PEARL: NETWORKING OF CITIES PROGRAM UNDER JNNURM 1
Chetan Vaidya, Vijay Dhar and Nilanjana Dasgupta Sur 2 , NIUA
Background
The Jawaharlal Nehru National Urban Renewal Mission (JNNURM), launched by
Government of India in 2005, is aimed at facilitating cities to take financially sustainable initiatives to improve service levels. The objective is to create economically productive, efficient, equitable and responsive cities. The Mission focuses on: integrated development of infrastructure services; securing linkages between asset creation and maintenance for long term project sustainability; accelerating the flow of urban sector investments; planned development of cities; renewal and re-development of inner city areas; and universalisation of urban services. Under the Mission, an investment close to Rs. 100,000 crore is planned for the period 2005 – 12, to be pooled by national government, state governments and Urban Local
Bodies (ULBs). The JNNURM has two sub-missions: Urban Infrastructure and Governance
(UIG) and Basic Services to the Urban Poor (BSUP), and these are being implemented by
Ministries of Urban Development (MoUD) and Housing and Urban Poverty Alleviation
(MoHUPA), Government of India (GoI), respectively.
JNNURM links investments with policy reform to make cities work more efficiently and effectively. The expected outcomes from the reforms are: (i) universal access to a minimum level of services; (ii) establishment of city wide framework for planning and governance; (iii) modern and transparent budgeting, accounting and financial management systems at the municipal level; (iv) financial sustainability for municipalities and other service delivery institutions; (v) introduction of E-governance in the core areas of municipal governance; and,
(vii) transparency and accountability in urban service delivery and management. The state
1 Paper published in Context Journal of DRONA, December 2010.
2 Prof. Vaidya is Director NIUA, Vijay Dhar is Professor and Ms. Sur is Research Fellow at NIUA.
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governments and the cities have given their commitment to implementing these reforms in order to receive JNNURM funds for urban investments.
Peer Experience and Reflective Learning Network (PEARL)
The JNNURM aims at transforming urban policies and city management practices for creating dynamic and sustainable cities that would result in improvement in quality of life in cities.
The challenges in achieving the objectives of the Mission are: (i) wide coverage both in terms of cities and population; (ii) wide scope in terms of programme components and urban reforms being implemented; and (iii) limited capacity in the state and ULBs to implement the programme.
The state and city governments have limited capacities to access JNNURM funds for infrastructure investments and to undertake the mandatory urban reforms. Knowledge support and knowledge sharing amongst JNNURM cities for project implementation, urban reforms and city governance has emerged as a key area for capacity building of ULBs to achieve objectives of the JNNURM. It was felt that cities identified under JNNURM, for financing urban infrastructure and other aspects of urban development, can network amongst themselves for cross learning and sharing knowledge, hence effectively manage their cities. “Peer
Experience and Reflective Learning” (PEARL) is an initiative under JNNURM to support cities to actively pursue activities in implementation of projects and reforms.
Objectives of PEARL
The main objective of the PEARL is to create an effective network of JNNURM cities for cross learning and sharing knowledge on urban reforms, city governance and urban infrastructure projects so that objectives of the Mission can be successfully achieved to make cities more livable, economically vibrant and environmentally sustainable. Focus of PEARL activities are on installing various processes and achieving outcomes of JNNURM - projects
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and reforms. It would provide a forum for sharing knowledge and experiences in implementing urban reforms and city governance, and the challenge would be to sustain the networks beyond the Mission period.
Grouping of Mission Cities
JNNURM cities are organized into 5 Groups/Networks having similar socio-economic profile, complexities of urban problems and issues, size and urban growth patterns, along with natural affinity to peer pair were formed. The ‘peer-pairing’ for cities in JNNURM is on the basis of:
 Socio-economic profile and key economic drivers
 Size of the city
 Urban growth pattern
 Urban character/complexities
Therefore, under PEARL, the Mission cities have been categorized into 5 groups on the basis of their urban character and urban issues facing them and these groups are (a) Mega Cities; (b)
Industrial Cities; (c) Mixed economy; (d) Heritage Cities; and (e) Cities of Environmental
Importance (Table 1).
Table 1: PEARL Peer-Pairing and Networks
PEER PAIRING TO FORM NETWORK FOR PEARL, JNNURM
Group A- Mega
Cities, with Global
Character in Socio-
Economic Profile
Delhi
Greater Mumbai
Ahmedabad
Bangalore
Chennai
Kolkata
Hyderabad
Pune
Surat
Group B –
Industrial Mega
Cities
Faridabad
Ludhiana
Cochin
Vishakapatnam
Kanpur
Coimbatore
Jamshedpur
Asansol
Dhanbad
Indore
Nashik
Vadodara
Nagpur
Rajkot
Group C – Mixed
Economy Cities
Service/Trade/
Institutional functions
Patna
Bhopal
Jaipur
Lucknow
Meerut
Jabalpur
Vijayawada
Guwahati
Jammu
Raipur
Ranchi
Thiruvanthapuram
Bhuvaneshwar
Chandigarh
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Group D – Cities of Heritage
Significance
Madurai
Varanasi
Agra
Amritsar
Allahabad
Panaji
Bodhgaya
Ujjain
Puri
Ajmer-Pushkar
Mysore
Pondicherry
Mathura
Haridwar
Group E –
Cities of
Environmenta l Importance
Itanagar
Imphal
Shillong
Aizawal
Srinagar
Kohima
Gangtok
Agartala
Dehradun
Nainital
Shimla

Nanded,
Porbander
Tiruppati
The role of the mission cities is to use the networks for cross learning and sharing knowledge on successful urban projects, best practices, reforms and city governance – key challenges, key processes and strategies for removing roadblocks and impact so that objectives of the mission can be successfully achieved.
Role of National Coordinator
The National Institute of Urban Affairs (NIUA) has been designated as National Network
Coordinator by the MoUD to coordinate various PEARL activities and develop effective linkages between the JNNURM cities. The key task assigned to NIUA is to ensure smooth functioning of the PEARL networks and assist the Mission Directorate in supporting and monitoring the programme.
The specific responsibilities assigned to the National Network Coordinator are as follows:
 Development of Knowledge Products - facilitate PEARL Knowledge Managers
(KMs)/partners to identify, document and share best practices in project development, financing and implementation, and urban reforms under JNNURM.
 Knowledge Dissemination - o
Host a website and publish periodic newsletters for exchange of information, innovation and initiatives.
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o Facilitate KMs/partners to organise workshops for participating ULBs and KMs to exchange experiences and lessons learnt.
 Organise national workshop for exchange of experiences and lessons learnt.
Role of Knowledge Managers (KMs)
The details of the Network Convener and KMs for each of the groups are provided in Table 2.
Table 2: Selection of KMs and Network Conveners
(
Group
Group A – Mega cities
Group B – Industrial Mega cities
Group C – Mixed Economy cities
Group D – Cultural/religious cities
Group E – Hill cities
Knowledge Manager (KM)
Mega Cities Association (MCA), Kolkata
AIILSG, Mumbai
City Managers Association of MP (CMAMP), Bhopal
CEPT, Ahmedabad
UAA, Nainital,
The role, functions and responsibilities assigned to KMs includes the following:
Network Convener
Mega City Forum
Nagpur
Bhopal
Agra
-
 Facilitating cross-learning among cities
 Create platforms for reflective learning
 Professional support
 Exchange expertise, experience and information
 Network management
 Creating knowledge bank and technical pool
Progress: Key Milestones
This mega programme has already taken its flight and has achieved the following key milestones:
 PEARL network was launched on January 31, 2007 at Hyderabad. Over 100 delegates spreading across 63 JNNURM cities and 20 Indian States participated in the event, which included a total of 17 mayors/ chairmen; 24 commissioners/secretaries/chief executive
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officers; 43 other officials representing cities and state level nodal agencies; and, 24 officials from Ministry of Urban Development.
 The MoUD identified Network Convener and Potential Knowledge Managers. National
Institute of Urban Affairs (NIUA) was identified as the National Network Coordinator for
PEARL activities.
 First Roundtable of KMs and mission cities was held on December 4, 2008 at NIUA, New
Delhi. The main objective of the roundtable was to discuss contents of the proposed
PEARL website – India Urban Portal (www.indiaurbanportal.in), which is the gateway to the 65 cities under JnNURM and linked to the main website of JnNURM. Extensive discussions on identifying the knowledge gaps and information sharing, best practices and crosscutting issues, etc. were conceded in the workshop.
 Regional Workshop on Heritage, Culture and Religion was held on February 2, 2009 at
Madurai. The main objective of the workshop was to share and discuss various initiatives being taken under the 15 identified JNNURM Cities falling under the "D" Group under
PEARL. Key issues at the ULBs level that included lack of linkage between urban planning and heritage development; lack of comprehensive guidelines and clear road map for action to protect the heritage cities were discussed.
 Second Group Workshop on Mega Cities was held in New Delhi on 4th July 2009. The workshop was attended by senior officials from the Ministry of Urban Development
(MoUD), Mega City Municipal Corporations, Mega Cities Association (MCA), NIUA and other eminent members. The main objective of the workshop was to discuss on the
JNNURM Urban Reforms, PPP and the innovative initiatives taken in this regard in the respective cities of the Mega Cities Group.
 A National Workshop on PEARL was held in Hyderabad on November 6, 2009. It was jointly organised by the MoUD, NIUA and Administrative Staff College of India (ASCI).
The workshop was attended by over 50 participants representing MoUD, State
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Governments, Municipal Corporations, Research and Training Organisations, City
Managers Associations, Cities Alliance, Water and Sanitation Program (WSP), etc. to identify success stories; issues and way forward for the PEARL program.
 PEARL website (India Urban Portal – www.indiaurbanportal.in) is operational and linked with JNNURM website. The goal is to provide portal to urban information and to create a network, community and resource. This website documents Best Practices, Projects,
Reforms, News / Events, Data / Resources, Publications, About JNNURM, Gallery
(Photos & Films) and Newsletters, etc. The website is very popular and it received over
100,000 hits in April 2010.
 Documentation of best practices in planning and implementation of urban infrastructure projects, reforms, innovations, among others is in progress and is disseminated for cross learning among cities.
 Newsletter for PEARL, one of the major activities of the project is being carried out – First
Issue of “PEARL Update” has been circulated.
 NIUA and the Internet Business Solutions Group, CISCO systems Inc. has signed a
Statement of Work on February 9, 2009 for capacity building initiatives for making
PEARL an effective network among JNNURM cities.
 Cities Alliance (CA) and NIUA together is providing knowledge support to PEARL through Knowledge Network Support Unit (KNSU). NIUA in partnership with the Water and Sanitation Program (WSP) and in agreement with MoUD has initiated the creation of a knowledge management resource centre in the area of strategic communications. The proposed resource centre will be a warehouse of communication strategies and materials developed by ULBs/water utilities and other associated organizations.
 USAID and DFID have extended support to the sponsorship between CA and NIUA. ADB agreed to provide knowledge products to the network. The World Bank Institute (WBI)
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has also shown interest to provide support on capacity building for urban officials and
KMs.
Website and Newsletter
NIUA has set up a website [www.indiaurbanportal.in] for exchange of information, innovation and initiatives. It acts as a platform to share knowledge among governments at national, state, and local levels as well as community groups and citizens in JNNURM cities. It is focusing on linking urban local bodies and community groups in the JNNURM cities. It provides information on organizations, techniques, technologies, resources, innovations, best practices, etc. for the projects and reforms. It supports output of JNNURM in terms of planning and implementation of projects and reforms and helps to set up discussion forums, news, guidance, etc. among JNNURM cities. It is JNNURM website. An average monthly hit of of more than
1,00,000 is being reached. A Help Desk for JNNURM Cities is being set up under the PEARL
Programme, where urban managers and associated sector professionals would forward their enquiries and also access this online data base as an Urban Forum in the PEARL website.
The quarterly newsletter, namely, “PERAL Update”, disseminates information on best practices, successful process of planning and implementing projects and reforms, techniques, technologies, innovations, news, etc. The website and newsletter provides a link between TAG and PEARL activities.
Documentation of Best Practices
Urban Local Bodies (ULBs) have initiated reform processes to improve the level of urban governance. While numerous ULBs are introducing change initiatives some of which are extremely progressive and impressive, these are being taken in isolation and without sharing the benefits of their experiences with others. These urban initiatives are being documented for horizontal learning among cities under PEARL. These best practices are documented and
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disseminated through web site, newsletter, regional and national workshops, TAG meetings at city and state levels, etc. Apart from this, as part of its activities PEARL is also documenting five best practices reports, which are under preparation.
The framework for analyzing case studies is:
 Sectors/ Services o Public Transport System o Roads/ Flyovers o
Sewerage/ Drainage o Solid Waste Management o
Water Supply
 Urban Reforms
 Public Private Participation (PPP)
 Urban Poverty
 Developments of Heritage Areas
 Disaster Management
 Urban Renewal
 Environment
 ICT Infrastructure
Around 64 best practices has already been documented from select cities like Surat, Nagpur,
Mumbai, Kolkata, Bhubaneshwar, Bhopal, Bangalore, Pune, Vijayawada, Ahmedabad, etc. under PEARL.
Way Forward
In year 2010-11, PEARL is continuing its activities by updating the website, organizing workshops, documenting best practices and publishing quarterly newsletters. In addition, some new activities will also be undertaken. One such activity is Twining of Cities, which is a
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concept in which a better performing city is paired with a average performing one with an objective to share and transfer capabilities from the former to the latter. This is initially being introduced to a selected five city pairs.
Another major activity is the revamping of the PEARL website. As part of networking component, it is proposed to set up an e-Group to provide a platform for sharing of knowledge and ideas among urban sector professionals especially ULBs in key areas. Therefore, mechanism to converge all ULBs and to develop proper network between them through connectivity of e-Governance system would be the goal. NIUA will build on the MoUD initiative and contribute to making PEARL an effective learning network. The basic structure of the network has been installed with the appointment of the KMs and the cities have been initiated into consultative discussions. A new group on North-East Cities is being considered to develop mechanisms for assessment of knowledge needs of the cities, access and develop new knowledge products and sharing these with the cities. Building capacities of the cities to use the knowledge for better city governance, more efficient urban infrastructure investments and introducing urban reforms are the other set goals for this programme.
PEARL would act like a horizontal learning platform for knowledge sharing and crosslearning activities. The coverage of the project initially would be the select JNNURM cities but would be gradually expanded to include towns/cities covered under Urban Infrastructure
Development Scheme for Small and Medium Towns (UIDSSMT). The Project would be implemented over the period till March 2012, co-terminus with the term of the JNNURM.
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