in
the three UCs proposed to be incorporated, excluding the cost of trunk mains is estimated to be
Table VI-100 - Cost to Provide Full Sewerage Coverage in Sialkot
Union Council
Shah
Sayyedan
Karim Pura
Imam Sahib
Water Works
Muhammad
Pura
Miana Pura
Ahmed Pura
Habib Pura
Haji Pura
Shahab Pura
Naika Pura
Model Town
Muzafar Pura
Pura Heeran
Fateh Garh
Kotli Behram
Sub-Total
Doburji Araian
Talwarra
Mughlan
Pindi Araiyan
Sub-Total
Total
Estimated
Present
Sewerage
Coverage
Projected
Sewerage
Coverage
2035
in
Additional
Population to be
Covered
Cost to
Projected
Coverage
provide
2035
2015
2035
US$
(mill)
0.17
90%
100%
3060
4321
PKR
(mill)
17.28
60%
30%
40%
30%
100%
100%
100%
100%
10942
18219
18449
18733
15450
25725
26050
26445
61.80
102.90
104.20
105.78
0.62
1.03
1.04
1.06
60%
15%
70%
50%
40%
50%
60%
0%
5%
70%
0%
100%
100%
100%
100%
100%
100%
100%
100%
100%
100%
100%
10528
25895
7825
14538
21578
13238
12885
33269
29628
9729
35991
14866
36564
11049
20528
30468
18692
18193
46976
41835
13737
50819
30%
10%
70%
50%
19881
22656
28461
32432
59.46
146.26
44.19
82.11
121.87
74.77
72.77
187.90
167.34
54.95
203.28
1606.87
113.84
129.73
0.59
1.46
0.44
0.82
1.22
0.75
0.73
1.88
1.67
0.55
2.03
16.07
1.14
1.30
0%
50%
24504
35078
140.31
383.88
1990.75
1.40
3.84
19.91
428. It is proposed that 50% of the unserved population be provided with access to sewerage
services during the medium term phase and the remaining 50% during the long term. The cost
during the medium term will therefore be PKR 995 million or USD 9.95 million
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(iii)
Chapter VI
Component 2.3 - Construction of Sewage Treatment Plants
429. It is proposed in the medium term to construct two treatment plants to the northwest and
southwest of the service area at locations just outside the current city boundary to where sewage
from the existing town boundary will be conveyed. The existing disposal stations will be
converted into pumping stations to pump sewage from the collection system into the trunk mains
conveying sewage to the treatment facilities. Possible locations for the two treatment plants
(WWTP-1 in the northwest) and WWTP-2 in the southwest) is shown in Figure VI-106. Another
smaller treatment facility would be provided to the east of the city to treat sewage from the three
UCs proposed to be incorporated into the municipal boundary, but this will be constructed in the
longer term.
430. The required treatment plant capacities and loadings are as shown in Table VI-101. The
plants shall be designed to accept 2*ADWF, with the balance being overflowed subject to the
dilution requirements required by the Pakistan effluent discharge standards being met.
Table VI-101 – Treatment Plant Loadings
Location
WWTP -1 (Northern
Plant)
WWTP-2 (Southern
Plant)
Total
ADWF (MGD)
Design Flow (MGD)
2015
2025
2035
2015
2025
2035
BOD Loading
(tons/day)
2015 2025 2035
8.4
17.9
36.1
16.8
35.8
72.2
15.8
32.5
65.5
3.3
6.9
14.0
6.6
13.8
28.0
6.3
12.5
25.4
11.7
24.8
50.1
23.4
49.6
100.2
22.1
45.0
90.9
Note: Loadings assume that 50% of existing service area is connected in 2015, 75% in 2025 and 100% of
population of proposed 2035 boundaries connected by 2035
431. In the medium term, treatment plants will be constructed with capacity to treat 2025
wastewater flows, i.e. an 18 MGD plant for WWTP-1 and a 7 MGD plant for WWTP-2. Land will
be required sufficient for expansion to treat the 2035 wastewater flows.
432. Several treatment process options were considered as follows that could be adopted for
the Sialkot situation:
Alternative No. 1: Combined covered anaerobic lagoon-aerobic lagoon treatment
system
432.1. The cover prevents odors and allows biogas collection in the anaerobic lagoon
and both are easy to operate and maintain but the land take is large.
Alternative No. 2: Combined facultative lagoon-aerobic lagoon treatment system
432.2. This alternative gets rid of the geo-polymer membrane needed for the cover, still
retains the ease in operations and maintenance but the land take is still large.
Alternative No. 3: Combined UASB-aerobic lagoon treatment system
432.3. This alternative employs the UASB as the chief “carbon scrubber” to remove
BOD. There are few moving parts (apart from the sludge and scum pumps) and biogas is
produced and captured. The UASB, being an intensive system, is more difficult to
operate and maintain and operators need proper training.
Alternative No. 4: Combined UASB-trickling filter treatment system
432.4. Trickling filters have generally been used after primary sedimentation processes
but there would be only minor differences between using primary sedimentation or an
UASB as pretreatment to a trickling filter. Corrosion issues would have to be addressed
between the two units. UASB-TF, Alt. No. 4 would have a smaller footprint than the
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Chapter VI
UASB-lagoon, Alt. No. 3 design, but still would be less complicated and less expensive to
operate than if an activated sludge system were used after the UASB.
Alternative No. 5: Combined UASB-MBBR treatment system
432.5. This system would be the ultimate small footprint treatment plant. The
combination is ideal when little space is available. The biogas from the UASB could also
potentially supply most of the energy for the aerobic process. The process would require
trained operators and instrumentation to monitor the dissolved oxygen in the Moving Bed
Biofilm Reactor (MBBR). There would be external blowers and the MBBR would be filled
with about 60% plastic, fluidized packing.
Alternative No. 6: Combined UASB-Sequencing Batch Reactor
432.6. This system also has a small footprint and is a common approach to activated
sludge treatment. It can handle influents of various volumes and qualities and produces a
sludge with good settling characteristics. However, it does require good control systems
and skilled operations as it operates under non steady state conditions and the various
operational sequences need to be adequately controlled.
433. Each system has its own attributes that would make them viable in the Pakistan context
Table VI-102 – Attributes of Different Treatment Processes
Attribute
Anaerobicaerobic
lagoon
Large
FacultativeAerobic
lagoon
Large
UASBAerobic
Lagoon
Medium
Operational
Complexity
System Design
Simple
Simple
Medium
Simple
Simple
Medium
Maintenance
Requirements
Bio solids
Production
Greenhouse gas
production
Potential Odor
Small
Small
Small
SmallMedium
Small
Effluent Quality
Variable
Land-Take
UASB-SBR
UASB
MBBR
Small
Small
UASBTrickling
Filter
SmallMedium
MediumComplicated
MediumComplicated
Medium
Small
Small
Small
Large
SmallMedium
Medium
SmallMedium
Medium
MediumLarge
MediumLarge
Medium
Good
Good
Excellent
MediumLarge
Variable
Complicated
Complicated
Large
434. The land takes for each of the alternative processes in shown below on Table VI-103
based on the inflows and BOD loading shown in Table 6.4 are as follows:
Table VI-103 – Land Take for Different Treatment Processes
Treatment Process
Land Take (ha)
WWTP 1
Stage 1 (18
Stage 2
MGD)
(Total 36
MGD)
WWTP-2
Stage 1 (7
Stage 2
MGD)
(Total 14
MGD)
Page 352
Anaerobic-aerobic lagoon
Facultative-Aerobic
lagoon
UASB-Aerobic Lagoon
UASB-Trickling Filter
UASB-SBR
UASB MBBR
Chapter VI
50
37
91
65
22
16
36
26
23
3.8
2.7
2.4
38
6.5
4.6
4.0
9
1.4
1.1
1.0
15
2.2
1.8
1.6
435. The selection of a preferred process is essentially site specific. Anaerobic systems can
often be costlier to build initially and will need an aerobic process to polish up their effluent.
However, lower operating costs, and the possibility that the methane can be used for power
generation, often gives advantage to anaerobic systems after the higher capital costs have been
neutralized by the lower operating costs and power generation.
436. The maximum available land areas at the sites proposed for WWTP-1 and WWTP-2 (see
Figure VI-106) are 6.6 and 2.0 ha respectively. This effectively rules out lagoon based treatment
technology which will require considerably more land for both treatment facilities. Sufficient land
is available for the UASB-Trickling filter, UASB-SBR and UASB MBBR technology. The
estimated cost of treatment facilities with these technologies is shown in Table VI-104.
Table VI-104 – Estimated Cost of Treatment Plant Process Alternatives
Treatment Process
UASB-Trickling
Filter
UASB-SBR
UASB MBBR
Treatment Plant Capital Cost (USD mill)
WWTP-1
WWTP-2
Stage 1 (18
Stage 2 (18 for
Stage 1 (7
MGD)
Total 36 MGD)
MGD)
12.5
9.5
7.8
Stage 2 (7 MLD
for Total 14
MGD)
6.0
14.5
15.5
11.0
12.0
8.5
9.0
6.8
7.3
437. While the SBR and MBBR processes have less land take and provide high quality
effluent, both have higher operating costs that trickling filters and involve large mechanical
components requiring high maintenance. The UASB trickling filter alternative is therefore
proposed for Sialkot. The effluent produced will be well within the current Pakistan discharge
standards.
438. The process diagram for the UASB-tricking Filter combination is shown in Figure VI-105.
A typical layout is shown in Figure VI-107.
Page 353
Chapter VI
Figure VI-105: UASB- Trickling Filter Process Diagram
Page 354
Chapter VI
Figure VI-106: Location of Proposed Wastewater Treatment Plants in Sialkot City
Page 355
Chapter VI
Figure VI-107: Typical layout for UASB-Trickling Filter Treatment Plant
CC.
Component 3 – Operation and Maintenance Facilities and
Equipment
439. For long-term operation and maintenance of the infrastructure to improve the water
supply, sewerage and drainage services, additional resources will be required. TMA has
acquired certain machinery and equipment recently especially for the maintenance of the
sewerage system, however keeping in view the volume of services, expected extension and
expansion of services and innovative technologies being proposed, additional resources will be
required. The additional resource requirement was identified in consultation with TMA Sialkot
including workshops, stores space and equipment/machinery requirements, control room
equipment for surveillance, safety equipment, equipment and machinery for maintenance of
sewers and the water supply system etc. A detailed breakdown of operational resource
requirement is presented in Table VI-108
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Chapter VI
Table VI-108 - Operation and Maintenance Facilities and Equipment Requirements
S.No
1
2
Description
Stores
CENTRAL STORES, Space 5000
Sft
Ancillary works for main Stores
Quantity
Unit
1
No
1
No
Unit Price
US $
Amount in US $
70,000
70,000
18,000
18,000
Sub Total 1
88,000
Workshops
VEHICLE GARAGE, Space
5000SqFt at Central place
1
2
3
Construction Cost
Sub Garage / Service Station for
Vehicles Place Space 3000SqFt
each.
TOOL, EQUIPMENT &
MACHINERY for:-
1
No
5
No
4
(main garage)
1
No
5
(Sub. Garage / Service Station )
5
No
60,000
37,790
22,675
113,375
23,255
23,255
11,630
58,150
Sub Total-2
232,570
CONTROL ROOM
1
Equipment
1
No
40,000
Sub Total-3
1
Operational / field Vehicles
Pickups
40,000
40,000
10
No
10,000
Sub Total-4
100,000
100,000
1
CCTV especially for inspection of
sewers and other confined spaces
fitted in the Mobile Van along with
accessories etc.
1
No
2
Wastage / Leakage Control Unit
including noise correlator,
hydroscopes with accessories etc.
4
No
3
Desilter equipment for sewer
cleaning (Dragline with winches.
4
No
4
GPS equipment 525 each
10
No
28,000
28,000
7,000
28,000
18,000
72,000
525
5,250
Page 357
S.No
5
6
7
8
9
10
11
12
Description
Energy analyzer for electricity
monitoring with required
attachments and clamp on. (Micro
VIP-3)
Fully automatic self-priming
dewatering sets (150mm/150mm)
preferably dues engines /
equivalent and Skye pumps /
equivalent with head 20m and flow
300M3 per hour, wheel mounted
for black spots & Sewer/ drains
deficient areas.
Under pressure drilling & Tapping
Machine for Service connections
with straps & ferrules etc.
Trenchless Horizontal directional
drilling Machine with accessories
etc.
Safety equipment for working in
confined spaces, i.e., Multigas
Detectors, Rapid Flow Breathing
Apparatus, Jet Flow Air Mover,
Man winches etc. + safety signs
Personnel protective equipment
(lump sum)
Office Space for TMA Sialkot ;
Space 45000 sq. feet
Nominal sum for operations IT
(lump sum)
Sub Total-5
Chapter VI
Quantity
Unit
6
No
8
No
6
No
2
No
2
No
1
No
1
No
1
No
Unit Price
US $
Amount in US $
7,000
42,000
36,000
288,000
1,200
7,200
100,000
200,000
50,000
100,000
150,000
150,000
500,000
500,000
100,000
100,000
1,520,450
Total
1,748,450
Land Acquisition and Resettlement Issues for Proposed Wastewater
Treatment Plant Sites
(i)
Wastewater Treatment Plant 1 (WWTP-1)
440. The proposed project impacts on 15 acres of agricultural land, 4 Tube-wells and 2
farmhouses. It was assessed by the PFS that presently the land is used for agriculture and
owned by 8 families. Apparently, it is agricultural land but has more commercial value due to its
location in the vicinity of Sialkot city. There were instances that the owners were given a
reasonable offer for the sale of land but they are reluctant to sell as the value of land is
increasing with the passage of time. The tube-wells belong to four (4) families and are used for
irrigation purposes. Moreover, the farmhouses are owned by two (2) families and usually the
people are keeping cattle there during the daytime. Five (5) families have their sole income from
farming while three (3) households have alternate sources of income such as managing
businesses and doing a government job. Five families are residing in their land adjacent to
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affected land, named as Nai Abadi Gujjran Phulerwan. During consultation, people shared their
views, which are discussed below;





(ii)
People are not willing to give their land, as they intend to keep it for commercial
purposes; they have already refused to various businessmen to sell their land.
They were concerned that the land rate as per replacement cost basis, will not be
provided to them, as the government always proposes a lower value.
The prevailing market rate is Rs. 8,000,000/acre and the Government will not
compensate them accordingly. In this case they will not have any option, as the
government is more powerful and can enforce its decision.
The project will have a negative impact on the surrounding areas. It will make it
difficult to survive in the presence of bad smells, making their lives more miserable.
Hence the project should be implemented away from the population centers.
They are keeping the cattle and the project will deprive them of their livestock and will
affect the land on which they are feeding their cattle.
Wastewater Treatment Plant 2 (WWTP-2)
441. The proposed project impacts on 5 acres of agricultural land and 3 residential structures.
It was assessed by the PFS team that presently the land is used for agriculture and owned by 6
families. Apparently, it is agricultural land but has more commercial value due its location in the
proximity of Sialkot city. There are the instances that the owners have sold the land on
commercial basis at as much as Rs. 24 Million/acre. The families have multiple income sources
like businesses in the city but mainly rely on this piece of agricultural land growing vegetables
which gives them give them a good profit seasonally. During consultation, people shared their
views, as discussed below;







(iii)
People are not happy to give their land, as they intend to keep it for commercial
purposes and to grow profitable crops, especially vegetables.
They are of the view that the government always offers a low rate, which is not
acceptable to them.
They are ready to go to court for a stay order and will not allow the government to
acquire the land;
The project will result in very adverse impacts on their livelihood due to the loss of
commercial land and profitable crops;
It will be difficult to survive in the presence of a bad smell; eventually the life of
surrounding areas will be more miserable.
The prevailing market rate is Rs. 24,000,000/acre and Government will not
compensate them accordingly;
The Government should shift the project away from the population centers or reduce
the size and limit it to Nullah Aik only, i.e., near the disposal station.
Land Acquisition, Resettlement and Rehabilitation Cost
442. The cost of land acquisition and resettlement was worked out based on the replacement
cost of the affected land and structures as required under SPS SR2, Para 10. For this purpose,
the market survey was carried out in order to reach the market based unit rate to be paid to the
Displaced Persons (DPs). However, the rates need to be confirmed during the feasibility and
detailed design stage. Total resettlement cost worked out for WWTP-1 is Rs.121 million including
0.4 million for the restoration of livelihood. For WWTP-2, the cost is Rs.122 million including 0.3
million for the livelihood rehabilitation cost.
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(iv)
Chapter VI
Mitigation Measures for Negative Impacts
443. The mitigation measures are proposed based on the typology, extent and quantum of
impact of the project. The mitigation measures are proposed to normalize the adverse impact of
the project on the displaced persons. The following actions are recommended to address and
mitigate LAR impacts.









Explore all possible design alternatives and select the one that avoids LAR impacts,
and if avoidance is not possible, minimizes the LAR impacts.
Consult all types of affected persons, including squatters, encroachers and landless
people and agree on compensation and resettlement options, which ensures
livelihood restoration and shifting of temporary or fixed structures out of the corridor
of impact (COI) and right of way (ROW).
Establish a land acquisition and resettlement unit (LARU) within the EA (project
management unit and project implementation units), engage land acquisition staff,
resettlement specialist, male and female social mobilizers to undertake consultation
with DPs about the project benefits, impacts and mitigation measures including
compensation and Restoration & Rehabilitation support.
In case the negative impact is unavoidable, prepare the land acquisition and
resettlement plan that elaborates the consultation & disclosure, legal framework,
eligibility & entitlement, compensation & rehabilitation plan and payment procedure,
institutional arrangements, monitoring and reporting framework and time bound
action plan.
Undertake capacity building of the EA to cover all Land Acquisition and Resettlement
(LAR) planning and implementation needs for the duration of the Project, both at
Project Management Unit and at Project Implementation Unit (PIU) in the field.
The impacts are significant in nature for the WATSAN component, but the numbers
of displaced persons are less than 200. Hence, the LARP of category “B” as per
involuntary resettlement is required in case the numbers of displaced persons are
less than 200 or 25 families, here in both the cases the total number of families is 13,
(8 for site 1 and 5 for site 2), and so two separate LARPs of category B will be
prepared.
Meaningful consultations should be conducted with the entire DPs throughout the
project cycle;
The interest of vulnerable groups including the female headed households should be
fully incorporated in the project;
DPs should be provided assistance in terms of relocation, livelihood disturbance and
vulnerability allowance in case their income is falling below the OPL (official Poverty
Line);
444. Detailed socio-economic and impact assessment survey is required at feasibility level to
assess the extent of impact of the displaced persons
Options for Water and Sanitation Management in Sialkot
445. To have an efficient water supply and wastewater institution in Sialkot, it has to be
managed as well as any commercial business organization. The water/wastewater institution has
to escape from the vicious cycle of low revenue leading to shortage of consumables and
equipment and low remuneration of staff which leads to poor standards of service leading to
even lower collection rates for tariffs and stronger resistance to tariff increases. There are certain
key issues that need to be considered for the organizational design of a water and sanitation
institution in Sialkot. The first is focused on the management of the water cycle with regard to
integrating or separating the water supply, sanitation and sewerage/wastewater functions and
whether this should be managed within the context of a geographically defined area or whether
the utility should simply be focused on an urban or rural district.
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446. The second issue considers centralization vs decentralization. Centralization provides
absolute control, ensuring adherence to policies and enabling the use of common standards.
However, decentralization provides flexibility to meet changing needs at the local level. Within
the decentralization argument is the specific question as to whether urban water supply and
wastewater should be a sub-section of the TMA/Municipal Corporation or whether it should be a
separate utility. What makes water supply different from other businesses is that abstracting,
treating and distributing large volumes of potable water will almost certainly remain a monopoly
institution under the influence or regulation of government. However, within that monopoly
provision there is a whole spectrum of choice.
447. Some activities may be outsourced to allow the water supply/wastewater section of TMA
to focus on its core business activities, provided that outsourcing yields appropriate efficiency
gains that benefit both the utility and the customers. The outsourced activities may include billing
and collection, vehicle maintenance, meter reading (if installed in future), tube well maintenance,
service installation, repair of leaks in the distribution system, treatment plant operation, security
services, and cleaning services. Another possibility is that the TMA (or its water/wastewater
section) should be seen as water wholesalers only. Licensed vendors or community associations
become more formally involved as water retailers - taking responsibility for greater or smaller
parts of the distribution system as they are able. A single 'community water meter' simplifies the
institution's work with a water community taking responsibility for all losses, illegal connections
and tariff collection beyond that point. Within this whole approach is the assumption that
consumers will pay a sufficient tariff for financial viability of the institution and/or that where there
are subsidies they are deliberate and measurable rather than simply the result of poor
management.
448. Private sector participation (PSP) is in vogue and very political. The softest forms of
genuine PSP may be a service contract and a management contract, in that order. Build–
operate–transfer (BOT) and build–operate–own (BOO) arrangements for the production of
treated water in bulk for a utility have been popular. The issue here is the take-or-pay provision,
which must be agreed on so that the utility and the private contractor both get what they want. In
Asia, only one of the four concessions in Manila and Jakarta might claim success in PSP. Still,
governments should send clear signals to prospective private operators through policies that
unequivocally state the government’s position on the use of PSP in the water supply sector. If
PSP is involved, a regulator must first be appointed. The creation of a new water utility agency/or
authority like WASA is another option. However, this approach is not encouraging based on the
experience of the Punjab WASAs where the agencies are currently working under respective
development authorities, facing challenges such as dependency, political interference and a grim
fiscal situation, leaving them unable to meet their operating requirements.
The Punjab
government is already proposing institutional reform to transform WASAs into independent
entities to be governed by an independent Board of Directors110.
449. A major role of Government is to establish opportunities, effective incentives and
appropriate polices to promote the mobilization of private resources in the course of
development. The process of private sector involvement should not be subject to strong
pressures towards fast privatization of distribution systems but to experiment with two or three
pilot programs before moving forward. Following from this, the 'revolutionary' solution currently
fashionable is 'privatization' - selling off the entire water sector to private individuals and financial
institutions. An evolutionary solution is to introduce an institutional development program, moving
towards greater financial and managerial autonomy whilst remaining under government
ownership. These processes can ensure a steadier progress that may avoid big social problems
and give better resources allocation although they will also imply higher tariffs reflecting the real
cost of water services.
110
Punjab Urban Development Sector Plan 2018 – Enabling cities to be engines of growth
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(i)
Chapter VI
Proposed Approach to Establish Sialkot Water and Sanitation Company
450. Considering the ‘evolutionary’ approach discussed above, ring-fencing the utility by
making it a state owned company is a first step towards autonomy. This may be achieved
through the creation of a new body, the Sialkot Water and Sanitation Company, under Section 42
of the Companies Ordinance 1984. This body would have full responsibility to construct, operate
and maintain water and sanitation services in the declared urban areas of Sialkot City. This
practice is already happening in Pakistan and examples include the Water and Sanitation
Services Peshawar (WSSP), North Sindh Urban Services Corporation (NSUSC) and solid waste
management companies in Sialkot and Lahore.
451. The current Tehsil Municipal Administration of Sialkot can entrust its water and sanitation
function to a Sialkot Water and Sanitation Company under sub clause 2 of clause 54 of the
Punjab Local Government Ordinance 2001.
452. Similarly, the Municipal Corporation of Sialkot, the successor of TMA Sialkot, can also
entrust its water and sanitation function to a proposed Sialkot Water and Sanitation Company
under the sub clause 2 of clause 87 of The Punjab Local Government Act 2013. The sub clause
reads as ‘The Metropolitan Corporation and a Municipal Corporation may entrust any of its
functions to a person, an authority, agency or company through a contractual arrangement, on
such terms and conditions as may be prescribed. The proposal is that the new company will
have its own senior staff and will take over operational staff from the TMA. Figure VI-109
provides an outline of the technical and management staff required for a Sialkot Water and
Sanitation Company. The proposed company would be aligned to the Tehsil Municipal
Administration Sialkot or its successor the Municipal Corporation Sialkot. As discussed above
the new Punjab Local Government Act 2013 has a provision in this regard and the company
would be an executive arm of TMA Sialkot or its successor the Sialkot Municipal Corporation.
The company may extend its operation in other geographical areas by entering into a contract
with neighboring Municipal Committees and the District Council of Sialkot. The Memorandum of
Association (MoA) and Articles of Association should have this provision where company can
expand its operations in other geographical areas.
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Chapter VI
Figure VI-109: Proposed Organogram of Sialkot Water and Sanitation Company
Page 363
Chapter VI
453. The technical and professional management staff will be competitively recruited from the
market and tasked to improve service delivery. Incentives will be better aligned with performance
and designed to reward results. The finances of Sialkot Water and Sanitation (SWSC) will be
ring-fenced, rigorously audited, and not intermixed with TMA/Municipal Corporation’s financial
accounts, thus allowing management to better track service delivery costs and revenues
(ii)
Alternate approach for the management of Urban Services in Sialkot
454. An alternative approach to improving the management of municipal services in Sialkot is
to create an Urban Service Company for urban water supply, wastewater, and solid waste, under
the section 42 of the Companies Ordinance 1984. The proposed Sialkot Urban Service Company
(SUSC) will aggregate the TMA/Municipal Corporation’s (successor of TMA) urban water supply,
wastewater, and solid waste operations under a single company to achieve economies of scale
and share the overhead costs of support function (Management, HR, Finance etc.). With the
separate utility for water, wastewater and solid waste, the indicative HR is 66 and with one utility
it comes down to 49.
455. A single Urban Services Company and Board of Directors will facilitate the
TMA/Municipal Corporation, local government department and the urban unit, they have to
coordinate and regulate the performance of only one company. North Sindh Urban Services
Corporation (NSUSC) and Water and Sanitation Services Peshawar (WSSP) are examples of
similar initiatives in Pakistan where urban water supply, wastewater, and solid waste operations
are under a single utility. Under the proposal for Sialkot Urban Service Company (SUSC) we
recommend a separate General Manger, responsible for planning and operations of water,
wastewater and solid waste. Figure VI-110 elaborates the Sialkot Urban Service Company’s
organization structure.
456. Like the Sialkot Water and Sanitation Company (SWSC), the technical and professional
management staff will be competitively recruited from the market and tasked to improve service
delivery. Incentives will be better aligned with performance and designed to reward results. The
finances of the company will be ring-fenced, rigorously audited, and kept separate from
TMA/Municipal Corporation’s financial accounts, allowing management to better track service
delivery costs and revenues.
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Chapter VI
Figure VI-110: Proposed Organogram of Sialkot Urban Services Company
Page 365
DD.
Chapter VI
Summary of Costs
457. Table VI-111 provides a summary of costs for the works being undertaken during the
medium term plan.
Table VI-111 – Summary of Costs for Medium Term Development Plan
Component
Cost Estimate
PKR (mill)
USD (mill)
1.1 Rehabilitation of Existing Water Supply
Infrastructure
501
5.01
1.2 Provision of New Water Supply Infrastructure
216
2.16
1.3 Development of DNI Zones and NRW Program
152
1.52
2.1 Sewerage and Drainage Rehabilitation
306
3.06
2.2 Construction of Trunk Sewers and Sewerage
System Extensions
1531
15.31
2.3 Construction of Sewage Treatment Plants
2608
26.08
Component 3 – Operation and Maintenance
Facilities and Equipment
215
2.15
TOTAL
5529
55.29
Component 2 – Sewerage and Drainage
Infrastructure
EE.
Implementation Schedule
458. Figure VI-112 below indicates the implementation schedule for the works to be
constructed under the medium term development plan.
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Chapter VI
Figure VI-112: Implementing Schedule of Medium Term Development Plan
Sialkot: Medium Term Infrastructure Investment Program
Water Supply, Sewerage and Drainage Sector
Implementing
Entity
PICIIP MFF Process
Financing CoCommitments
and Budget
Source
Expected Financing Total Medium
Expected Loan Expected Loan
Required in Longer Term Financing
Disbursement in Disbursement in
Term after Year 5
Requirement
Years 1 - 3
Years 4 - 5
to Year 15
(US$)
GoPb
2016
Indicative
Amount (US$)
500.00 million
PPTA Procurement
PPTA Implementation
Q1
Q2
Q3
2017
Q4
Q1
Q2
Q3
2018
Q4
Q1
Q2
Q3
2019
Q4
Q1
Q2
Q3
2020
Q4
Q1
Q2
Q3
Q4
MFF Approval
Sector Component
MFF Loan Negotiations
MFF Implementation
Water Supply Interventions
SMC/SWSC
7.74
1.935
19.51 million
9.675 million
29.185
SMC/SWSC
8.32
8.32
16.64 million
18.12 million
34.76
SMC/SWSC
7.824
18.256
26.08 million
26.08
2.15million
2.15
Water Supply Feasibility Assessment
Water Supply System Final Design
Procurement
Provision of new water supply Infrastructure
Rehabilitation of Existing Tubewells
MFF Approval
Installation of SCADA System
Replacement of Old Distribution Network
Rehabitation of Fateh Garrh System
Rehabilitation of OHRs
Development of DNI Zones and NRW Program
Sewerage Collection System
Collection System Feasibility Assessment
Collection System Final Design
Sewerage Maintenance Equipment Procurement
Procurement
Upgrading/New Trunk Sewers
Extension into unserved areas
Provision of sewerage connections
Sewage Treatment and Disposal
MFF Approval
Unblocking of Trunk Sewers
Sewage Treatment Feasibility Assessment
Sewage Treatment Final Design
Procurement
Rehabilitation of Disposal Staions
Land Acquisition for Centralised Treatment Facilities.
Construction of Secondary Sewage Treatment Plant
Commissioning and Operations
Tools and Equipment
SMC/SWSC
2.15
Procurement of Water & Waste Water Management Tools & Equipments
Sector Support Programs
SMC/SWSC
XX.X million
Institutional Support Program
Public Awareness and Engagement Program
Legend: GoPb=Government of Punjab, MFF=Multitranche financing facility, PPTA=project preparatory technical assistance, Q=quarter (three-month period), US$=United States dollar, SWC=Sialkot Municipal Corporation, SWSC=Sialkot Water and Sewerage Company
Page 367
FF.
Chapter VI
Sector Assessment - Transportation Planning
National Transport Policy
459. The urban transport sector development vision pathway at the national level is driven by
the objective of improving accessibility, affordability, reliability and safety while optimizing the
road network and the management resources of the host city. In this respect, a general transition
from a broadly unregulated urban transport system to one of regulated competition is to be
anticipated. This has been stated by the National Government in order to achieve the overall
national vision as is summarized as follows:
Provide a safe, reliable, effective, efficient, affordable, accessible, equitable, sustainable and fully
integrated transport system that will best meet the needs of freight and passenger access and
mobility requirements and will be aimed at improving levels of service and cost effectiveness in a
fashion that supports the Government’s goal of increasing public welfare through economic
growth, social improvement, poverty alleviation and infrastructure development while being
environmentally and economically sustainable and energy efficient.
Source: National Transport Policy, Draft VIII, NTRC, 2009. Ministry of Communications, Government of
Pakistan.
460. For Sialkot, this means a formal urban transport plan which is to be the basis upon which
the future urban transport sector will be planned, financed and managed via contracts or
concessions awarded and supported by Government. This formal plan and subsequent transition
to a modern urban transport system is to be underpinned by the nominated seven policy
dimensions of (i) efficiency in the form of large buses 111 serving improved urban corridor
conditions and modern operational principles (including seamless intermodal transfers)
prevailing, (ii) equity and poverty alleviation which provides targeted benefits for those sections of
the urban population on both a spatial and modal priority basis, (iii) safety and security for all, (iv)
supporting urban development in accordance with internationally recognized processes and
urban form, (v) providing opportunities for employment, health and social benefits so the cities
can grow and prosper, (vi) providing adequate incentives for compliance with rules and
regulations and where needed, the appropriate enforcement, and (vii) providing adequate
supporting institutional infrastructure to deliver the above policy dimensions.
461. As part of these improvements, municipal bus terminals are to be modernized, made
more attractive and better organized with gender considerations. Connecting local bus or coach
services and quality facilities for passengers (i.e. shelters, waiting rooms, and toilets) shall also
be provided as part of this policy position.
462. In accordance with international best practice, the above policy pathway will require a
packaged approach since no single intervention (of itself) will achieve the holistic improvements
being sought. For this reason, a number of complementary investment packages which are
tailored to each city circumstances will need to be implemented to drive any future urban
transport MCIIP investment strategy. Furthermore, these investment packages will need to be in
harmony with the following Provincial plans in order to ensure ongoing support for
implementation and beyond.
Punjab Government Urban Transport Policy
463. In accordance with the observations of the Punjab Urban Development Sector Plan
2018112, the cities in the Punjab face many challenges both now and in the future. Among these
shortcomings are inadequate infrastructure and urban management capacities to meet current
111
Smaller public buses and jitney/Qingqui vehicles exist in many urban areas. The National Policy recognizes
this and acknowledges the possibility for some of these to be “mainstreamed” as a complementary mode for
the larger capacity fleet being introduced.
112
Government of Punjab, 2015.
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Chapter VI
and future needs. These challenges are further tested with the ongoing rural-urban migration and
resultant uncontrolled urban sprawl which is (often) not in accordance with the underlying
principle of the Punjab Growth Strategy of “density” and “agglomeration”. As has been
recognized at the Provincial level, dense multi-function urban areas create jobs, are free from
barriers to entry and exit; and attract investments, which results in ongoing economic growth and
prosperity. For these benefits to be realized, they also require an efficient, well managed and
financed urban transport sector. Such is the objective of this component of the overall MCIIP.
464. In harmony with the National Policies and the Millennium Development Goals, the Punjab
Growth Strategy 2018 has set a focus on accelerating economic growth and improving social
outcomes for all its residents. Nominated objectives include (but are not limited to), achieving an
8% GDP growth by 2018; increasing annual private sector investment in the local economy and
(at the broader level); achieving sustainable development goals by 2018.
465. With the majority of the population under the age of thirty and an urbanization rate of
40%113, there is both an obligation and an opportunity to capture innovation in a number of
areas. In the context of urban transport, a quality urban mobility plan for urban areas will help
residents access the opportunities being created in the cities and this will help create additional
confidence from the private sector that improvements are indeed occurring. Then the appetite for
increased private sector investment will manifest itself in increased GDP levels.
466. One of the nominated priority areas for public investment is public transport as per the
following:
“Priority areas include: providing adequate public transport via well-connected network of mass
transit such as Metro Bus as well as conventional buses to improve the mobility of people. An
endeavour shall be to make the transport convenient for the poor.”
Source: Punjab Growth Strategy 2018.
467. With the increasing effect of globalization on urban centers, the need to remain within the
global economy is becoming more of a priority with each passing year. As key engines of
national growth, the cities of Punjab have a proud history of contributing to Pakistan’s exports.
The emerging CEPEC initiative is an important addition to this opportunity as it helps improve the
links with international markets. Sahiwal is located adjacent to N5 which is planned to be a link
within the broader CEPEC strategy. For the urban population to take full advantage of the
benefits CEPEC and other investments will bring, an efficient and sustainable urban mobility
sector is considered a basic requirement. In this context, the above highlighted policy position is
a wise reflection of this need.
468. For ongoing reference and investment co-ordination, Table VI-113 lists the relevant urban
transport sector outputs, indicators and an indicative timeline for implementation. These have
helped inform the development of the investments developed as part of this project TA.
Table VI-113: Urban Transport Sector Outcomes and Outputs Most Relevant to Sialkot
Outputs
Indicators
(relevant to
(relevant to Sahiwal and Sialkot)
Sahiwal & Sialkot)
Outcome 1: “ improving accessibility by public transport”
1.2 Improved capacity
1.2.3 Number of Buses included in the fleet
and quality of existing
of Sahiwal and Sialkot
public transport system
1.3 Transit and travel
1.3.2 Number of Intercity Bus Terminals to
facilities improved
be Improved
Outcome 2: “ Ensure safe journey for the commuters”
113
Years (relevant to Sahiwal & Sialkot)
2014/15
2015/16
2016/17
2017/18
(tbc)
(tbc)
(tbc)
2
Source: Punjab Cities Investment Program. GHK and The Urban Unit.
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Chapter VI
2.1 Public Service
2.1.1 Percentage of vehicles inspected and
43%
50%
60%
70%
Vehicles
(PSVs)
certified against the total vehicles. (This will
(tbc)
(tbc)
(tbc)
(tbc)
checked for safe journey
apply to buses for the short term).
Outcome 3: “Improve planning for public transport system and better regulatory and service delivery regime”
3.1.1 Master Plan Studies for major cities of
(tbc)
the province conducted
3.1 Improved planning
3.1.2 Number of Feasibility Studies/ Route
for public transport
Planning and Realignment Studies of
(tbc)
system
selected cities conducted
3.1.4 Planning wing established in each
Continuous
division headquarter
Source: Punjab Urban Sector Development Plan 2018. Note: tbc = to be confirmed during the MCIIP process.
469. In the context of the policies of both the National and Provincial Governments, the
relevant issues of interest for the Sahiwal and Sialkot MCIIP are discussed below.
City of Sialkot Opportunities
470. With a population of approximately 900,000 and an annual growth rate of approximately
2.2 %, the economy of Sialkot is derived from the manufacture and export of sports goods,
gloves, surgical instruments, sportswear, cutlery, ceramics, and leather garments etc. It has
Pakistan’s only privately funded and operated international airport for this purpose and is
successfully operating the Sambrial dry port. Consequently, it has a very robust manufacturing
industrial hub base.
471. Congestion is growing within the urban area. Nearly all primary roads and some of
secondary roads, which carry significant traffic volumes, are dual carriageways with substantial
road width, narrow central medians and footpaths. As is common in urban centers in Pakistan,
the footpaths are generally encroached and are rarely available for pedestrian use. The
omnipresent disorganized and opportunistic curbside parking and absence of adequate traffic
management / control measures results in significant traffic congestion for much of the day. This
is particularly the case in the old parts of the city where major commercial activity is
concentrated.
472. The nearby towns of Pasrur, Wazirabad and Chawinda are served by existing bus
services extending beyond the Sialkot urban area along key south, east and west arterials. As
such, these routes provide a basis for an improved urban public transport system to be
developed. When combined with an upgrading of the existing bus terminal and complementary
improvements to the key urban corridors, a significant improvement to the urban transport sector
can be realized.
Capturing the Opportunities for Sialkot
473. As per the context of Sialkot (above) and other cities in Pakistan, the success of multi
project investments in city public infrastructure is best achieved when the fundamental objective
of the investment is both fully appreciated and becomes the focal point for the investment. The
Key Performance Indicators (KPI) agreed at the outset and then adopted as the driving force for
investment, management and ongoing monitoring of the performance of the sector help to deliver
successful outcomes. This is a start to the concept of a “Smart City” approach.
474. For Sialkot, the impending problems of significant congestion and the resultant negative
impact on the economic base and competitiveness of the city can largely be averted if a
proactive approach to addressing the needs of the urban transport sector is undertaken. For
many well managed cities internationally, this is a standard which is well recognized and
adopted. For Pakistan, while there is a desire to improve the urban transport sector, the
challenge is greater as at present, the sector is largely unregulated and the capacity of
Government to engage with and secure the support of the general public is less.
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475. Despite these challenges and limitations, with timely interventions, the task of managing
the urban transport sector in a financially, socially and environmentally sustainable manner (in
accordance with National and Provincial policies) will be made materially easier. This is part of
the reason for the sector MCIIP. As per the circumstances for Sahiwal, with the imminent
creation of the Municipal Corporation, there is a unique window of opportunity to begin
preparations for the interventions as part of the new institutional arrangements being ushered in.
This is irrespective of the role the RTA may play in the short, medium or long term. For the future
of Sialkot, it is very important that this opportunity is capitalized upon.
Strategic Context
476. For the urban transport sector, the key National and Provincial priorities for Sialkot and
Sahiwal are first and foremost to (i) promote and assist in the economic growth and (ii)
deliver improved social outcomes for the residents.
477. For Sahiwal, a relatively small city and an agrarian based economy is nevertheless, well
planned with a grid pattern urban road network. It does not have a formal public transport system
and with growing rates of private motorization, the current traffic conditions will worsen over time.
With the imminent establishment of the Municipal Corporation, there is an opportunity to begin to
focus on the city at the local level and facilitate the transition to an urban transport sector, which
is properly planned and managed in the interests of future mobility needs of all residents.
478. As can be readily appreciated, to maintain and even enhance competitiveness in the face
of growing international competition, cities need to reduce the cost of doing business. An efficient
and a well-managed urban transport sector is one of the measures which will contribute to this
need. In this respect, the ability to ensure trip travel times are reliable and not overly excessive,
will encourage additional investment and will help drive the philosophy of the engines of growth.
For this, there are a number of guiding sector performance components to be met. Achieving
these will reinforce the paradigm shift to a “Smart City”.
Components of a Smart City
479. From an urban transport sector perspective, the five essential components considered
most relevant in the context of this project are as follows. In addition, this list also indicates the
order of implementation to achieve success. From this, it can readily be seen that such a
transition will not occur without a sustained commitment to the components of a master plan and
complementary Road map, especially the aspects of governance and management.
480.
The essential components are:
 A City, which has a sector Master plan, and a Road map for implementation - to
help guide the path through to a liveable, resilient and a competitive future.
 Public buy-in of the sector Master plan and a Road map – need to see the
benefits in order for acceptance and elimination of a political opposition, which will
often kill good intentions. This will encourage on going compliance.
 Staged smart technology – it has to be introduced in a phased program, so that the
limited capacity of the government (both financial and human capital) can begin to
cope with the new systems from the outset. This also requires a mind set overhaul in
decision making regarding financial budgeting to accommodate both capital and
operations/maintenance (i.e. capacity development).
 Smart and inclusive management – If management is good, the public will see it as
a new era and are more likely to support it. For this, the city needs to have a simple
set of messages, distributed to those immediately affected and to the broader city
population, so that everyone understands the benefits for everyone. This also
requires a “mind set overhaul” in decision-making and project operations,
management and maintenance (i.e. capacity development). This is essential if the
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public is to begin to support and work with the government for a Smart City or
continue to oppose and drive it down to a “Dumb City” status.
Smart and inclusive governance – policies and procedures which are focused on
out-comes, are relevant for the challenges being faced by the city and are both
practical and achievable within the nominated time-frames.
481. While these components may appear simple to
materialize, it remains an ongoing challenge for many cities.
Understanding the nature of these challenges is an important
step in being able to overcome them. For Sahiwal, and
Sialkot, the principle challenge is that of governance. In this
context, sustainable policies, supporting the Master Plan and
a road map to help the city government achieve success is
the largest hurdle. The impending inauguration of the
Municipal Corporation or a revamped Regional Transport
Authority provides a unique window of opportunity to address
this governance issue and should not be missed.
482. Then when the governance is all sorted, the
management of the system is the next largest challenge. As has been observed, rules are
generally not being adhered to and adequate maintenance of the infrastructure is lacking. For a
sustainable urban transport sector, both compliance and an on-going maintenance are
mandatory. In the Pakistan context, management of these matters is therefore the major
challenge going forward.
483. Once these have been addressed, the additional two components of technology and
finance are relatively simple to implement. In the case of the latter, with good governance,
proven management practices, the appetite for the private sector investment, and indeed IFIs will
increase.
484. In well-managed cities, the vision often applied is that ultimately the road network in the
city performs to its optimum capacity. To provide for this, the cities often recognize a policy of
passenger modal priority which is (i) non motorized, (ii) public transport and (iii) private
transport – in that order. Such a priority is in accordance with the international best practice and
is founded by the knowledge that “a city cannot remove congestion by simply building more
lane kilometres in the network”. This is supported by the image in Figure VI-114 where it
shows clearly that the high capacity vehicles can dramatically increase the carrying capacity of
road lanes and therefore reduce congestion, without the need for additional traffic lanes. This is
the basis of the internationally recognized paradigm of “move people not cars”
485. To deliver and maintain the status of a Smart City, and in accordance with the above
discussion, the following vision and strategy components for both Sahiwal and Sialkot will need
to be accommodated in any Road map going forward.
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Chapter VI
Figure VI-114: Passenger Capacity of Lanes per Mode
Internationally recognized standards for lane
capacity. The objective here is to
“move people – not cars”
The yellow bus in the BRT lane above can carry nearly all
those persons from the private cars (average occupancy
of 1.2) in the adjoining three lanes.
The objective here is to “move people – not cars”
Sialkot Urban Transport Vision and Road-Map
486. The urban transport sector in Sialkot is measurably worse than that of Sahiwal. From a
review of the past data and the site visits, it is considered that this is due to the higher population,
a higher level of an economic activity, higher vehicle volumes, poor junction layouts, minimal
traffic management facilities and encroachments which create side friction and often brings the
traffic to a standstill.
487. Moreover, the population is growing at an annual rate of 2.2% and there is an increasing
rate of growth in motorized vehicles from 3.4% between 2005-2010 114 rising to a 10% annual
growth for the 2012-2015 period115. This sends an urgent warning that this trajectory is not
sustainable. Urgent intervention is required.
488. Surveys conducted for the 2010 study 116 found that the public transport vehicles
constituted 10% of the road traffic and yet was able to satisfy 24% of the total passenger travel
demand. This underscores the capacity of higher capacity public transport vehicles to increase
the carrying capacity of the existing roads on the network. For this reason, the priority for
motorized modes should be with the public transport.
Improved Pedestrian Facilities
489. The need for improvements in footpath facilities across the city is considered an
important step in creating a Smart City. This is underscored by the new international standard
that cities are for pedestrians, not just motorized vehicles. For the cities with high levels of traffic
congestion, poor quality fuel, and low levels of traffic management compliance with rules reduces
the suitability for pedestrians. In addition, the declining air quality in urban areas as a result of the
traffic pollution affects pedestrians and roadside vendors the most. In this respect, priority needs
to be given to improving this situation.
114
Sialkot Transport Sector Strategy and Action plan, 2010. GHK Consultants for Urban Unit, Punjab.
See Interim Report: Sialkot Medium Term Infrastructure Investment Plan. CDIA and Urban Unit, 2016.
116
See reference 111.
115
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490. For Sialkot, this will not be an easy task and therefore it needs to be addressed in a
staged and a focused manner. Obtaining willing support from shop owners to retreat back into
their fixed structures, and mobile vendors to desist from plying on the footpath or roadway
adjacent to the curb will require significant and sustained effort – and patience. Figure VI-115
shows the situation in Sialkot at present. Apart from the perceived impact on business (from the
vendor’s perspective), the informal charges collected in return for their continued presence will
also need to be addressed.
491. As can be readily appreciated, these measures require a fundamental mindset change.
Such a change, although necessary, will not be a rapid one, unless there is the commitment from
government to make the change. Although not the “high profile/quick win” outcome often sought
by governments, such a commitment is nevertheless often required as an initial step in creating a
Smart City.
492. When introducing innovation and new concepts, the Smart Cities approach often
develops the relevant policy position on the issue of pedestrian mobility. This then forms the
basis of the development of the citywide plan and helps to drive good practice in design and
ongoing management. For Sialkot, such a citywide concept is also likely to be a significant
challenge for the incoming Municipal Corporation or the Regional Transport Authority117.
Figure VI-115: Kerbside Encroachment in Sialkot
No footpath and encrochments onto roadway
Footpath encroachment
Source: PFS Consultant
493. For this reason, and while in the long term, investment in pedestrian mobility needs to be
on a city wide basis, the Road-map considered to be most relevant for Sialkot in the short term is
as follows:
i.
Design and implement improved pedestrian footpath and corridor crossing facilities
at the selected sections along the pilot corridor. Then based on the lessons learned
and skills developed in both design, implementation and on-going management and
maintenance, proceed to extend these improvements along the entire pilot corridor.
Following this, implementation across other corridors and areas of the city can then
proceed in accordance with the citywide focus of the Master plan.
For the purposes of this Road map, the need for cohesion between the investment
components will require the pilot corridor to be the one where a range of other
“smart” urban transport related investments are being proposed. In this way, the
benefits of each component will complement each other and in the end, the overall
community benefit will be much greater than the sum of the individual benefits. This
117
Institutional responsibility is yet to be determined by ggovernment stakeholders.
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can then result in a smart out-comes. In this respect, the pilot corridor should be the
one where improvements to the public transport, intersections and other
complementary measures are proposed. In the context of this Road map, the agreed
pilot corridor is from General Bus Stand to Pasrur.
ii.
While many images of quality pedestrian facility designs exist across the world, the
design for Sialkot should be practical and tailored to the local conditions in the
corridor. As part of this process, extensive consultation and information sharing
must be an integral part of the process. In this way, a consensus on the benefits to
be gained (for both pedestrians and current encroachers) can be reached. Then with
the experience of the challenges faced in implementation and management of the
project investment, the relevant design and operation manuals can be prepared for
implementation on a citywide basis. Included in these designs is the reference to any
additional traffic signage deemed necessary for implementation.
iii.
Once such a plan has been prepared, the relevant staff at the new Municipal
Corporation or Regional Transport Authority118 can better appreciate the magnitude
of the task ahead. The development of a citywide pedestrian mobility strategy and
plan can then be prepared for approval, funding, implementation and an on-going
management.
494. This is the basis of the pedestrian mobility component of the urban transport Master plan
recommended for Sialkot.
New Bus Services
495. The existence in 2010 of a mode share of 24%119 of all passenger travel suggests a
substantial need for public transport. What is of concern is that as observed during the site
visits, the extent to which motor-cycles were able to weave through the slow moving traffic is
an incentive to purchase and use motor-cycles for both the entire family as well as for
individual travel (see Figure VI-116).
496. Typically, this signals a decline in the market share for the public transport and unless
rapid and an effective intervention measures are followed, the overall viability of the public
transport sector will suffer. This will bring a reduced level of investment in the public transport
(bus, rickshaw and qingqi), resulting in further reductions in demand for public transport.
Congestion will then take over and (potentially) could smother the city.
497. To intercept this downward spiral of events, there is a need to demonstrate a
commitment to the sector. From a government perspective, this requires a range of policy
initiatives, physical improvements to the public transport travel experience, an effective
compliance management mindset and a competent maintenance capability. Typically, these are
aimed at increasing the market share of the public transport sector and in the process (as Figure
VI-114 above demonstrates) increases the passenger carrying capacity of the road network.
These, when combined are essential components of a “Smart Management” of the urban
transport sector.
118
119
Institutional responsibility is yet to be determined by Government stakeholders.
Refer reference 113.
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Figure VI-116:
Chapter VI
Motorcycle Travel Trends.
Motorcycles are for the entire family now
Motorcycles - for the young and adventurous
Source: Consultant
498. In the short term, the 33 km route corridor from General Bus Stand to Pasrur in the south
needs to be the focus of attention for the public transport upgrading. For this corridor (Bus Route
Line 1), detailed plans need to be made for the location of the bus stops and the relevant traffic
signage, lane marking and traffic management initiatives to support the efficient operation of the
12 meter rigid buses which will be plying on the route. For on-going design reference purposes, a
minimum average speed of 12.5 -15.0 km/hr needs to be targeted. This is in order to optimize the
fleet requirements and minimize the operating costs. It is also the average speed, which is
considered within the reach of Sialkot to achieve in the short term120. On this basis, and subject
to it being sufficient to meet passenger demand, a fleet of between 11 and 13 will be required for
service headways of 15 minutes. For service headways of 5 minutes, the fleet requirements for
these speeds will rise to between 33 and 39121.
499. Based upon the experiences and lessons learned from the implementation and
management of this new bus route, a whole of city public transport network strategy needs to be
developed. Such a strategy should draw upon and add to the results of the 2010 Transport
Sector strategy and Action plan and be consistent with the design standards prepared for in the
medium term, when Tranche II of the Road map is being implemented.
500. Based in the results of the discussions with existing operators, the second priority could
be the 48 km route corridor from the General Bus Stand to Wazirabad (Bus Route Line 2) in the
west and to service the 38 km corridor to Chawinda (Bus Route Line 3) in the east. For a 15
minute headway, these two routes will require between 18 and 20 buses for Wazirabad and
between 12 and 14 for Chawinda. Should the average headway be 5 minutes, the respective
fleet requirements will be between 52 and 61 for Wazirabad and between 37 and 43 for
Chawinda. In all of these estimates, a provision for a 10% spare capacity has been allowed.
Priority Measures for Bus Services
501. In relation to an average headway, it is important to appreciate that an average headway
implies buses running to a fixed timetable. Such a timetable is normally present at the bus stop
(see Figure VI-117) and is there to help build confidence in the minds of the passengers that
arrivals at destinations can be relied upon. Once this is apparent, even though the general traffic
conditions are congested, the option of using the bus service as a first choice will become
increasingly the norm. This represents a smart choice by the user of the system and will help
ensure a viable sector into the future.
120
With increasing bus priority measures being introduced over time, average-operating speeds can rise above
15kph.
121
All fleet calculations include a 105 spare capacity.
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Figure VI-117:
Chapter VI
Scheduled Bus Timetable Information at Bus Stops
Passengers and potential passengers are happier if they have ready access to this
timetable information. From the operator’s perspective, it means more passengers.
502. For such a condition to occur, the concept of bus priority needs to be introduced. These
can include simple features, such as pavement markings at bus stops, pavement marking to
forbid kerbside parking, bus priority lanes, signalized bus priority and even dedicated lanes as
per the Bus Rapid Transit (BRT). For Sialkot, a mix of all (but not BRT) is considered warranted
in the short and the medium term (5-15 years). For the on-going planning and design purposes,
examples of bus priority pavement marking can be seen in Figure VI-118.
503. Annex 12 of the Interim Report, lists out the bus –stop and lay-by design, traffic signals
and intersection upgrades for the 10 intersections for the Tranche 1 investment. Accordingly,
these should all be part of the design mindset for the short term quick win investments. Then,
when implemented and being managed in an effective way, the lessons learned can be
incorporated into the designs for the Tranche II set of investments. This will help deliver the
Smart Solutions for Sialkot.
Figure VI-118:
Examples of Pavement Marking for Bus Priority
Kerbside Pavement Marking
Kerbside Pavement Marking at bus stop.
Source: PFS Consultant.
504. The existence of the illegally parked vehicles at the kerbside is endemic across Sialkot.
Removing or relocating them will be a major challenge as (i) shopkeepers may claim they are
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reliant on these for their business, (ii) drivers will claim there is no alternative, (iii) there is a
mindset that it is not practical to park and walk any significant distance to the final destination
due to the absence of or poor footpath conditions. During the preparation of plans for the
upgrading of bus service, Line 1, sections of the corridor should be targeted for clearing to
enable the bus service to operate with minimal disruptions.
505. Due to the sensitivity of the issue, and the general lack of alternatives for the off street
parking, a substantial care and consultation with the community stakeholders needs to be
exercised when developing concepts. Typically, these aspects of the project design take
substantial time, if an inclusive approach is followed. For this reason, the design team should be
prepared to encounter often-lengthy delays in the preparation of such plans.
Secondary Public Transport Services
506. As is the case in Sahiwal, there are a number of sections of the urban road network
where it is not practical to ply rigid 12 meter buses. In these instances, there is a ready market
for the rickshaw and qingqi modes. The whole of the city public transport strategy should
therefore incorporate these modes on the basis of permits for the designated routes and taking
into account the condition of the vehicles.
507. With more detailed analysis in the ongoing development of a Master plan, the details of
the feeder site facilities for the fleet of a secondary network can be prepared for implementation
as well as providing modern general storage and maintenance facilities for these three wheeler
modes. This will help generate support amongst the owners and drivers, lessen the resistance to
change and make it easier for all stakeholders to agree on the way forward. In this way, an
integrated network can be developed, with each category of public transport vehicle, having a
role to play. This is a Smart Way to progress the livelihoods of the stakeholders.
Inter-modal Integration
508. From an urban public transport network perspective, the concept of inter-modal
integration is a new paradigm for Sialkot. It involves, modal and service connectivity under a set
of conditions, which need to be complied with in order to achieve success. This implies
compliance with the pre-agreed operating processes. To date, no such operating mindset exists
within government or the private sector. As such, the concept (when eventually developed) will
need to be introduced in a timely manner and when there is a greater appreciation at the
Municipal Corporation or the relevant Government institution level of the essential ingredients
required to deliver and maintain successful integration.
509. Ultimately, the vision for Sialkot provides for the private vehicles to be parked at the
designated and secure parking lots. From these sites, both private vehicle drivers and
passengers continue their journey by the public transport. Typically, this is known throughout the
world as a “Park and Ride”. Figure VI-119 shows aspects this concept.
510. Other inter-modal integration in the vision for Sialkot involves, three wheeler rickshaw
and qingqi services, plying short routes on narrow streets to feed to and from the designated bus
network of the future. In the longer term, this may require a reduced number of three wheeler
vehicles in the overall fleet as larger buses replace the three wheelers on the designated Bus
Lines. In this context, Smart Solutions will need to be developed by the Municipal Corporation
going forward.
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Figure VI-119:
Chapter VI
Park and Ride Supporting Investments for Urban Bus Services.
The Park and Ride Concept - Signposted.
Park and Ride Security Requirements.
Summary of Costs
511. As has been discussed in the case of Sahiwal, the preferred business plan has not yet
been considered fully by Government at this PFS stage. A decision on the matter can (and
should) be made only when the full facts of the cost and benefit implications are apparent. For
this reason, the upcoming PPTA will be the vehicle to provide this surety. To assist in this
process, it has been assumed that buses will be procured and operated by the private sector,
under a contract with the relevant Government department. In addition, it has been assumed (for
the purposes of this PFS) that the fares will be collected by the bus company (or a third party)
and an additional “top up” subsidy will be provided by Government.
512. In this context, it is to be noted that at this stage of the process, the fare revenue to be
collected is an unknown quantity and can only be verified by undertaking the relevant passenger
demand surveys. Such an activity (if required) can be addressed in the next phase (PPTA) of the
preparation of the MCIIP. For the purposes of this PFS, and to provide an early indication for
Government, an average bus operating cost of Rs. 200 per km. has been assumed for Sialkot.
This may be higher/or lower than that paid for contracted bus services else-where (e.g. Lahore
and Islamabad) and will ultimately depend on demand.
513. In this respect, and assuming an average five minute headway for a 4 hour peak period
and a 15 headway at other times, an annual 1.55 million service km. may be required for the
initial bus route. At an average total operating cost (including provision for fleet acquisition) of Rs.
200 per kilometer, this will cost approximately Rs. 310.4 million (US$2.94 million). Should a 30%
cost recovery be achieved, the effective annual subsidy required will be approximately Rs. 217.3
million (US$2.06 million) or approximately Rs.140 per km. of service. Should the cost recovery
rise to 60%, the required annual subsidy can be expected to reduce to Rs. 124.2 million
(US$1.177 million) or Rs. 80 per km. of service.
514. For the recommended improvements for rickshaw and qingqi operators, a specific
location plan will need to be developed as part of a city wide route strategy. The plan will provide
a basis for linking the modes together as part of a “seamless” connectivity arrangement for
Sialkot public transport passengers. This should be undertaken as part of the development of the
citywide sector Road map. In this respect, the number and locations of such facilities will need to
be confirmed with additional analysis during the PPTA. However, for the purposes of this PFS, it
is considered that up to 15 feeder sites may be required to support the initial bus route. In
addition, some 12 layup sites may be required across the city.
515. For the rickshaw and quingqi bus feeder sites, a cost of Rs. 500,000 per site (assuming
no land acquisition) could be required for basic signage, curbside build outs, pavement upgrade
and passenger waiting facilities. In this context, a capital cost of Rs. 7.5 million (US$0.071million)
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may be required. In the case of layup facilities, if an average area of half an acre is required per
site and if this needs to be acquired from the private sector then land acquisition will be required.
As has been assessed for Sahiwal, a cost of up to Rs. 40 million per site (US$0.379 million) can
be anticipated. When development of the site (up to Rs. 9 million – US$0.085 million) is taken
into account, an average of Rs. 49 million (US$0.464 million) could be required. Should this be
the case, a total investment approaching Rs. 588 million (US$5.57 million) could potentially be
required.
516. Regarding future park and ride facilities, should there be up to 10 sites required at an
average size of 1 acre, then at an average acquisition cost of Rs. 800.0 million each (US$7.58
million) and a development cost of up to Rs. 9 million (US$0.085 million) per site (sealed parking,
pedestrian walkway, CCTV, lighting etc.), then a total capital cost approaching Rs. 890 million
(US$8.44 million) could be anticipated. If the land to be acquired is currently developed, the cost
could be much higher. In this respect, it is not possible to estimate with certainty as to whether
the sites will be vacant or occupied. In line with the theory of probability, if it is assumed that half
are already developed, then an additional 50% premium on the capital cost may be required. In
this case, the cost for the park and ride facilities could be in excess of Rs. 1,100 million
(US$10.43 million).
517. In summary, these costs – which are subject to confirmation during the PPTA could
amount to Rs. 1,688 million (US$16.0 million) capital cost and an annual operating subsidy of
between Rs. 125 million (US$1.185 million) and Rs. 220 million (US$2.08 million). With additional
analysis during the PPTA, the business case for these required investments can be clarified for
subsequent decision making by Government. At that stage implementation in whole or in part
can then be considered.
Conclusions and Next Steps
518. As is the case with Sahiwal, the transition to a Smart City status for Sialkot will be
ultimately driven by the successful compliance with the components of a Smart City. From the
discussion above, it is readily apparent that a whole of city Master plan for the urban transport
sector is urgently required. The documentation of the Road map, coupled with the securing of a
Master plan champion will help propel Sialkot into a Smart City. The future Road-map (required
to deliver the Master plan) will need to have the relevant institutional responsibilities and
influence to enable the communication and reform strategies to be based on the principle of
compliance rather than the familiar “enforcement” mantra. Part of this capability will be that of
contract procurement for cost based public transport services as well as general maintenance
contracts.
519. For the short term quick win investments, there have been a number of limited and
focused investments listed in Annex 12 of the Interim Report. For many of these, the initial pilot
corridor of the general bus stand to Pasrur will be the focus. These include an upgrading of the
general bus stand which will act as one terminus for the route, improved pedestrian facilities,
signage (roadside and pavement markings), new bus stops and signalized intersections. These
will provide a starting point for improvements to the sector on (eventually) a citywide basis. As is
the case with Sahiwal, the experience gained and the lessons learned from these initial quick
wins will be of great benefit in developing improved procedures for project implementation and
management as the Master plan is rolled out and the status of a Smart City becomes a reality.
520. For the Master plan, it is anticipated that a wider perspective may need to be adopted,
where additional road lanes are added to the urban network. With the broad urban road network
of Sialkot is a radial arterial one, this essentially requires cross-city travel to pass through or
nearby the city center. The resultant traffic congestion is an ongoing problem for circulation within
the city. In some cities, this has been addressed through the ring road approach where
successive ring roads (say at 2, 5 and 10km.) provide a by-pass of the congested inner city area.
Subject to the necessary analysis, such a concept may provide relief for Sialkot in the future.
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However, this will need to be analyzed in depth before a decision can be made on the matter. It
is provided here simply as a concept to consider in the future.
521. In addition, and as the number of signalized intersections grows, the number of bus
priority measures expands and quality pedestrian facilities become the norm (and include
pedestrian malls), ongoing remote monitoring and management will be required. In this respect,
traffic control rooms are created to assist in the task of encouraging compliance across the city.
522. In this respect, and despite the presence of a proactive and committed Chamber of
Commerce, there are many challenges awaiting Sialkot in the urban transport sector. For this
reason, the next step should involve a PPTA, which will help Government generate a greater
understanding of the design and management obligations required during the roll out of the
Master plan for the longer term. In this regard, the institutional strengthening, as an integral part
of Master plan preparation is the next step to be taken. The program as outlined in the flowchart
in Figure VI-120 below are provided for this purpose. This program focuses on implementing the
investments listed in Annexure 12 of the Interim Report as a first priority. In subsequent years,
when the Master plan has been prepared and approved for implementation then the investments
discussed above can be considered.
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Chapter VI
Figure VI-120: MCIIP Road-map Program Sialkot
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Chapter VI
GG. Sector Strategy – Institutional Delivery Mechanisms
Integrating Institutional Development into the PICIIP
523. Institutional capacity - human, technical and financial - is the foundation of sustainability
and the key to developing Sialkot, Sialkot and all Punjab cities into the inclusive, safe, green,
livable, resilient, sustainable and competitive cities that they strive to be. Capacity is determined
by the overall structure of responsible institutions and their working relationships; the internal
structures of the individual institutions; the human, technical and financial resources available to
those institutions; and the degree to which their roles and responsibilities are fully
institutionalized and operationalized.
524. In all sectors and at all levels, including most importantly the overall coordination and
integration of those sectors, it is the institutions that determine success or failure based on how
well they create and integrate policies, prepare strategies, develop detailed plans, implement
those plans and related projects, and then effectively manage those outputs to achieve the
targeted outcomes. Two crosscutting imperatives that have traditionally not been given adequate
attention, but are now essential institutional roles critical to sustainable urban development, are
comprehensive stakeholder engagement and climate change risk management. The importance
of stakeholder participation to define appropriate investments and build ownership is raised
throughout this Report, as is the need to overlay measures to address climate change risks,
vulnerability and mitigating actions on all programs and projects. Investment in institutional
development is a priority.
525. Figure VI-121 illustrates these important linkages. Detailed institutional requirements are
further discussed in each technical section.
Page 383
Chapter VI
Figure VI-121: Institutional Integration into the PICIIP
Page 384
HH.
Chapter VI
Sector Roadmap – Institutional Delivery Mechanisms
Benchmarking
526. Benchmarking is a tool that supports any continuing drive to achieve improvement in
service delivery by measuring changes in organizational outcomes and outputs arising from
improved organizational performance in service delivery. In this way benchmarking enables an
organization such as district or tehsil local government to measure improvement over time. This
is done by comparing performance at any given point against either a) earlier performance as
identified in a baseline survey of key indicators or b) performance of other organizations involved
in a similar set of activities or services.
527. Once current levels of performance are identified a benchmarking exercise will enable
the organization to identify strategies for improving performance and milestones for tracking
progress. Benchmarking will help an organization to identify current performance and
comparative performance in relation to other organizations involved in similar activities. It will
assist in defining strategic actions necessary to deliver required levels of performance and
measured in relation to specific indicators of outcome and output.
Good local governance in Sialkot
528. There are a number of critical elements to improving local governance in Sialkot as
identified in the assessment. Based on our assessment of organizational strategies, structure,
staffing and systems at tehsil level, the study has revealed a number of critical elements of
governance that require improvement. These can be summarized as follows:
528.1. Greater responsiveness of local government to citizens needs and demands
through enhanced public involvement and participation in planning, budgeting and
decision-making. This will require an improvement in participatory planning and
implementation of services.
528.2. Greater efficiency and effectiveness of services by maximizing use of resources
to deliver well-functioning services that increase the overall level of public satisfaction.
This will require an improvement in internal management systems designed to monitor
inputs against clearly established and agreed outputs.
528.3. Greater transparency and accountability to the public by increasing the level of
knowledge and awareness of the actual coverage, quality and cost of service delivery in
relation to what was planned and intended. This will require the establishment of
mechanisms to improve reporting on costs and achievements against targets as well as
mechanisms to respond to public feedback and grievances.
Organizational change for good governance in Sialkot
529. Prior to benchmarking changes in performance it is useful to identify the main dimensions
of` change that need to be addressed in order to bring about sustainable improvements in
services. The main dimensions of change management that would impact upon organizational
performance at tehsil level in Sialkot as indicated in the institutional and organizational analysis
would appear to require a focus on the following:
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Chapter VI
529.1. Improving Customer Relations – Measured against improved customer
satisfaction with service delivery
529.2. Improving Internal Systems Management – Measured against improved
operation of internal management processes (planning, budgeting, service
implementation, monitoring and maintenance)
529.3. Improving Human Resource Management – Measured against enhanced
competency, knowledge and skills of staff
530. There is a strong correlation between these three dimensions of change and improved
performance and overall organizational performance improvement will be substantially reduced if
change is absent in any one or more of the above dimensions.
531. Table VI-122 outlines framework for benchmarking outcomes and outputs arising from
internal organizational changes for each of the main dimensions of good (local) governance in
Sialkot.
Table VI-122: Organizational benchmarking for Municipal Corporations
KEY OBJECTIVES
Improved
responsiveness of
Sialkot Municipal
Corporation
Improved efficiency
and effectiveness
of Sialkot Municipal
Corporation service
delivery
OUTCOME BENCHMARKS
OUTPUT BENCHMARKS
 Improved targeting of services in
line with key deficiencies in
service coverage, volume and
quality
 Annual Development Planning
(ADP) process reflects greater
citizen participation in
identification of local needs and
project selection
 Greater representation of poor
and vulnerable groups in
participatory planning process
 % Increase in new schemes
covering identified deficiencies
and poor groups
 New planning & budgeting
procedures & guidelines being
followed
 Maps prepared identifying key
service deficiencies
 Maps prepared identifying
location of poor and vulnerable
groups
 Mechanisms in place for citizen
monitoring of works and
services
 Grievances and complaints
procedure operational
 Increased % of citizens covered
by municipal corporation
services
 Increased % of citizens satisfied
with municipal corporation
services
 Increased municipal corporation
budget allocation for urban
services
 Increased municipal corporation
budget allocation for
maintenance of services
 % Increase in job specifications
for key posts
 % Reduction in absenteeism
 % Improvement in staff time
keeping
 Clear performance targets
established for key staff
 Regular monthly monitoring of
outputs & achievements against
targets
 Mechanisms in place to reward/
commend staff for good
performance
 Budget allocation for staff
training
 % Increase in no of staff having
received training
Page 386
Improved
accountability &
transparency of
Municipal
Corporation
operations
II.
Chapter VI
 Increased awareness of citizens
of ADP proposals and budgets,
plans & resources (ADP, UCLP,
& own revenues)
 Increased transparency of
project cost and standards
 Improved access to municipal
corporation office and services
 ADP proposals disseminated
 Annual municipal corporation
budgets published
 Increased % of projects/
schemes displaying information
on project costs and
specifications
New Approaches to Organizations and Service Delivery
532. As preceding sections of the report have highlighted there is an urgent need to re-think
the way local government is currently configured and ask the question whether they are fit for
purpose and bring value for money to consumers, customers and citizens in Sialkot. This report
makes the case for introducing a new kind of public management and approach to local
governance and urban service delivery. The following section discusses options for building on
the excellent work undertaken by the Government of Punjab in promoting and launching the idea
of utility companies to deliver solid waste and water supply services. At present water supply and
wastewater management functions rest with the Sialkot TMA and are likely to be moved over to
the Municipal Corporation once established.
533. Significant capital investments are proposed to extend coverage, upgrade decaying
networks, develop wastewater treatment capacity, and sanitary landfill. However, many
performance weaknesses will not be remedied through extensive capital projects alone. Making
the capital investments sustainable requires effective accountability mechanisms and
governance systems as well as operations and maintenance services. There is a need for a
professionalized arrangement for managing water supply, solid waste and wastewater systems in
Sialkot. There is a need for professional management of water supply and wastewater collection
and treatment systems in Sialkot. Efficiency is the key issue in the assessment of existing water
and wastewater institutions in Sialkot since it has been argued that private sector involvement
promotes efficiency. There are many reasons for current inefficiencies in the sector, but poor
governance is the root cause of the issues that beset the water supply sector, particularly in
service coverage, (especially among the poor), prevalence of water vendors, intermittent supply,
collection efficiency, water accountability, Non-Revenue Water (NRW) and the continued
pollution of water bodies in the city. Key causes and impact of poor governance are summarized
in the governance problem tree in Figure VI-123.
534. One of the most important considerations in operation of water and wastewater
infrastructure is autonomy of the utility to manage its business efficiently and competently. Utility
services cannot always avoid political interference but there is a need to discourage elected and
senior officials becoming involved in daily operations to the extent that they control management,
replace staff on political grounds and control staffing. Under the current arrangements in Sialkot,
management of human resources is weak and there is lack of skilled staff, clear job descriptions
are non-existent and promotions are based on age, length of service and personal connections
and are generally not on merit. As a result, there are few incentives for staff to perform well.
Recruitment is also slow and regularly provincial government imposes bans on recruitment and
in most cases positions stay vacant for over a year.
Page 387
Figure VI-123:
IMPACTS
High NRW, low water
accountability, low
supply and service
coverage
Governance Problem Tree
Poor Infrastructure
construction,
maintenance and
operations
Poor service delivery,
deteriorating environment
and quality of life, low
consumer awareness and
expectation
Low financial
accountability
Low tariffs
POOR GOVERNANCE
CORE PROBLEM
CAUSES
Chapter VI
Strategic Management
Constraints
Capacity and Rigid HR
Policies and Procedure
Constraints
Lack of strategic direction –
focus is in on day to day
business
Lack of technical capacity in
existing staff
Disconnect between planning,
construction and operations
Standard Organizational
Structure - no provision for
sector specific skill and man
power
Lack of information system
for effective planning and
decision making
Week coordination between
policy maker and Service
provider
Weak accountability
mechanism and enforcement
Operations and Management
Lacks Priority
Insufficient / poor regulatory
control
No incentive for capacity
development – not linked to
career and performance
management
Diploma engineers prepare
and supervise scheme while
senior engineers restricted to
clerical tasks
Difficulty to recruit suitable
staff on standardised pay
scale and benefits
Weak Knowledge about
rules, regulation, codes and
current best practices
Political, Regulatory and
Autonomy constrains
Institutional Constraints
Political resistance to tariff
and user fee and little
political support for cost
recovery
Lack of specialized institution
for urban water and waste
sector
Week regulatory mechanism
– government is owner,
regulator, and operator
Pressure and interference in
development schemes and
budget preparation
Formal and informal control
over appointments,
promotions and transfers
Political involvement in
technical matters
Vested interest in status quo
Low tariff and revenue
collection, flat charging
system for services.
Week performance
management and
accountability mechanism
Weak sector policy and
performance targets
Outdated rules, regulation,
design and codes
Lack of planning culture
Lack of clear division of
responsibilities among various
service providers
Rent seeking behaviour/
culture to overlook design and
standards
535. The TMA have very limited qualified technical and engineering professionals and even
their skills largely go untapped in the climate of low autonomy, accountability transparency and
indifferent management. O&M is a poor relation to development in the absence of incentives and
low tariffs do not help. Operational staff can often collude with customers to create their own
incentives. Non-Revenue Water (NRW), intermittent water supply and low service coverage are
direct results of the lack of autonomy and accountability and are indications of poor governance.
Part of the governance problem lies in having a single entity as owner, regulator, and operator.
Self-regulation can work only in a highly disciplined society and these responsibilities are best
kept separate. If poor governance is the root of the problem and government is in control,
government can hardly be expected to reform itself. There are too many vested interests and the
people who stand to make a considerable benefit from those interests are too many and too
comfortable with the status quo.
536. Legislation is necessary but insufficient to correct these problems. Policy transparency is
fundamental and civil society must hold government accountable for implementing the policies.
The water and wastewater section of the TMA, on the other hand, needs autonomy,
accountability, incentives, and the ability to perform. Key contributors and impacts of improved
governance are summarized in Figure VI-124.
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Chapter VI
Figure VI-124: Governance Solution Tree
IMPACTS
Performance, Incentives
and Accountability
Private sector
participation and
investment
JJ.
Maintenance,
rehabilitation and recycling
Sustainability
Improved coverage and
supply
Competitive pay and benefits,
Open market recruitment,
Capacity development
Consumer education and
awareness
IMPROVED GOVERNANCE
CORE SOLUTION
CAUSES
Operation and
maintenance efficiency
Better environment
Improvement sanitation
Regulatory mechanism
and effective body
Transparent Policies and
Procedures
Tariffs and user fee for full
cost recovery and
improvement
Civil Society and
Consumer involvement
Institutional Options for Water and Sanitation Management in
Sialkot
537. To have an efficient water supply and wastewater institution in Sialkot, it has to be
managed as well as any commercial business organization. The water/wastewater institution has
to escape from the vicious cycle of low revenue leading to shortage of consumables and
equipment and low remuneration of staff which leads to poor standards of service leading to
even lower collection rates for tariffs and stronger resistance to tariff increases. There are certain
key issues that need to be considered for the organizational design of a water and sanitation
institution in Sialkot. The first is focused on the management of the water cycle with regard to
integrating or separating the water supply, sanitation and sewerage/wastewater functions and
whether this should be managed within the context of a geographically defined area or whether
the utility should simply be focused on an urban or rural district.
538. The second issue considers centralization vs decentralization. Centralization provides
absolute control, ensuring adherence to policies and enabling the use of common standards.
However, decentralization provides flexibility to meet changing needs at the local level. Within
the decentralization argument is the specific question as to whether urban water supply and
wastewater should be a sub-section of the TMA/Municipal Corporation or whether it should be a
separate utility. What makes water supply different from other businesses is that abstracting,
treating and distributing large volumes of potable water will almost certainly remain a monopoly
institution under the influence or regulation of government. However, within that monopoly
provision there is a whole spectrum of choice.
539. Some activities may be outsourced to allow the water supply/wastewater section of TMA
to focus on its core business activities, provided that outsourcing yields appropriate efficiency
gains that benefit both the utility and the customers. The outsourced activities may include billing
and collection, vehicle maintenance, meter reading (if installed in future), tube well maintenance,
service installation, repair of leaks in the distribution system, treatment plant operation, security
services, and cleaning services. Another possibility is that the TMA (or its water/wastewater
section) should be seen as water wholesalers only. Licensed vendors or community associations
become more formally involved as water retailers - taking responsibility for greater or smaller
parts of the distribution system as they are able. A single 'community water meter' simplifies the
institution's work with a water community taking responsibility for all losses, illegal connections
and tariff collection beyond that point. Within this whole approach is the assumption that
consumers will pay a sufficient tariff for financial viability of the institution and/or that where there
are subsidies they are deliberate and measurable rather than simply the result of poor
management.
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Chapter VI
540. Private sector participation (PSP) is in vogue and very political. The softest forms of
genuine PSP may be a service contract and a management contract, in that order. Build–
operate–transfer (BOT) and build–operate–own (BOO) arrangements for the production of
treated water in bulk for a utility have been popular. The issue here is the take-or-pay provision,
which must be agreed on so that the utility and the private contractor both get what they want. In
Asia, only one of the four concessions in Manila and Jakarta might claim success in PSP. Still,
governments should send clear signals to prospective private operators through policies that
unequivocally state the government’s position on the use of PSP in the water supply sector. If
PSP is involved, a regulator must first be appointed. The creation of a new water utility agency/or
authority like WASA is another option. However, this approach is not encouraging based on the
experience of the Punjab WASAs where the agencies are currently working under respective
development authorities, facing challenges such as dependency, political interference and a grim
fiscal situation, leaving them unable to meet their operating requirements. The Punjab
government is already proposing institutional reform to transform WASAs into independent
entities to be governed by an independent Board of Directors122.
541. A major role of Government is to establish opportunities, effective incentives and
appropriate polices to promote the mobilization of private resources in the course of
development. The process of private sector involvement should not be subject to strong
pressures towards fast privatization of distribution systems but to experiment with two or three
pilot programs before moving forward. Following from this, the 'revolutionary' solution currently
fashionable is 'privatization' - selling off the entire water sector to private individuals and financial
institutions. An evolutionary solution is to introduce an institutional development program, moving
towards greater financial and managerial autonomy whilst remaining under government
ownership. These processes can ensure a steadier progress that may avoid big social problems
and give better resources allocation although they will also imply higher tariffs reflecting the real
cost of water services.
Option 1: Separate Utilities for Water and Wastewater and for Solid
Waste
542. Considering the ‘evolutionary’ approach discussed above, ring-fencing the utility by
making it a state owned company is a first step towards autonomy. This may be achieved
through the creation of a new body, the Sialkot Water and Sanitation Company, under Section 42
of the Companies Ordinance 1984. This body would have full responsibility to construct, operate
and maintain water and sanitation services in the declared urban areas of Sialkot City (Figure VI125). This practice is already happening in Pakistan and examples include solid waste
management companies in Sialkot and Lahore.
543. The current Tehsil Municipal Administration of Sialkot can entrust its water and sanitation
function to a Sialkot Water and Sanitation Company under sub clause 2 of clause 54 of the
Punjab Local Government Ordinance 2001, which states that the TMA has the power to:
543.1. assign or contract out, on such terms and conditions as are approved by the
Tehsil Council and after inviting public objections, any of its functions to any publicprivate, public or private organization:
Provided that responsibility for discharge of such functions shall continue to vest
with the Tehsil Municipal Administration
543.2. on such terms and conditions as are mutually agreed, transfer its functions or
responsibilities with regard to providing municipal services to the Union Administration or
Village Council:
122
Punjab Urban Development Sector Plan 2018 – Enabling cities to be engines of growth
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Chapter VI
543.3. Provided that no function or responsibility shall be transferred without allocation
of corresponding resources and funds:
Provided further that the responsibility to regulate and monitor such functions and
services shall remain with the Tehsil Municipal Administration
543.4. by an agreement and on such terms and conditions as may be mutually agreed,
perform any function of the District Government;
543.5. with funds raised through voluntary contributions or external grant, but without
recourse to additional enhanced taxation, user charges or fees or recourse to any other
sources of public funds and without incurring debt of any nature, undertake any
development project;
543.6. with the approval of the Government and concerned regulatory authorities of the
Federal Government and Provincial Government, set-up, acquire, manage and operate
any commercial activity on a self-financing basis with no liability to the public exchequer;
and
543.7. set-up a corporate body to perform any of its functions, singly or jointly with other
public or private bodies:
Provided that responsibility for discharge of such functions shall continue to vest
with the Tehsil Municipal Administration.
544. Similarly, the Municipal Corporation of Sialkot, the successor of TMA Sialkot, can also
entrust its water and sanitation function to a proposed Sialkot Water and Sanitation Company
under the sub clause 2 of clause 87 of The Punjab Local Government Act 2013. The sub clause
reads as ‘The Metropolitan Corporation and a Municipal Corporation may entrust any of its
functions to a person, an authority, agency or company through a contractual arrangement, on
such terms and conditions as may be prescribed. The proposed Sialkot Water and Sanitation
Company would have its own senior staff and would take over operational staff from the TMA.
Figure 9 provides an outline of the technical and management staff required for a Sialkot Water
and Sanitation Company. The proposed company would be aligned to the Tehsil Municipal
Administration Sialkot or its successor the Municipal Corporation Sialkot. As discussed above
the new Punjab Local Government Act 2013 has a provision in this regard and the company
would be an executive arm of TMA Sialkot or its successor the Sialkot Municipal Corporation.
The company may extend its operation in other geographical areas by entering into a contract
with neighboring Municipal Committees and the District Council of Sialkot. The Memorandum of
Association (MoA) and Articles of Association should have this provision where company can
expand its operations in other geographical areas.
545. The technical and professional management staff would be competitively recruited from
the market and tasked to improve service delivery. Incentives would be better aligned with
performance and designed to reward results. The finances of Sialkot Water and Sanitation
(SWSC) would be ring-fenced, rigorously audited, and not intermixed with TMA/Municipal
Corporation’s financial accounts, thus allowing management to better track service delivery costs
and revenues
546. With reference to solid waste management, a separate Sialkot Waste Management
Company (SWMC) has already been established and operational since 2014. A Services and
Asset Management Agreement (SAMA) was signed between TMA Sialkot and SWMC. All the
functions and assets related to solid waste management were entrusted to SWMC. TMA has
also shifted their 673 solid waste management staff and budget to SWMC.
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Chapter VI
Figure VI-125: Proposed Organogram of Sialkot Water and Sanitation Company (SWSC)
Chairman Board of Directors
Sialkot Water and Sanitation Company
Board Members
Sialkot Water and Sanitation
Company
Chief Internal Auditor
(1)
CEO Sialkot Water and
Sanitation Company
(1)
Executive Assistant to
CEO (1)
Company Secretary
(1)
Manager HR & Admin
(1)
Manager Finance
(1)
Admin and HR Officer
(2)
Procurement and
Contract Specialist
(1)
Communication Officer
(1)
Budget and Accounts
Officer
(2)
Assistant Manager Billing
and Collection
(1)
Technical Staff
(06)
Operational Staff
(15)
Management/Admin Staff
(17)
Total
(38)
General Manager Operations
and Services
(1)
Manager Water Supply
(1)
Manager Wastewater
(1)
Assistant Manager
Operations
(2)
Assistant Manager
Operations
(2)
Assistant Manager Water
Production and Lab
(1)
Assistant Manager
Wastewater Treatment
(1)
General Manager Planning and
Construction
(1)
Manager Planning & Design
(1)
Manager Construction and
Suprvison
(1)
Assistant Manager Asset
Management
(1)
Assistant Manager Customer
Care and Complaints
(1)
Help Line / Complaint
Attendant (4)
Community/Social
Mobilizer
(1)
Manager MIS / IT
(1)
Assistant Manager SKADA
(1)
Network Administrator
(1)
Database Administrator
(1)
GIS Specialist
(1)
Research Officer
(1)
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(i)
Chapter VI
Company Management
547. The company would be governed by an independent Board of Directors (BoD) to provide
strategic and policy guidance and to oversee performance of the utility and its management. The
autonomous board will also act as a buffer between the provincial government, Municipal
Corporation council and the company. Indicative board composition is mentioned below which
will follow 60/40 ratio – 60% members from private sector and 40% from elected and government
officials;
i)
ii)
iii)
Chairman (BoD)
Director
Director
iv)
v)
vi)
vii)
viii)
ix)
Director
Director
Director
Director
Director
Non-Voting Member
From the private sector – management experience
Mayor Municipal Corporation Sialkot
From Local Government and Community Development
Department
From the Urban Unit, Lahore
From the private sector – financial experience
From private sector – legal experience
From the private sector – technical focus WATSAN
From Civil Society
Company Secretary Sialkot Water and Sanitation Company
548. Chairman BoD shall always be from private sector. One term of the Board of directors
would be for three years. No person shall be appointed as a director if he is ineligible to hold
office of director of a company under section 187 of the Companies Ordinance 1984. No member
/ person shall hold more than one office in the company, such as those of Chief Executive /
director or company secretary. The chairman of the Board shall preside at all meetings of the
Board but, if at any meeting the chairman is not present within them minutes after the time
appointed for holding the same, the directors present many choose one of their members to be
chairman of the meeting.
Option 2: Combined Utility for the management of water supply,
wastewater, and solid waste in Sialkot
549. An alternate approach to improve the management of municipal services in Sialkot is to
create a single Urban Service Company for urban water supply, wastewater, and solid waste,
under the section 42 of the Companies Ordinance 1984. This option is based on the premise of
“one city – one utility” to address institutional fragmentation, cross-jurisdictional issues of water,
wastewater and solid waste (Figure VI-126). The proposed single company will also achieve
economies of scale and share the overhead costs of support function (Management, HR,
Finance etc.). With the separate utility for water, wastewater and solid waste, the indicative HR is
67 and with one utility it comes down to 49 (Table VI-127).
550. A single Urban Services Company will also help the TMA/Municipal Corporation, local
government department and the urban unit in coordinating and regulating performance and
services. North Sindh Urban Services Corporation (NSUSC) and Water and Sanitation Services
Peshawar (WSSP) are examples of similar initiatives in Pakistan where urban water supply,
wastewater, and solid waste operations are under a single utility. However, water, wastewater,
and solid waste functions will clearly be separated in the company structure, a separate General
Manger will be responsible for planning and operations of water wastewater and solid waste
respectively. Figure 10 elaborates the Sialkot Urban Service Company’s organization structure.
551. Like the Sialkot Water and Sanitation Company (SWSC), the technical and professional
management staff would be competitively recruited from the market and tasked to improve
service delivery. Incentives would be better aligned with performance and designed to reward
results. The finances of SUSC would be ring-fenced, rigorously audited, and not intermixed with
TMA/Municipal Corporation’s financial accounts, thus allowing management to better track
service delivery costs and revenues.
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Chapter VI
Figure VI-126: Proposed Organogram of Sialkot Urban Services Company (SUSC)
Chairman Board of Directors
Sialkot Urban Service Company
Board Members
Sialkot Urban Service Company
Chief Internal Auditor
(1)
CEO Sialkot Urban Service Company
(1)
Executive Assistant to
CEO (1)
Company Secretary
(1)
Manager HR & Admin
(1)
(1)
(1)
Manager MIS / IT
(1)
Assistant Manager SKADA
(1)
Network Administrator
(1)
Database Administrator
(1)
Manager Planning and
Construction
(1)
AM Planning and
Constructions - Water
and Wastewater (1)
AM Planning and
Constructions -Solid
Waste (1)
Assistant Manager Asset
Management
(1)
General Manager Water and
Wastewater
(1)
Manager Operations Water
Supply (1)
General Manager Solid Waste
(1)
Manager Customer Care and
Communication
(1)
Manager Operations
Wastewater (1)
Assistant Manager
Operations
(2)
Assistant Manager
Operations (2)
Assistant Manager Water
Production Labl (1)
Assistant Manager
Wastewater Treatment (1)
Assistant Manager
Customer Care (1)
GIS Specialist
(1)
Help Line / Complaint
Attendant (4)
Assistant Manager
Communication (1)
Research Officer
(1)
Dedicated Water and Wastewater Staff
(09)
Dedicated Solid Waste Staff
(11)
Shared Technical Staff
(14)
Shared Management/Admin Staff
(15)
Total
Community / Social
Mobilizer (1)
Manager Finance
(1)
Manager Planning Solid
Waste
(1)
Manager Operations Solid
Waste (1)
Assistant Manager Finance
and Accounts
(1)
Manager Workshop
Assistant Manager
Operations (2)
Assistant Manager Billing
and Collection
(1)
(1)
Procurement and
Contract Specialist
(1)
Assistant Manager
Workshop (1)
Manager Segregation and
Composting (1)
Manager Landfill /
Dumpsites (1)
Assistant Manager
Landfill / Dumpsite (1)
Assistant Manager
Landfill / Facilities (1)
(49)
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Chapter VI
Table VI-127: HR Comparison of separate and combine utility
Sialkot
SWMC
Category
1
2
3
4
Water and Wastewater
Solid Waste
Shared Technical Positions
Support Function (Management, Admin, Finance etc.)
MD/CEO
Company Secretary
Admin & HR
Finance
Procurement and Contracts
Asset Management
MIS / IT
Communication
Marketing
Audit
Other
SWSC
21
7
1
1
4
4
2
1*
2
2
1
1
3
4
1
**
4
1
1
1
3
3
1
**
4
1
5
1
1
17
38
1
1
16
49
49
22
29
Individual Utility Total
Overall Total
SUSC
9
11
13
67
Note * It is not in the original structure for Sialkot Waste Management Company
** Asset management position is mentioned in Shared Technical Position pool
552. The company may extend its operation in other geographical areas by entering into a
contract with neighboring Municipal Committees and the District Council of Sialkot. The
Memorandum of Association (MoA) and Articles of Association will have this provision whereby a
company can expand its operations.
553. The company would be governed by an independent Board of Directors (BoD). This
Board will provide strategic and policy guidance and oversee the company performance. We
suggest the following composition of members – 60% from the private sector and 40% from
elected representatives and government officials;
i)
i)
ii)
iii)
iv)
v)
vi)
vii)
viii)
ix)
Chairman (BoD)
Director
Director
Director
Director
Director
Director
Director
Director
Non-Voting Member
From the private sector – management experience
Mayor Municipal Corporation Sialkot
From Local Government and Community Development Department
From the Urban Unit, Lahore
From the private sector – financial experience
From private sector – legal experience
From the private sector – technical focus Water and Wastewater
From the private sector – technical focus Solid Waste
From Civil Society
Company Secretary Sialkot Urban Services Company
554. The chairman of the BoD should always be from private sector and each member cannot
serve on the board for longer than three years. No person shall be appointed as a director if
he/she is ineligible to hold office of director of a company under section 187 of the Companies
Ordinance 1984. No member / person shall hold more than one office in the company, such as
those of Chief Executive / director or company secretary. The chairman of the Board shall
preside at all meetings of the Board but, if at any meeting the chairman is not present within
Page 395
Chapter VI
them minutes after the time appointed for holding the same, the directors present many choose
one of their members to be chairman of the meeting.
555. As mentioned earlier a separate waste management company is previously established
under section 42 of the Companies Ordinance 1984 to specifically deal with solid waste in
Sialkot. This company can also be given the responsibility of water and wastewater, its structure
and board composition can be aligned to the proposed Urban Service Company. However, this
will require the approval of its board of directors as well amendments in the legal documents
Preferred Option - The Local Government department, the Urban Unit and TMA Sialkot
have approved the Combine Utility option for the management of water, wastewater and
solid waste in Sialkot.
Regulatory Models
556. The establishment of clear and effective regulatory systems is critical to the autonomy of
water service providers. They are established to constrain service providers’ operations so as to
avoid exploitation of the environment and customers in the corporation’s or agency’s pursuit of its
commercial objectives. Frequently the frameworks also have a provision to provide protection to
other stakeholders such as community groups, which are not necessarily customers.
(i)
Economic Regulation
557. Competitive markets operate to provide constraints on price and standards of service. In
the water and wastewater industries, however, their physical characteristics are such that they
generally exist as natural monopolies. That is, they do not have competitors to consistently
maintain an economic discipline. The absence of this discipline becomes critical when the natural
monopolies are reformed so that they are autonomous and have clear commercial objectives.
Without the market discipline the monopolies can charge excessive prices or can degrade
standards of service in order to improve profits.
558.
To replace the market competitors, governments set up regulators of various kinds –
558.1. In Britain the privatized companies are controlled by the Office of Water Services
(Ofwat) which sets prices on a 5 and 10-year basis, specifies minimum standards of
service and maintains extensive sets of comparative performance indicators.
558.2. In the U.S.A. regulators vary with the type of service provider. Where services are
provided by private companies a regulator is set up to set prices on an annual or biennial
basis. Typically, the price is set so as to ensure that providers earn an adequate return
on their investments made. This is known as rate of return regulation.
558.3. In other countries regulators are established which retrospectively review the
performance of agencies over a long period (typically 5 years) and on the basis of the
review renew the licenses of the agencies and/or apply sanctions. This has become
known as light-handed regulation. Typically it has been applied in New Zealand.
558.4. In Australia a range of regulation has been applied in the different states. In New
South Wales the most populous state the Independent Price and Regulatory Tribunal
(IPART) has been established as the regulator of government provided the urban water
sector, government provided transport, energy etc.
Page 396
559.



Chapter VI
The role of IPART is to:
Set prices for the urban agencies such as Sydney Water and Hunter Water;
Develop and update operating licenses;
Assess service performance against standards specified in the operating licenses.
560. IPART also has a wide brief to advise government in relation to service provision in nonregulated sub sectors e.g. provision of water services in rural areas. Similar regulatory agencies
have been established in other states including Victoria and Western Australia.
(ii)
Regulatory Alternatives
561. Where it is not possible to set up a separate regulatory frame work an intermediate
strategy available is to establish a supervisory committee or board which assesses, against
specific terms of reference, decisions of the corporation in regard to price etc. and performance
of the corporation against specific standards. The supervisory board should be established
outside of the corporation to avoid its autonomy and objectives being compromised.
562. The form of economic regulation applied in any situation depends on a number of factors.
These include the competencies available, the number of corporations and services to be
regulated the resources available etc.
563. In the case of Ofwat in Britain there are 10 private companies to monitor and its
responsibility is only in the water/wastewater sector. Thus there are economies of scale, which
allow Ofwat to develop a high level of competence in the sector. A similar approach has been
taken in the energy and telecommunications sectors. The supervisory approach is to set a price
framework and to continuously monitor service performance of the companies. Sanctions are
only formally applied if major transgressions occur. Each year however a comparison of
performance of each of the companies is published and promoted to the public.
564. The effectiveness of light-handed regulation is arguable. If a major failure has occurred
during the period being reviewed there may be public pressure for the regulator to take action
against the corporation being reviewed. Generally however it has been observed that the only
real sanction available is withdrawal of the corporation’s license to operate and regulators have
been reluctant to take this step. As a result, light-handed regulation is considered to be an
inferior alternative structure.
565. Under rate of return regulation there is little consequence taken of service delivery
performance. Instead the focus is on price. Prices are set on the basis of the corporation
justifying its capital expenditures and operating costs often in a public forum. On the basis of the
cost justification presented the regulator sets prices to provide the corporation with a return on
investment, which is deemed to be sufficient for the corporation to maintain its investment. In
reality it has been observed that scope exists in a rate of return environment for the corporation
to manipulate the accounting information provided or to manipulate costs by delaying cost
efficiencies until after prices have been set. Furthermore, in these environments it is common for
the regulator to not have substantial industry knowledge, which would allow it to recognize the
manipulation taking place.
566. The key principle followed by Ofwat in Britain and IPART in Australia is that they are
totally independent of government in their decision-making and their determinations of price are
binding.
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Chapter VI
Asset Management and Contract Management
567. Agencies in the water and wastewater industry recognize that their costs can be roughly
separated into three approximately equal components: 


Operations maintenance and administration costs
Capital servicing costs including debt servicing costs and returns to equity providers.
These costs relate to the original provision of assets.
Depreciation on assets
Figure VI-128: Breakdown of Costs
568. Overall it can thus be seen from Figure VI-128 that over two thirds of costs are in regard
to asset provision, maintenance and replacement. This distribution of costs is common in other
infrastructure industries such as energy and rail. A significant complication arises however in the
water and sewer sector because a large part of the asset set i.e. the pipe network is buried and
thus not readily available for inspection. Particularly in older cities, where networks may be many
centuries old, lack of asset data has led to substantial service failures.
569. Internationally there is an increasing focus on asset management to reduce service
failures and ensure that asset based costs are optimized
(i)
Establishing an Asset Register
570. Asset management is a whole of life approach to the acquisition, operation and
maintenance of the overall asset set. It uses data typically contained in a fixed asset register
(which may initially be produced for financial purposes) on –
 Material
 Location
 Length
 Age
 Replacement Cost
 Estimated remaining life etc.
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Chapter VI
and enhances it for engineering use by adding data on –


condition
inspection and maintenance processes etc.
571. Asset management uses this enhanced data to provide whole of life cost information on
which to base asset acquisition decisions. Asset management has a number of other functions
such as –
571.1. Development and assessment of maintenance strategies. An example being
optimum use of water jet cleaning of sewer mains.
571.2. Development of computer based main replacement models. These models are
financial assessments of the tradeoff, which has to be considered between the cost of
replacement of assets against the financial and social costs of failure and subsequent
repair.
571.3. Linkage with customer service records of meter consumption, to establish
leakage analyses/ water balances for specific delivery areas.
571.4. Monitoring new and emerging asset technologies. This function is particularly
critical given the developments that have occurred in pipe technologies such as in situ
relining. Recognition of these technologies can have great financial effect.
571.5. An example of this effect is the valuation of assets for depreciation calculation
purposes. Recognition of new refurbishment technologies can significantly extend
remaining asset lives of assets with consequent reductions in depreciation expense.
Contracting Services
(i)
Support Services
572. Support services are those components of the organization such as laboratories, design
offices and meter reading, which provide technical and administrative functions. Invariably these
services can also be provided by private sector companies and other entities such as
Universities, which are outside of the company. There is accordingly clear potential to expose
such services to market conditions.
573. A common approach in the long term, to support services is to create subsidiary
companies i.e. separate legal trading entities which can operate at arm’s length from the core
organization and which must compete for work from the core on an equal basis with all other
providers. The subsidiary as an independent entity will also have a right to compete for work
externally to the company with the potential for priority to be given to this external work ahead of
work for the core.
574. The objectives of this approach are to impose market disciplines on the support services
so as to ensure that these services are provided at best cost/best practice. The approach also
imposes a discipline on the core company in that it must clearly specify the services to be
acquired by the core rather than relying on the support service group to be aware of
requirements through inside knowledge.
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Chapter VI
575. Where separate legal identity is not possible, an effective strategy is to establish the
support services as separate cost and profit centers i.e. as separate business units.
576. Establishing business units places a discipline on management, which requires them to
clearly identify the product line (i.e. the goods and services produced by the business unit),
analyze the costs attributable to each product and derive a market equivalent charge for each.
(ii)
Operational Maintenance
577. A similar approach to general support services can be applied to key operational services
such as civil maintenance and electrical and mechanical maintenance. These services, within
most water sector providers, can also be ultimately provided by external companies and as an
intermediate step by civil maintenance and electrical and mechanical maintenance business
units.
578. Civil, electrical and mechanical maintenance is a significant part of the overall operations
of a water agency. The transfer of maintenance services to external providers thus has a
profound impact on the company from two aspects: –
 The impact on the employees if they are displaced rather than transferred to the
external company.
 The requirement for the core agency to clearly specify the requirements for
maintenance on a contractual basis and ultimately negotiate a contract with the
external supplier, which is in the best interest of the core company.
579. An intermediate step, which can be followed, is to investigate and establish best practice
for the services through contacts with other water agencies. This can then be used as the basis
for drawing up a detailed specification for the work to be undertaken by the maintenance
business units. The performance of the business unit can be measured by maintaining separate
accounts for the sub agency with payments on a notional basis being made to the sub agency
and financial penalties being applied for inadequate performance. Thus the measure for
performance is based on financial profit. This arrangement provides a simulation of open market
conditions and allows both the core company as the contracting principal and the sub agency as
the contractor to develop market related skills in relation to contract negotiation and contract
management. Ultimately both groups can become sufficiently proficient for full market exposure
to be applied by establishing support services as a separate legal entity from the core company.
Page 400
Chapter VI
Municipal Corporations: A New Way Forward
580. The new local government act of 2013 and elections of 2015 will usher in a new phase
for local governments in Pakistan. Election for general seats of local councils has already been
taken place. Election for reserve seats, Mayor and Deputy Mayors are on the horizon and
preparations ready to usher in a new phase of managing civic affairs in Sialkot. This report draws
attention to areas of institutional, organizational and governance management that need urgent
attention. It is essential that well organized, streamlined and functioning municipal corporations
emerge out of the election process and that the provincial government is focused on learning
lessons from over two decades of local government experiments in Punjab. This is the time to
review organizational design, structure and interplay with the external environment for the benefit
of citizens.
581. This team and report propose a number of notable changes to the way in which new
municipal corporations will be are configured. This proposed design and structure reflects the
findings of the analysis, which precedes this final section of the report. Drawing heavily on
lacunae identified currently with TMAs. A quick overview of the gaps in TMAs will help set the
context and also offer to explain the teams thinking of why and where such changes are
necessary if municipal corporations are going to represent a new kind of ‘local government’ and
play an important role in providing services in a new governance framework.
582.
Firstly, we have observed that Sialkot TMA is not a local government that lends itself to
being vision and goal oriented, strategic, objective setting with clear short-medium and long term
plans at corporate or operational level. In fairness, this is also a product of the environment in
which it exists. Secondly, there is substantial evidence that the TMA is neither customer oriented
nor citizen focused. There is little or no perception of how to engage in partnerships with different
stakeholders to achieve improved service provision. The lack of internal processes and systems
just do not exist to enable it to engage with an external constituency. Thirdly, the lack of
adequate human resources, issues with staffing, recruitment, spans of control and training mean
the TMA is unlikely to perform and therefore deliver quality urban services. The time is right to
review the organizational configuration of local governments in towns and tehsils.
KK.
Asset Management
583. Over the last 25 years, there has been a greatly increased focus internationally on asset
management. This has come about because of asset failures occurring due to lack of knowledge
concurrently with the development of technologies (such as GIS and CCTV inspection) which
allow restoring that knowledge. A common syndrome is for “local knowledge” to prevail i.e. a key
employee has unrecorded knowledge of an asset and he leaves the organization the knowledge
is lost.
584. Water and sewerage sector performance in particular is driven in the long term by the
quality of its asset management. This is because the asset base is predominantly buried;
drainage and solid waste sector performances are also subject but less so.
585. Effective public management of infrastructure relies on the asset owners having reliable
and comprehensive asset data with asset management systems and sound expertise.
586. The Urban Services Company will be enhanced by immediate formation of a specialist
asset management group. The need for immediacy occurs because of planned asset initiatives
in each sector and the opportunity to capture the asset data as it is built. The group should have:

Enhanced competence in financial management alongside technical competence;
Page 401


Chapter VI
Specific responsibility for creation and management of a comprehensive asset register
Responsibility for providing advice to senior managers on asset investment decisions.
LL.
Strategy and policy
587. The ability to drive the citywide strategic development and consultation process in Sialkot
will be essential. Therefore, the creation of a strategy and policy function to oversee key
functions is a new imperative for consideration here. Nestled between the role of the Chief
Officer with support from the city implementation units and Chief Administration Officer this troika
will lead and deliver the process for the municipal corporation. The CIU will be an important
resource and will need to work closely with corporate management in setting the framework
given capacity in the area is likely to be limited initially.
MM. Communication
588. This is essential in the modern local government era. This team will be tasked with
ensuring that policies, Programs and initiatives are developed and outreach is achieved to share
success stories from the work of the municipal corporation. Moreover, they will need to put into
place practices and mechanisms for informing internal constituents vertically and horizontally
within the corporation (fellow departments, local council and frontline staff) newsletters, public
awareness Programs and a suitable website will be ways in which this can be addressed. The
team is expected to be pivotal in supporting the ICDS process as it unfolds.
NN.
Economic development and partnerships
589. Previously not considered in any form or function of local government and traditionally
the preserve of provincial agencies. This will help the municipal corporation focus on facilitating
greater competitiveness and growth. This cannot be achieved alone and an approach that looks
to work with Sialkot’s strong industrial and private sector ought to be harnessed. Though there
are examples of how the TMA and industry have cooperated in areas such corporate social
responsibility to either develop green spaces, lavish roundabouts or other ornamental
investments. However, this needs to be scaled up with formal mechanisms for developing
government to business partnerships. The post could also review the role of the informal
economy and sector in Sialkot and how this could be integrated into mainstream government
business and processes.
OO. Human resource management
590. Traditionally completely absent from the TMA this is possibly the most crucial aspect of
management that needs to be addressed urgently. The key functions of the department will be
workforce planning, job description review, training and capacity development, monitor staffing
allocations, recruitment of contract staff, and performance evaluation reviews/ACRs. They will
identify where gaps exist in skills, devise HR strategies and plans. Furthermore, the department
could be given the responsibility of coordinating all training, capacity and professional
development aspects of running the municipal corporation. It would work closely with the team
charged with the responsibility of developing automated systems and bring business processes
for the corporation online. Support from the CIU will be necessary. Figures VI-130 and VI-131
set out how the new municipal corporations could be configured.
Page 402
Chapter VI
591. To bring efficiency and effectiveness, implement organizational changes and introduce
accountability to customers, the proposed Municipal Corporation Sialkot needs to be staffed with
appropriate senior management and technical supervisors, competitively recruited from the open
market on contract basis, in addition to the personnel transferred from the TMA (Table VI-129).
Civil servant can also apply against these positions, however they have to go through the same
selection process. Incentives will be better aligned with performance and designed to reward
result.
Table VI-129: Positions to be filled from open market or with existing civil servants
through completive process
1
2
3
4
5
6
7
8
9
10
Chief Officer Municipal Corporation
Executive Officer / Chief Administrative Officer
Municipal Officer Economic Development
Municipal Officer Asset Management and Development
Municipal Officer Finance
Municipal Officer Accounts
Chief Engineer / Executive Engineer
Municipal Officer Urban Transport
Municipal Officer Municipal Service
Municipal Officer Development Planning, Building Control and Regulation
592. Initially these structural and administrative reforms are only proposed for the Municipal
Corporation Sialkot and Sahiwal. This phased approach will allow time for reforms to be tested,
take root, better aligned with investment in solid waste, water wastewater and transport and
remodel if required and roll out to new Municipal Corporations in Punjab. Additional funding can
be sought from ADB in the form of institutional support to cover additional pay and benefits for 35 five years, develop job description, person specification, performance indicators, business
processes and capacity development.
Page 403
Chapter VI
Figure VI-130: Proposed Institution Structure for Municipal Corporation
Mayor Municipal Corporation
Deputy Mayor Municipal
Corporation
Local Council
Council Admin
Support Staff
Vision
Chief Officer Municipal
Corporation
Internal Auditor
Executive Officer / Chief
Administrative Officer
Strategy and Policy
City Implementation
Unit (CIU)
Process
Process
ICDS
Other Services
Magistrate
Administration
Finance
Legal
Human Resources
Management
taxation
Municipal Magistrate
Human Resource Officer
Fire
Parks
Others
AMO Municipal
Services
1) MO Finance, MO Accounts
2) AMO Budget
GIS & Asset
3) AMO Accounts
Management
4) AMO Contract and PPP
Database
5) AMO Recovery-Taxes,Fees
Infrastructure & Services
Road &
Traffic
Transport
Authority
Drainage
Water
Supply
Sanitation
Physical Planning
SWM
Growth
&
Land Use
Communication
Social Services
IEC
(information,
education,
communication
1) Communication and
Complaint Redressal Officer
2) Community Mobilization Officer
3) Information Technology Officer
Economic Development
Public health
welfare
promotion
Municipal Officer
Development Control
Environmental Management
Development permits
Building permits
Education
assessment
monitoring
Cross - Cutting
Urban Service Company
All developments & Services
1) MO Transport
2) AMO Facilities (Bus Stand,
Parking)
4) Urban Transport Planning
and Operations Officer
Heading
1) MO Municipal Service
2) AMO WATSAN and SWM
3) AMO Municipal Services
MO Development Planning,
Building Control and Regulation
1) Chief Engineer
2) Municipal Engineer Infrastructure
(Roads, Bridges and Flyover)
1) AMO Development Planning
2) AMO Commercialization and
Advertisement
3) AMO Kachi Abadi
4) AMO Asset Management and
Development
1) AMO Building Control
2) AMO Enforcement (Rules,
Regulations, Encroachment)
Environment Officer
Page 404
Chapter VI
Figure VI-131: Proposed Hierarchical Structure for Municipal Corporation
Chief Officer
Municipal Corporation
Internal Auditor
Executive Officer / Chief
Administrative Officer
Municipal Officer
Municipal Officer
Finance
Human Resource Officer
Assistant Municipal Officer
Budget
Communication and
Complaint Redressal
Officer
Recovery - Taxes, Fees
Information Technology
Officer
Contracts management
and PPP
Community Mobilization
Officer
AMO Development
Planning (Spatial /
Land-use Planning)
AMO
Commercialization and
Advertisement
City Implementation Unit
(CIU)
Municipal Officer
Accounts
Chief Engineer /
Executive Engineer
Municipal Officer
Urban Transport
Accounts
Municipal Engineer
Infrastructure - Roads,
Bridges and Flyover
Urban Transport Planning
and Operations Officer
WATSAN & Solid Waste
Facilities (Bus Stand,
Parking)
Municipal Services
Municipal Officer
Development Planning, Building
Control and Regulation
Kachi Abadi
Building Control
Municipal Officer
Municipal Service
Environment Officer
AMO Enforcement (Rules,
Regulations, Encroachment)
AMO Asset Management
and Development
Positions to be filled from open market or with existing civil servants through competitive process
Page 405
Chapter VI
Figure VI-132
Sialkot Sahiwal: Draft Medium Term Infrastructure Investment Program
Institutional, Governance and Capacity Development
Implementing
Entity
Sector Component
Financing CoExpected Loan Expected Loan
Commitments
Disbursement in Disbursement in
and Budget
Years 1 - 3
Years 4 - 5
Source
Medium Term Investments
Expected Financing
Required in Longer
Term after Year 5 to
Year 15
Total Medium Term
Financing
Requirement (US$)
Long Term Investments
Development Punjab Local Academy
Phase 1: Upgradation of PLGAL training
Total Medium and
Long Term
Financing
Requirement
(US$)
2016
Q1
Q2
Q3
2017
Q4
Q1
Q2
Q3
2018
Q4
Q1
Q2
Q3
2019
Q4
Q1
Q2
Q3
2020
Q4
Q1
Q2
Q3
Q4
500.00 million
GoPb
2,000,000
2,000,000
Phase 2: Satellite Campus of PLGAL in
Lahore (As per masterplan of GoPb)
Capacity development of elected
Capacity Development of elected
Technical Training - In house, on campus and
900,000
Management Development Program - In
Orientation Programme - In house
On the job training
4,000,000
4,000,000
1,000,000
1,900,000
400,000
800,000
2,000,000
3,200,000
200,000
400,000
1,000,000
1,600,000
50,000
100,000
250,000
400,000
50,000
100,000
250,000
400,000
150,000
150,000
Restructuring and strengthening of Punjab
Local
Government Academy, Lalamusa
Sensitization, service based delivery
Collaboration with local and international
100,000
Detailed Training Needs Assessment of local
Development and operationalisation of Training
Management Information System (TMIS)
Training and Development Policy
100,000
150,000
100,000
250,000
500,000
150,000
150,000
150,000
450,000
80,000
20,000
100,000
50,000
50,000
100,000
50,000
50,000
100,000
Training and Development Strategy
Institutional Support
Job descriptions, person specifications and
Information systems - HRMIS, FMIS
(PMDFC), and RMIS
Complaint management system
Consumer and Asset Management survey
Community mobilization and engagement
ICDS studies
Essential Equipment - Sialkot and Sahiwal
Utility Establishment and Support fund -
250,000
250,000
150,000
150,000
100,000
250,000
250,000
Sialkot
4,000,000
Sahiwal
3,760,000
Central agency Development
100,000
250,000
500,000
100,000
Legend: GoPb=Government of Punjab, MFF=Multitranche financing facility, MSW=municipal solid waste, PPTA=project preparatory technical assistance, Q=quarter (three-month period), SWMC=Sialkot Waste Management Company, US$=United States dollar.
Page 406
REG-8556
Pakistan
CHAPTER VII
April 2016
project’s design
Chapter VII
Poverty, Gender, Social Development and Inclusion
A.
Project Benefits
1. The project will improve the living conditions of the local population (485,528 individuals) of
Sialkot city by developing access to:



potable water supplies,
improved sewerage and solid waste systems, and
better transport facilities.
Eventually these benefits would be extended to the surrounding area of Sialkot.
2. All residents will also benefit indirectly as a result of:
(i) reduced illicit waste dumping,
(ii) reduced incidence of waste-related diseases and the resulting reduction in medical costs, and
(iii) reduced pollution loads on air, water, lands and groundwater resources following improved
SWM recycling, collection, transfer, treatment and disposal.
3. By improving the communities’ access to potable drinking water and improved sewage
systems the incidences of water related disease, such as worm disease, malaria and hepatitis
will be reduced.
4. In addition, the project will bolster the local economy by:



increasing employment opportunities for locals,
increasing the income of adjacent shops/business owners, and
by boosting the value of adjacent land/structures.
All major steps towards poverty alleviation.
5. In a statistical breakdown of the population, the project will benefit the entire municipal
population (485,528 residents) including 42% of the population who are considered poor, 17%
living below the poverty line, and other vulnerable groups including widows (1% of the
population), persons with cognitive special needs (0.24%), persons with physically disabilities
(0.14%), women headed households (0.39%), and orphans (1.88%). The project will also benefit
those residing in the Katchi Abadis (9002 of the Municipal total of 485528) who do not possess
land ownership rights. These details are shown in IPSA, reflected in Annexure-V.
B.
Land Acquisition and Resettlement Impact
6. In addition to the positive effects, the project is expected to have adverse effects on the local
population in the form of Land Acquisition and Resettlement (LAR). The impact of LAR will result
in physical and economic dislocation, causing the loss of residential income sources. These
impacts will be addressed as per ADB’s Safeguard Policy Statement (2009), ADB’s Handbook
on Poverty and Social Analysis and Country Safeguard System and will be monitored as per
design monitoring framework, given in Annexure-IV.
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Chapter VII
7. The project is comprised of three components; hence the LAR impacts are assessed on a
component to component basis, as discussed below.
Component 1: Solid Waste Management
8. The consultant assessed that the site of the proposed SWM treatment and disposal facility is
yet to be formally confirmed by Government. However, when confirmed, it would have an impact
on 60 acres of prime agriculture land owned by 11 farmers, 08 tube wells owned by 8 families,
and 25 wood trees owned by 6 families.
9. In addition, the project facility would have larger impacts on the livelihood of displaced
persons (DPs); especially 14% of the respondents who are entirely dependent on the affected
lands to maintain their livelihood, and who have no other source of income. However, 87% of the
DPs have multiple sources of income other than the farming, including businesses, jobs in
private and government sectors.
10. The full extent of the project was not communicated to the public, especially how this facility
will be developed and details of compensation provided. However, the views shared by the
people after consultation are summarized below;









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People are reluctant to give up their land as agriculture is their main source of income;
The government should instead consider non-agricultural land for the proposed project;
They had apprehensions over the rate at which the Government will acquire the land;
The government should match the market rate of the land;
The prevailed market rate is on average Rs. 35, 00,000/acre;
The affected DPs should be provided an alternate source of income prior to the
acquisition of the land.
The government should be the party to negotiate for the acquisition of the land.
The surrounding population will also be disturbed by the bad smell from the solid waste
site. Their life will be made miserable due to these externalities, so it is better that the
government acquire the entire surrounding area so that they are free to move
somewhere else.
The government should shift the landfill site to a more remote area, away from larger
population canters.
The project is intended for the welfare of the people of the area, however neither the
displaced persons nor those from the surrounding area are happy with the solid waste
management practices.
The affected people have been settled here for centuries so the project will cause greater
social disturbances in addition to disrupting their sources of livelihood.
The graves of their parents are here, so they do not want to leave them, however there is
no way they can stay when the entire piece of land is acquired for the project.
11. Preliminary costs to acquire the land and to resettle the affected people was calculated
based on the replacement cost of affected land and structures, as required by SPS SR2, Para
10. For this purpose, a preliminary market survey was carried out in order to reach the market
based unit rate to be paid to DPs. However, the rates need to be confirmed during the feasibility
and detailed design stage. Total resettlement cost worked out is Rs.211.22 million including 0.55
million for the restoration of livelihood. The breakup of the cost is reflected in Annexure-I.
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Chapter VII
Component 2: Water and Sanitation
Site – I
(i)
12. The proposed project affects 15 acres of agriculture land, 4 tube-wells and 2 farmhouses.
The land is currently used for agriculture and owned by 8 families. The land’s initial purpose is
agricultural, but it has more commercial value due to its proximity to Sialkot city. There are
instances where the owners were given reasonable offers for the sale of land, but they were
reluctant to sell as the value of their land is increasing over time. The tube-wells belong to 4 DPs
and are used for irrigation. Moreover, the farmhouses are owned by 2 DPs where cattle are
usually kept during the day. Five families rely solely on the income generated from this farm,
while three households have alternate sources of income, such as managing businesses and
working government jobs. Five families are residing adjacent to the affected land, referred to as
Nai Abadi Gujjran Phulerwan. Although the full extent of the project was not communicated,
especially how this facility will be developed, people shared their views after consultation, which
are discussed below;





People are not willing to give their land, and intend to keep them for commercial
purposes; they have already refused to sell their land to various businessmen.
There were apprehensions that the land rate (as per replacement cost basis) will not be
provided to them, as the government always lowers the agreed upon rate.
The prevailing market rate is Rs.8000000/acre and Government will not compensate
them accordingly. If this were to happen, they will not have any options, as the
government holds more power and can force its decision easily.
The project will have negative impacts on the surrounding areas, as it is difficult to live
with such a bad smell, therefore the project should be located away from population
canters.
They will lose their cattle as they are forced to relocate, losing valuable livestock
investments.
Site – 2
(ii)
13. The proposed project has an impact on 5 acres of agricultural land and 3 residential
structures. The consultant observed that the land is currently used for agriculture and owned by
6 families. Apparently, it is agricultural land but has more commercial value due to its proximity to
Sialkot city. There are the instances where the owners were selling the land on a commercial
basis for the amount of Rs. 24 Million/acre. These displaced persons have multiple income
sources, like businesses in the city, however they mainly rely on this piece of agricultural land, as
growing vegetables helps them obtain a good profit season to season. Although the full extent of
the project was not communicated, especially how this facility will be developed, people shared
their views after consultation, which are discussed below;







People are not happy to give up their land, as they intend to keep them for commercial
purposes and to grow profitable crops, especially seasonal vegetables;
They showed that the government always lowers the purchasing price, which is not
acceptable to them;
They were ready to go to court to hold onto their land;
The project will have very undesirable effects on their livelihood due to the loss of
commercial land and profitable crops;
It was difficult to live which such a bad smell; eventually living in the surrounding areas
will be miserable;
The prevailing market rate is Rs.24000000/acre and the government will not compensate
them accordingly;
The government should choose a location for the project far away from population
centers or reduce the size and limit it to Nallah Aik only, which is already near the
disposal station.
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Chapter VII
14. The cost of land acquisition and resettlement was worked out based on the replacement cost
of affected land and structures as required by SPS SR2, Para 10. For this purpose, the market
survey was carried out in order to reach the market based unit rate to be paid to DPs. However,
the rates need to be confirmed during the feasibility and detailed design stage. Total
resettlement cost worked out for site 1 is Rs.121 million including 0.4 million for the restoration of
livelihood. Similarly, site 2 worked out to be Rs.122 million including 0.3 million for the livelihood
rehabilitation cost. The detailed cost is reflected in Annexure-I.
Component 3: Transport Infrastructures
15. The proposed project affects the livelihood of 53 families during the construction stage of the
project. Land acquisition and resettlement is not required, as it only disrupts the commercial
areas, affecting the businesses both sides of the proposed corridors. The displaced persons do
not have alternate sources of income, entirely dependent on these businesses. Although the full
extent of the project was not communicated, especially how this facility will be developed, people
shared their views after consultation, which are discussed below;









The general public is very happy with the proposed under-pass project. They held the
view that the traffic failure is common, having adverse effects on local schools, especially
Allama Iqbal Degree College for Girls. The under pass will result in the smooth flow of
traffic in the area.
There is a Nallah (drain) located close to the project area, and during construction on the
underpass, the entire residential area will be cut off of the drainage system, so there will
need to be alternative drainage options identified prior to the commencement of
construction.
The traffic will be badly affected during the project construction stage, so an alternate
route must be given to avoid larger traffic failure.
People were worried that their commercial structures will be affected during the project
execution stage. In case their structures are damaged, they will need to be compensated.
Encroachment by other businesses and mobile vendors will affect their livelihood during
the construction stage.
The project will not be completed on time.
The project may lead to the loss of business, negatively affecting their livelihood.
The movements of local residents, especially female students, will be hindered severely,
so they should be provided with an alternate route
The DPs should be provided an alternate source of income prior to commencement of
civil work to account for the expected loss of income.
Rehabilitation Cost
16. The rehabilitation cost was calculated based on the proposed impact on the local population
including the vendors in light of ADB’s SPS (2009). Therefore, Rs. 2.6 million was worked out as
a sufficient amount to maintain the livelihood of displaced persons. However, this needs to be
reconfirmed once the design of the project is finalized.
C.
Mitigation Measures for Negative Impacts:
17. The mitigation measures are proposed based on the typology, extent and degree of impact
on the project, based on the three afore-mentioned components. The mitigation measures are
proposed to normalize the adverse impact of the project on the displaced persons.
18. Following actions are recommended to address and mitigate LAR impacts;
Page 412
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Chapter VII
Explore all possible design alternatives and select the one that avoids LAR impacts, and
if avoidance is not possible, minimizes the LAR impacts.
Consult all types of affected persons, including squatters, encroachers and landless
people and agree on compensation and resettlement options, which ensures livelihood
restoration and shifting of temporary or fixed structures out of the corridor of impact (COI)
and right of way (ROW).
Establish a land acquisition and resettlement unit (LARU) within EA (project management
unit and project implementation units), engage land acquisition staff, resettlement
specialist, male and female social mobilizers to undertake consultation with DPs about
the project benefits, impacts and mitigation measures including compensation and
Restoration & Rehabilitation support.
In the event that the negative impacts are unavoidable, prepare the land acquisition and
resettlement plan which will discuss the consultation & disclosure, legal framework,
eligibility & entitlement, compensation & rehabilitation plan and payment procedure,
institutional arrangements, monitoring and reporting framework and time bound action
plan.
Undertake capacity building of the EA to cover all Land Acquisition and Resettlement
(LAR) planning and implementation needs for the duration of the Project, both at Project
Management Unit and at Project Implementation Unit (PIU) in the field.
The impacts are not significant; therefore, the LARP of category “B” (as per involuntary
resettlement policy) is required for component A (Solid Waste Management). The outline
of Category B LARP is found in Annex-II.
The impacts for component B (WATSAN) are significant, but the numbers of displaced
persons are less than 200. Therefore, the LARP of category “B” (as per involuntary
resettlement) is required in case the numbers of displaced persons are less than 200 or
25 families. Including both cases there are 13 families (8 for site 1 and 5 for site 2), so
two separate category B LARPs will be prepared. The outline of Category B LARP is
found in Annex-II.
The impacts are significant on the life of the local people; therefore, the RP of category
“B” (as per involuntary resettlement) is required, as there is no land acquisition involved
for component C (Transport Infrastructure). The outline of Category B LARP is found in
Annex-II.
Meaningful consultations should be conducted with all DPs throughout the project cycle;
The interest of vulnerable groups including the woman headed households should be
fully incorporated in the project;
DPs should be provided assistance in the form of relocation compensation, livelihood
disturbance compensation and vulnerability allowance in case their income is falling
below the OPL (official Poverty Line);
A detailed socio-economic and impact assessment survey is required at feasibility level
to assess the extent of effects on the displaced persons.
Environment and Climate Change
D.
Introduction
19.
The objective of this final report under the PFS is to carry out environmental screening
and climate change resilience appraisal of proposed road and transport, water, wastewater, and
solid waste management sub-projects for Sialkot city. The CDIA “social and environmental
assessment” guidelines 123 suggest preliminary assessment of projects that cover potential
environmental and health impacts, and the degree to which proposed projects make a positive
contribution to environmental quality. Resultantly, this report highlights main risks and proposed
mitigation measures using ADB rapid environmental assessment (REA) checklists. The
123
CDIA Pre-Feasibility Studies User Manual for Cities and National Partner Organizations. October 2012; and,
Pre-Feasibility Study Guidelines. February 2015
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Chapter VII
assessment also covers impacts of and responses to climate change related weather events,
and the extent to which proposed projects incorporate adaptation and mitigation measures
(wherever applicable) under a ‘preliminary climate change resilience appraisal’.
E.
The Project
20.
The Tehsil Municipal Administrations (TMA) of Sialkot city, and the Government of
Punjab, requested CDIA to provide technical assistance to help with the preparation of a Medium
Term Investment Plan (MTIIP) and to carry out pre-feasibility work on selected priority urban
sector projects. The objective of the PFS was, thus, to assist the Government of Punjab (GoPb)
to prepare an integrated, climate resilient, urban environmental infrastructure investment
program for the city.
21.
The resulting investment program is expected to enable Sialkot to better manage
disruption from weather and climate-change related hazards whilst simultaneously catering to the
basic service needs of its residents. Adopting a highly participatory development process and
incorporating the sectors of water supply, wastewater, solid waste management (SWM) and
urban transport, the PFS has formulated a high-priority, medium-term investment program and
subsequent investment package for the city for further feasibility assessment. The conduct of this
PFS closely followed the protocol and guidelines established by CDIA, emphasizing pro-poor
development, environmental sustainability, climate change adaptation and good governance.
22.
Furthermore, the PFS builds upon the work carried out under the Integrated City
Development Strategy (ICDS) study. The ICDS lays out an umbrella framework for urban
planning and development, establishes a set of principles and planning concepts that, when
adopted, will enable Sialkot to grow in a manner that is inclusive, climate resilient, competitive,
and enhances livability. The ICDS also dovetails into existing Government of Punjab plans to
introduce effective and futuristic planning framework for its secondary cities. Hence, its adoption
will ensure that the investments in the water and sanitation (WATSAN), SWM, and Roads and
Transport sectors’, and associated institutional capacity building, and social and environmental
safeguards proposed under the PFS, contribute towards its vision rather than proves to be
disconnected interventions. With particular reference to environmental protection, moving
forward, the ICDS will need to codify Strategic Environmental Assessment (SEA) approaches
and measures in planning methodologies and mechanisms that are adopted by city
administrations.
F.
Policy, Legal, and Institutional Framework, for Environmental
Protection
Policy Framework
23.
The paramount document for environmental legislation and policy is the Constitution of
Islamic Republic of Pakistan 1973. It safeguards the fundamental rights as to life and health of a
citizen. Since devolution under the 18th constitutional amendment, the subject of environment
has been devolved to the Provinces.
(i)
National Environmental Policy
24.
Government of Pakistan launched its National Environmental Policy (NEP), in March
2005, which provides an overarching framework for addressing environmental issues. Section 5
of the policy commits for integrating environment into development planning as instrument for
achieving the objectives of NEP. It further states in clause (b) of Subsection 5.1 that,
Environmental Impact Assessment (EIA) related provisions of Environmental Protection Act of
1997 will be diligently enforced for all development projects. It also provides broad guidelines to
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Chapter VII
the Federal Government, Provincial Governments, Federally Administrative Territories and Local
Governments to address their environmental concerns and to ensure effective management of
their environmental resources.
(ii)
National Climate Change Policy
25.
The National Climate Change Policy provides a framework for addressing issues that
Pakistan faces or will likely face in future due to changing climate. In view of the Country’s high
vulnerability to the adverse impacts of climate change, in particular extreme events, the policy
focuses on adaptation efforts. Vulnerabilities of various sectors have been highlighted and
adaptation measures spelled out. These include policy measures to address issues in sectors
such as water, agriculture, forestry, coastal areas, biodiversity and other fragile or threatened
ecosystems. Even though Pakistan’s contribution to global greenhouse gas (GHG) emissions is
extremely small, mitigation measures have nonetheless been incorporated for energy, forestry,
agriculture, and livestock sectors. Appropriate measures related to disaster preparedness,
capacity building, institutional strengthening; technology transfer; introduction of the climate
change in higher education curricula; ensuring environmental compliance through Initial
Environmental Examinations (IEE) and EIA in the development process; addressing the issue of
deforestation and illegal trade in timber; promoting Clean Development Mechanisms (CDM); and
raising Pakistan’s stance regarding climate change at various international forums, have also
been incorporated in the policy. The policy, therefore, provides a framework for subsequent
development of Action Plans for adaptation and mitigation initiatives. This policy is a meant to be
a ‘living’ document that can and should be reviewed and updated as needed.
(iii)
Other National Policies
26.
The major national policies of Pakistan related to the environment, and specifically, subsectors under consideration as part of this PFS study are listed in Table VII-1.
Table VII-1:
Environment Related National Policies
#
Name
Year
1
National Water Policy (Draft)
2002
2
National policy for Development and Empowerment of Women
2002
3
National Resettlement Policy (Draft)
2002
4
National Environment Policy
2005
5
National Sanitation Policy
2006
6
National Drinking Water Policy (Draft)
2007
Source: Pakistan Environmental Protection Agency
Laws and Legislations Relevant to Environmental Protection and
Proposed Project Interventions
27.
Government of Pakistan has promulgated laws/ acts, regulations and standards for
protection, conservation, rehabilitation and improvement of the environment. In addition to Laws
and Acts, procedures governing development projects have also been developed for EIA. Major
Laws and legislations relevant to environment in Pakistan and for proposed projects are outlined
in Table VII-2. Included under Annex 1 are Federal and Provincial laws that might be applicable
to proposed projects.
Page 415
Table VII-2:
Chapter VII
Laws and Legislations Relevant to Environment and Proposed Projects
Purpose Sector
Legislation
Environmental
Protection
The Pakistan Penal Code (1880)
Pakistan Environmental Protection Agency Review of IEE and EIA
Regulations (2000)
Punjab Environmental Protection Act, 2012
Land Use and Land
Acquisition
Land Acquisition Act, 1894
The Punjab Development of Damaged Areas Act, 1952
The Punjab Soil Reclamation Act, 1952
The Punjab Development of Cities Act, 1976
Water Quality and
Wastewater, and Water
Resources
The Pakistan Penal Code, 1860
The Canal and Drainage Act, 1873
The Factories Act, 1934
On-Farm Water Management and Water User's Associations
Ordinance, 1981
Air Quality
The Pakistan Penal Code, 1860
The Motor Vehicles Ordinance, 1965 and Rules, 1969
The Punjab Local Government Act 2013
Toxic and Hazardous
Substances
The Pakistan Penal Code, 1860 The Explosives Act, 1884 The Factories Act, 1934
The Agricultural Pesticides Ordinance, 1971 and Rules, 1973
Solid Wastes
The Punjab Local Government Act 2013
Punjab Environmental Protection Act, 1997 Transport Development
The Provincial Motor Vehicles Rules, 1969
The Motor Vehicles Act, 1939 The Fatal Accidents Act, 1855 The National Highway Safety Ordinance, 2000
Environmental Standards
28.
The Pakistan Environmental Protection Council first approved these standards in 1993.
These were later revised in 1995 and 2000 as National Environment Quality Standards (NEQS).
Subject to the provisions of the Pakistan Environmental Protection Act, 1997 and the rules and
regulations made there under, no person shall discharge or emit or allow the discharge or
emission of any effluent or waste or air pollutant or noise in an amount, concentration or level
which is in excess of the NEQS or, where applicable, the established standards. The NEQS
specify the following standards:
28.1. Maximum allowable concentration of pollutants in municipal and liquid industrial
effluents discharged into inland waters, sewage treatment facilities, and the sea (three
separate sets of numbers).
28.2. Maximum allowable concentration of pollutants (16 parameters) in gaseous
emissions from industrial sources.
28.3. Maximum allowable concentration of pollutants (2 parameters) in gaseous
exhaust and noise emission from vehicles.
Page 416
Chapter VII
EIA Regulations
29.
The GOP regulations, Section 11 and 12 of the Punjab Environmental Protection Act
(PEPA) dealing with discharge and emissions, and the Pakistan Environmental Protection
Agency Review of IEE and EIA Regulations (2000), which categorize development projects
according to costs and features such as environmental sensitivity (Clause 1, Schedule II, Annex
3) or other factors deemed important (Clause J, Schedule II, Annex 3).
30.
The proponents of projects that have reasonably foreseeable impacts are required to
submit an IEE for their respective projects (Schedule 1, See Annex 2). Projects that can have
significantly adverse environmental impact (Schedule 2, See Annex 3) are required to submit an
EIA to the respective provincial environmental protection agency.
(i)
Approval of IEE/ EIA
31.
The Punjab Environmental Protection Department (EPD) must communicate its approval
or otherwise within four months from the date the IEE or EIA is first filed. If the submission is
complete and complies with procedure, but no response is given, then the IEE or EIA shall be
deemed approved. The EPD can, at its discretion, extend the four months period if justified due
to the nature of the project.
(ii)
Environmental Monitoring and Audit
32.
The project proponent will be responsible for ensuring implementation of those
environmental mitigation measures that are recommended in the IEE or EIA. The corresponding
Environmental Management Plan (EMP) should be prepared during the planning phase of the
respective IEE/ EIA. The EMP should include specific mitigation measures, environmental
monitoring requirements, institutional arrangements and its corresponding budget.
(iii)
Development of EMP
33.
The EMP is a crucial document that should be prepared during the planning phase. After
its approval by the EPD, the EMP is to be taken into consideration when defining the contractual
obligation to be imposed on the contractor. The implementation of the EMP while performing the
corresponding construction works is the responsibility of the contractor. The contractor is
responsible for environmental monitoring and reporting activities. The project proponent must
ensure that the performance of the contractor is in accordance with EMP. The contractor should
submit annually a report on EMP implementation (See Section 7 for indicative budget for EMP
implementation and monitoring).
ADB’s Environmental Impact Assessment Procedures and Guidelines
34.
All the development projects funded by ADB have to adhere to stipulated guidelines for
Environmental Impact Assessment, including potential climate change impact. ADB’s
environmental assessment process starts as soon as potential projects for ADB financing are
identified, and covers all project components whether financed by ADB, co-financiers, or the
Government. All loans and investments are subject to classification for the purposes of
determining environmental assessment requirements. Environment categories are to be
determined using Rapid Environmental Assessment checklists. These checklists consist of a set
of questions relating to (i) the sensitivity and vulnerability of environmental resources in project
area, and (ii) the potential for the project to cause significant adverse environmental impacts.
35.
The determination of the environment category is to be based on the most
environmentally sensitive component of the project. This means that if one part of the project
carries potential for significant adverse environmental impacts, then the project is to be classified
as Category A, regardless of the potential environmental impact of other aspects of the project.
Similarly, if the most sensitive component is classified B, then the project is to be classified B.
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Chapter VII
Only those aspects of the project with potential for significant adverse environmental impacts
need to be assessed in detail (See Table VII-3 for details)
36.
Projects are tentatively assigned a category during an initial screening of anticipated
potential environmental impacts on the basis of a concept document. However, categorization is
an ongoing process, and the environment category can be changed at any time with the approval
of the chief compliance officer as more detailed information becomes available and project
processing proceeds. This policy aids the Bank in screening projects to identify potential impacts
early in the project cycle and categorize projects according to the level of environmental impacts.
The categories trigger varying requirements regarding pre-project studies, participation, and
information disclosure.
37.
The borrower is required to conduct assessment(s) and avoid or minimize the identified
impacts of the project and also to examine the project alternatives. Also, the borrower is required
to assess not only impacts on immediate project area, but project's "area of influence" (e.g.,
access roads, power lines, pipelines) as well as unplanned developments (e.g., spontaneous
settlements, flooding) induced by the project.
Table VII- 3:
Category A
Category B
Category C
Category F
ADB Environmental Safeguards Categories
A proposed project is likely to have significant adverse environmental
impacts that are irreversible, diverse, or unprecedented. These impacts may
affect an area larger than the sites or facilities subject to physical works. An
EIA, including an EMP, is required.
The proposed project’s potential adverse environmental impacts are sitespecific, few if any of them are irreversible, and in most cases mitigation
measures can be designed more readily than for category A projects. An
IEE, including an EMP, is required.
A proposed project is likely to have minimal or no adverse environmental
impacts. An EIA or IEE is not required, although environmental implications
need to be reviewed.
A proposed project involves the investment of ADB funds to or through a
financial intermediary. The financial intermediary must apply and maintain an
environmental and social management system, unless all of the financial
intermediary's business activities have minimal or no environmental impacts
or risks.
Source: ADB Website, http://www.adb.org/site/safeguards/safeguard-categories
G.
Environmental Categorization of Proposed Projects
38.
The first batch of proposed investments covers projects in road and transport
infrastructure, water supply, sewage and drainage, sewage treatment, and SWM. Projects have
been categorized based on preliminary assessment of anticipated environmental impacts using
ADB’s REA checklist and overall categorization criteria (see Table VII-3); and on the basis of
project cost and/or size criteria in line with Government of Punjab IEE and EIA requirements (see
sections “D”, “F” and “G” under Annex 2 and Annex 3). Given below in Table VII-4 is an initial
environmental categorization of proposed projects.
Page 418
Table VII- 4:
Sector
A. Transport
B. Water
Proposed Projects and ADB and Government of Punjab Environmental
Protection Department Categorization
City/Projects
ADB Project
Category
GoPB Environment
Protection Requirement
1. Bus Route, Improvement/ Upgradation (est. route length: 33km)
C
Not scheduled
2. General Bus Stand,
Improvement/Up-gradation (est. area
of 6.5 hectares)
C
Not scheduled
3. Traffic Signals, Intersections Upgradation with signage
C
Not scheduled
4. Signage on Roads and Lane
Marking
C
Not scheduled
5. Road-side Parking Up-gradation
(Existing)
C
Not scheduled
6. Under-pass (At, Khadim Ali Rd.)
B
IEE/EIA
7. Under-pass: Approach Roads
section-Upgrade (Khadim Ali Rd. –
Mujahid Rd.)
C
Not scheduled
1. Rehabilitation of tubewells,
overhead reservoirs and water
distribution pipelines
B
IEE/EIA
2. Provision of new water supply
infrastructure
B
IEE/EIA
3. Supervisory Control and Data
Acquisition (SCADA), bulk metering
and distribution network improvement
C. Wastewater
D. Solid Waste
Management
H.
Chapter VII
Not scheduled
C
1. Rehabilitation of sewerage and
drainage network and disposal
stations
B
IEE/EIA
2. Construction of trunk sewers and
sewerage system extensions
B
IEE/EIA
3. Construction of sewage treatment
plants
B
IEE/EIA
1. MSW collection and transfer system
C
IEE/EIA
2. MSW disposal facilities
C
IEE/EIA
3. Dumpsite remediation program
C
Not scheduled
4. Sector, support programs
C
Not scheduled
Environmental Risk Assessment and Climate Change Resilience
Appraisal
39.
This section will detail environmental risk assessment of proposed projects in the roads
and transport, water, wastewater and drainage, and solid waste management sectors that fall
under category A or B using the ADB REA Checklist. Also presented is a preliminary climate
change resilience appraisal of sub-projects most likely to be affected by climate change related
events.
Page 419
an

Medium Term Infrastructure Investment Plan

Transcription

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