2009年-世界发展银行全球_Reform_of_Gujranwala_Water_and_Sanitation_Agency___Design_of_Institutional_Framework_and_Corporate_Structure_161页_2mb

Summary of the Reform of Gujranwala Water and Sanitation Agency (WASA-G)

Core Content

This document presents a detailed analysis of the legal framework and proposes several models for the corporatization of the Gujranwala Water and Sanitation Agency (WASA-G). The report is authored by Syed Mansoor Ali Shah, a legal counsel, and outlines the scope of work, options for reform, and a roadmap for implementation.

The primary goal is to enhance the operational and financial autonomy of WASA-G, improve service delivery, and reduce political and bureaucratic interference. The report also explores the implications of the Punjab Local Government Ordinance (PLGO) and the Punjab Development of Cities Act (PDCA) on the structure and functioning of WASA-G.

Main Points

Legal Framework Overview

• WASA-G is currently an agency under the Gujranwala Development Authority (GDA), established under the PDCA, 1976.
• The Authority (GDA) is responsible for planning and development, while WASA-G handles water supply, sewerage, and drainage.
• The Authority is under the control of both the City District Government and the Provincial Government, with limited autonomy.
• PLGO overrides other laws and mandates that municipal services, including water supply and sanitation, are under the City District Government (CDG).

Key Concerns

• Lack of autonomy in financial, operational, and planning functions.
• Political and bureaucratic interference hampers performance.
• Inability to hire and fire employees.
• No clear accountability mechanisms.
• Conflict between PLGO and PDCA regarding the jurisdiction and control of municipal services.

Proposed Models for Corporatization

The report outlines several models, starting from the most practical and gradually moving towards an ideal structure.

Model-1: Remodelled WASA-G under PDCA

• Structure: Two-tier model with an Authority (planning and regulation) and Agencies (service providers).
• Features:
  • Committee is set up in the Provincial Government's Housing Department for oversight.
  • Biannual Oversight and Monitoring Rules ensure accountability and performance evaluation.
  • Financial and Strategic Development Investment Plan Rules expedite funding.
  • Tariff Adjustment and Business Plan Rules allow for flexible pricing.
  • Human Resource Rules enable the Agency to appoint staff on contract.
• Pros:
  • Easy to implement.
  • City-specific legislation.
  • Authority becomes a planning body.
  • Agencies gain autonomy and independence.
• Cons:
  • Committee is not a long-term solution.
  • No private sector involvement.
  • High government investment required.
  • Potential conflict with TMAs.
  • Does not address water resource management.

Model-2: Two-Tier Authority under PDCA

• Structure: A single WSS Authority as a service provider, with a Committee for regulation.
• Features:
  • CEO and management team appointed by the Provincial Government.
  • Biannual Oversight and Monitoring Rules and other rules are framed for accountability.
• Pros:
  • Simplified structure.
  • Less bureaucratic involvement.
• Cons:
  • Authority lacks planning capabilities.
  • No holistic city planning authority.
  • Committee may not be effective in regulating multiple authorities.
  • Annual budget release and tariff setting are still under government control.

Model-3: New Legislation – Gujranwala Water Supply and Sanitation Authority Act, 2008

• Structure: A new WSSSA is established as a body corporate.
• Features:
  • CEO and four directors appointed by the Provincial Government for a secure tenure.
  • Annual external and internal audits.
  • Water Supply and Sanitation Fund is established to manage finances.
  • Tariff setting based on usage and user classification.
  • Human Resource Plan and contractual appointments with market-based salaries.
• Pros:
  • Clear legal status and structure.
  • Secure tenure for key personnel.
  • Comprehensive financial and operational control.
• Cons:
  • Requires new legislation.
  • May conflict with existing laws like PLGO.
  • Needs approval from the Lahore High Court for Ombudsman.

Key Legislative and Policy Guidelines

• PDCA and PLGO are both relevant but in conflict.
• PDCA allows for the establishment of agencies for service delivery.
• PLGO mandates municipal services to be under the City District Government.
• WSSSA should incorporate national policies such as the National Drinking Policy, National Water Policy, and Punjab Urban Water and Sanitation Policy.

Roadmap for Implementation

• The report proposes a gradual transition from the current structure to more autonomous models.
• Model-1 is the first step, followed by Model-2, and eventually Model-3 with new legislation.
• The implementation should be guided by detailed rules and regulations to ensure accountability, performance, and transparency.

Conclusion

The reform process aims to modernize and professionalize the WASA-G by granting it operational and financial autonomy, reducing political interference, and introducing accountability mechanisms. While Model-1 is the most practical, Model-3 offers the most comprehensive and sustainable approach, though it requires new legislation and institutional support. The report emphasizes the need for a Provincial Utility Commission to ensure long-term governance and regulation.