Volume II - Issue 08
The locus of pov-
erty is moving to
cities. In the next
two decades, more
than 95 per cent of
the population
growth in the
world’s poorest
regions will occur
in urban areas,
with the result that
cities will become
the predominant
sites of poverty in
coming years.
Malnutrition, hun-
ger and disease
are becoming
more prevalent in
slums, particularly
in developing
countries. The ur-
ban poor are much
more vulnerable to
income-dependant
hunger.
—State of the World’s
Cities 2006/7
INSIDE THIS ISSUE:
Citizen’s Report Card on 2
Public Services
Landmark Initiatives for 4 vidual level households
Good Governance in Indore
June 2006
Poverty Mapping in Bhopal, Indore, Gwalior & Jabalpur
drinking water. Findings of the and badly maintained sanitation
Identifying the poor, their condi-
tion, needs; and addressing their survey and analysis are pre- and sanitary condition. In quanti-
requirement through pro-poor sented in Table below. tative term, the status of access to
delivery approach is the primary The study revealed a high per- sanitation is worse than the water
objective of the poverty mapping. centage of households having situation.
The Government of Madhya access to improved water Apart from the lower availability
Pradesh (GoMP) has accepted sources, which is indicative of the and accessibility, its use is limited
the Municipal Action Plan for presence of infrastructure but by the poor maintenance, noted
Poverty Reduction (MAPP), which does not necessarily ensure the in terms of irregular or no water
is based on city wide poverty required availability of water to supply, bad sanitary condition
mapping and is an instrument for the households. Qualitative find- and lack of proper drainage,
slum level intervention to achieve ings reveal the seasonality of among many. Qualitative survey
the target 10 of Millennium de- water availability, with predicta- noted that even the households,
velopment Goal no. 7. bly the summer season being the which have got personal toilet,
On the GoMP’s request, UN- worst for the inhabitants in the prefer to go for open defecation.
HABITAT has carried out a city- poverty pockets. Water supply One important reason for this has
wide Poverty Pocket Situational through municipal taps get re- been lack of water for cleaning,
Analysis (PPSA) for mapping the duced considerably as does sup- flushing the toilets. The other
poverty and environmental infra- ply through hand pump, bore reason has been the lack of suffi-
structural deficiencies in each wells and tube wells. Water is cient drainage system, which
pocket for prioritizing interven- also supplied through municipal results in choking of these toilets
tankers, but this also fails to fulfill very frequently.
tions in the four project cities. The
PPSA questionnaire was evolved the requirements of water. The
On the basis of Poverty Map-
in consultation with GoMP, DFID qualitative survey also found that
ping, the Municipal Corpora-
and WaterAid India, the cooper- even where sources of water
tions of Gwalior, Bhopal, Ja-
ating partner of UN-HABITAT, were present the dependence of
balpur and Indore have selected
which became the basis of identi- the community was gradually
16, 17, 15 and 14 slums, re-
fying the poverty pockets for increasing on the same source
spectively for implementation of
implementing the MAPP. The over time due to an increase in
Slums environmental Sanitation
survey in the 4 cities was under- population. Lower access to qual-
Initiatives under Water for
taken by the joint team of the ity sanitation facilities and ser-
Asian Cities Programme of UN-
Municipal Corporations and vices is mainly hindered by the
HABITAT.
local NGOs in a three tier ap- current status of low availability
proach, which involved Details Bhopal Indore Gwalior Jabalpur
spatial mapping of infra-
Total No of Poverty Pockets (PPs) Identified 380 604 229 324
structural deficiencies in
the slums by splitting the Total Households (HH) 128,170 176545 60,787 109,866
slum into a number of Number of HH living in the PPs Below 63,921 19614 10,452 26,726
Poverty Line (BPL)
clusters and base line indi-
% of HH living BPL 49.8 30 17.19 24.33
survey for monitoring the % HH living in the PPs with access to
improved water source (average)
95.80 66 96.11 96
MDG parameters of ac- % HH living in the PPs with access to 58.0 84 68.49 54
cess to improved sanitation improved sanitation (average)
and sustainable access to % HH living in the PPs defecating in open 42 16 31.50 45.7
 PAGE - 2
Citizen’s Report Card on Public Services
Citizen’s Report Card on Public Services is
a strategic tool developed by Public Affairs
Centre (PAC), an NGO in Bangalore. The
aim of this tool is to help citizens provide
direct feedback and engage state agen-
cies in efforts to improve service delivery
and governance.
Report Cards are used to aggregate and
rank the services, like water supply, roads,
public hospitals etc., through scientific
sample surveys. Feedback is collected from
users of each service about key issues. This
enables policy makers and citizens to ex-
amine intensity of difficulty experienced by
the citizen such as breakdowns, delays
and corruption specifically in each service,
and the relative performance of different
agencies on these dimensions of service.
Report Cards originated from a modest
private initiative by Dr. Samuel Paul in the
early nineties. In 1993, Dr. Paul with sev-
eral friends initiated a project to produce a
“Report Card on Public Services” in
Bangalore to demonstrate what civil soci-
ety could do to improve governance. This
represented a novel approach that re-
ceived both national and international
attention.
The approach entailed a random sample
survey of the users of different public ser-
vices (utilities) in the city, and the aggrega-
tion of the public feedback as a basis for
rating the service providers. The focus on
urban public services stems from the con-
cern about the deterioration of our cities
and the realization that improved produc-
tivity calls for an enhancement of the qual-
ity of urban living. This exercise generated
much public and media interest in Banga-
lore and provided a stimulus to several
public service agencies in the city to re-
view and improve their performance and
attitude towards its customers.
Content of Report Cards
Report Cards are simple aggregations of
feedback from users of key public services
(like drinking water, roads, public hospi-
tals etc.), collected through scientific sam-
ple surveys. PAC’s early Report Cards
focused on major Indian cities. Feedback
was collected from users of each service
about key issues such as:
a. availability and quality (such as regular-
ity of water supply and quality of water);
b. problems or deficiencies encountered
(breakdowns in supply);
c. effectiveness of grievance redressal
mechanisms (time taken to act on com-
plaints or applications for connection);
d. behaviour of staff they interact with (such
presence at seat and courtesy);
e. hidden costs incurred; and
f. overall satisfaction with the service.
The data was then aggregated to rate and
rank the services on the basis of the feed-
back collected. This enabled policy makers
and citizens to examine the intensity of
difficulties experienced by the citizen such
as breakdowns, delays and corruption
specifically in each service, and the rela-
tive performance of different agencies on
these dimensions of service.
Report Cards operate with a simple but
flexible approach for organizing public
feedback, with the following objectives:
• Generate citizen feedback on the de-
gree of satisfaction with the services
provided by various public service agen-
cies;
• Catalyze citizens to adopt proactive
stances by demanding more account-
ability, accessibility and responsiveness
from service providers;
• Serve as a diagnostic tool for service
prodders, external consultants and ana-
lysts/researchers to facilitate effective
prognosis and therapy;
• Encourage public agencies to adopt
citizen friendly practices, design per-
formance standards and facilitate trans-
parency in operations.
The steps in preparing a Report Card con-
sist of:
a. selection of households for survey
through stratified random sample meth-
ods;
b. design of questionnaires;
c. survey of selected households;
d. focus group discussions and mini-case
studies;
e. documentation of the information pro-
vided to the public by service providers.
This blend of techniques enhances the
overall validity, by reducing “research
June 2006
bias”, revealing errors in measurement
and verifying and cross-checking data.
Systematic action takes place after the
research phase. Since citizens cannot
voice their dissatisfaction with monopoly
service providers, by moving over to a
competitor or alternative, these user sur-
veys are a surrogate for competition.
Widespread dissemination of negative
feedback by citizens then acts as a trigger
for initiating change efforts. This percep-
tion is then used to stimulate collective
action by citizens and also to provide
leadership in the agencies an opportunity
to bring in effective reforms and strategic
reorientation.
Report Card on Bangalore
In the course of the First Report Card on
Public Services in Bangalore (1993), eight
civic agencies in the city were scrutinized
and critiqued by the residents. After five
years, civic agencies in Bangalore were
put to test once more. Have they im-
proved? What about corruption? How
satisfied are the residents of Bangalore
with the civic agencies? The city was revis-
ited through the “Report Cards” to explore
these issues.
The Methodology: Feedback was
collected from slum (839) and non-slum
(1,036) households separately in Banga-
lore. The sample has been selected ensur-
ing representation to all categories of citi-
zens by geographic location as well as
income.
The agencies covered were Bangalore
Water Supply and Sewerage Board
(BWSSB), Bangalore City Corporation
(BCC), Karnataka Electricity Board (KEB),
Bangalore Telephones, Ration Shops, Po-
lice, Public Buses, Regional Transport Of-
fice (RTO), Public Hospitals and Bangalore
Development Authority (BDA). Refer Table:
“Feedback from Users of Services” on the
following page.
The higher levels of satisfaction in the case
of those residing in the slums could be on
account of two factors:
a. general expectations about the ser-
vices are low
b. the 2-point scale used in place of the
standard 7-point (to reduce complex-
ity) made respondents in slums choose
either fully satisfied or dissatisfied.
VOLUME II - ISSUE 08 PAGE - 3

Table: FEEDBACK FROM USERS OF SERVICES public services. Report Card studies are not
merely a means of collecting feedback on
Agency General Households Slum Households existing situations from citizens. They are also
Usage Satisfied Dissatisfied Usage Satisfied Dissatisfied means for testing out different options that
citizens wish to exercise, individually or col-
BWSSB 84 42 18 87 62 38
lectively, to tackle current problems. For ex-
KPTCL 99 47 14 86 73 27 ample, the Bangalore study enquired into
BMP 48 41 16 63 65 35 whether citizens were willing to pay more or
Telephones 41 67 7 -- -- -- be part of citizens’ bodies made responsible
for managing garbage clearance.
Ration Shops 78 52 10 87 70 30
An important aspect of Report Cards is the
Police 7 34 26 9 25 75
credibility they have earned. The conclusions
Public Buses 82 32 18 95 83 17 in a Report Card are not based on the opin-

RTO 20 32 27 -- -- -- ions of a few persons who think in a particu-

Hospitals 25 36 14 32 74 26
lar manner, nor based on the complaints of a
few aggrieved citizens. The methodology
BMC Schools -- -- -- 32 74 26
involves systematic sampling across all sub-
BDA 5 16 38 -- -- -- sections or strata of citizens including those
who are satisfied as well as the aggrieved
The Report Card on Public Services for the and presents a picture that includes all opinions.
Urban Poor in Mumbai This is possible because the methodology makes use of advanced
Public services are the lifeline for low-income households, espe- techniques of market research, for selecting samples, designing
cially those living in urban slums. The city of Mumbai is estimated questionnaires, conducting interviews and interpreting results. As
to have a population of 12.5 million of which 5.5 million are be- a result, the report cards are able to provide reliable and compre-
lieved to be living in slums. Slum dwellers occupy nearly 12% of hensive representation of citizens’ feedback. The Report Card
the total housing area in the city. The population density in the studies benchmark the quality of public services as experienced
slums is a phenomenal 24,300 people per square kilometre on an by citizens.
average five persons share a dwelling space of an average size of Impact of Report Cards
15 square metres. The Report Card study addressed four dominant
Civic engagement of public services has been the major outcome
themes: To what extent have urban services reached the slum
of these Report Cards. From these experiences, one could per-
population? How do slum dwellers rate these services? How did
ceive the impact at five levels:
the agencies respond to complaints and please for better services?
To what extent have initiatives of urban NGOs reached slum 1. Creating Public Awareness: The Report Card findings are
dwellers? generally publicised prominently by major newspaper.
The study was built around the initiative from the Rationing Kruti 2. Strengthening Civil Society Initiatives: The findings and
Samiti (RKS), a group of 38 NGOs and local groups in Mumbai. information provided by Report Cards have largely succeeded in
The database that emerged from the study made possible an in- catalyzing citizens to take proactive and creative steps.
depth assessment of the stress experienced by slum dwellers while 3. Mobilisation of Stakeholders: Seminars and meetings
using public services, the result of their problem-solving initiatives, are also organized in connection with the release of Report Card
hidden costs and options for citizens participation, and also pro- findings, involving local activists in civic affairs, representatives of
vided insights for follow-up action by the local NGOs. residents; associations and NGOs interested in the problems of
Building Blocks of Report Cards the urban poor.

Report Cards capture citizens’ feedback in simple and unambigu-
ous terms by indicating their level of satisfaction or dissatisfaction.
For example, the most basic but clear feedback that a citizen may
give about power supply in Bangalore is total dissatisfaction. To
appreciate this feedback, we must relate it to the ratings given to
other public services by the same person. For instance, water sup-
ply ma be rated worse than power supply. When we look at these
two pieces of information, we can conclude that power supply
may be a cause of dissatisfaction, but the priority for corrective
action may be on water supply. Hence measures of citizens satis-
faction across different public services constitute the core of Report
Card studies.
Report Card studies go into different aspects of performance in
interfacing with citizens, to provide indicators of problem areas in
4. Public Accountability: Report Card studies clearly brought
to light a wide panoply of issues, both quantitative and qualitative
that send strong signals to public-service providers.
5. Activating Stakeholder Responsiveness: Many agen-
cies used the Report Card findings as a diagnostic tool to trigger
off further studies and internal reforms.
There is wide international recognition for this tool the UNDP, the
World Bank, the DFID, and Transparency International have
systematically shared this tool across good governance projects
they work with in countries such as Bangladesh, Vietnam, Philip-
pines and Ukraine.
Source: Good Urban Governance Campaign—
Article 36 by Dr. Suresh Balakrishnan and Dr. Gopakumar K.

Landmark Initiatives for Good Governance in Indore
In 1818, the capital of Holkars was shifted from Maheshwar. Till
1870, when first municipality was constituted in Indore, the city
despite its prosperity, lacked planned development. Later it de-
veloped into a major urban centre. Glorious past of good gov-
ernance to ensure effective development of the city can be
traced in the chronology of following landmark initiatives:
• In 1856 octroi on 21 items and transit tax on Agra-Bombay • In 1924 based on the recommendations of Mr. Patrick Gid-
Road was lifted to promote trade and commerce in Holkar
State.
• 1893-94: piped water supplies from Sirpur and Piplyapala • 1925: Primary education was made compulsory for all.
water reservoirs were introduced.
• 1904: Municipality was given judicial powers equivalent to
class III Magistrate.
• 1906: Juna powerhouse was established at Indore and
power generated here was used to provide street lighting for
the city; prior to this kerosene lit lamps (from 1870-1903) and
petrol lamps (from 1903-1906) were used for the purpose.
• 1906: octroi and opium tax were lifted.
• 1906: completion of construction of Bilawali Tank.
• 1910: Ramchandra Rao and its team developed a detailed
100-sheet survey map of Indore City, promoted by the then
Holker Ruler. This set of maps still the most authentic documen-
tation of valuable property and urban conglomerate develop-
ment available and in use by City Engineer’s office.
• 1912: Municipality was made a semi-autonomous institution
through a municipality act.
• 1912: Mr. H.V. Lancaster was invited by the local body to
give advice regarding expansion of the city and improvements
in the sanitary conditions in residential areas. • 1992: commissioning of Narmada Project Phase II.
• 1913: Limbodi-Bilawali water Supply Scheme was made • Till 1995 tenure of Mayor was for one year. Mr. Madhukar
operational to control acute water crisis, Indore faced from
time-to-time in the past years.
• 1918: Mr. Patrick Giddies (eminent city planner of that pe- • Mayor Mr. Kailash Vijayvargiya had a special place in the
riod) prepared a developmental plan for planned develop-
ment of Indore city under Holker rule.
UN-HABITAT
Water for Asian Cities Programme
EP-16/17, Chandragupta Marg, Chanakyapuri
New Delhi - 110021 (India), Tel: +91-11-42225019 / 22
Fax: +91-11-24104961, Web: www.unwac.org
WAC Programme Project Office
E-1/191, Arera Colony, Bhopal - 462016
Madhya Pradesh, India, Tel: +91-755-2460835-36
Fax: +91-755-2460837, Email: Wac.India@unhabitat.org
PAGE - 4
• 1920: for the first time people used their right of franchise to
elect 15 (out of 30) members of Indore municipality.
• In 1924 overall control of Municipal government was
handed over to elected representatives and Indore became the
first city of central India to have an elected municipal govern-
ment.
dies city improvement trust was constituted with a view to en-
sure the city’s planned development.
• 1926: Indore Municipality bought a vehicle for lifting wastes
and spraying water on roads.
• 1929: detailed Areal Photography Survey was done under
Holker’s initiative for the then Holker State of Indore (6 de-
tailed survey sheets are available, presently with the City Engi-
neer’s Office).
• 1938: Mr. R.H.V. Stamper prepared a report on improve-
ment of city circulation pattern. Jawahar Marg and Subhash
Marg now form lifelines of the city, have been constructed as
per the recommendations of Stamper.
• 1939: completion of Yeshwant Sagar Dam under Maharaja
Yeshwant Roa Holker’s initiative to overcome water crisis of
Indore. The dam, still a major source of water supply to the
city, was designed by the eminent civil engineer Dr. M. Vish-
weshwaraiya.
• 1956: Indore Municipality was upgraded to Municipal Cor-
poration and Late Ishwarchandra Jain became its first Mayor.
• 1984: commissioning of Narmada Project Phase I.
Verma became first Mayor to have a tenure of five years (from
1995 to 1999).
history of Indore Municipal Corporation as its first directly-
elected Mayor under the powers developed by State Govern-
ment as per the 74th Constitutional Amendment.
Editorial Board
Malay Shrivastava, Secretary, UADD, State Govt. of M.P
Hazari Lal, Director, Govt. of India
Gulshan Bamra, Project Director, UWSEIP, Bhopal
Debashish Bhattacharjee, ADB, India Resident Mission
Aniruddhe Mukerjee, CTA, UN-HABITAT, Bhopal
Editor
Kulwant Singh, CTA, UN-HABITAT, New Delhi