PART 1 Final Report

Jawaharlal Nehru National Urban Renewal Mission (JNNURM) Varanasi
TABLE OF CONTENTS
Executive Summary
STAGE I: CITY ASSESSMENT
1 Project Perspective.........................................................................................................11
1.1 Introduction..............................................................................................................11
1.2 Objectives, Process and Permissible Activities .......................................................12
1.2.1 Mission objectives ...........................................................................................12
1.2.2 The Process ......................................................................................................12
1.2.3 Permissible Activities ......................................................................................14
1.3 Stakeholders Consultation .......................................................................................14
PARTA: GENERAL URBAN CHARACTERISTICS
2 City Profile......................................................................................................................16
2.1 About Varanasi ........................................................................................................16
2.2 Location ...................................................................................................................16
2.3 Linkages and Connectivity ......................................................................................17
2.4 Topography, Geology and Climate..........................................................................19
3 Demographic Profile......................................................................................................20
3.1 Population Growth & Composition .........................................................................20
3.1.1 Population Growth ...........................................................................................20
3.1.2 Population Density...........................................................................................21
3.1.3 Sex Ratio..........................................................................................................22
3.1.4 Average Household Size..................................................................................22
3.1.5 Literacy Rate....................................................................................................24
3.1.6 SC/ ST Population............................................................................................24
3.2 Social Composition..................................................................................................24
3.3 Population Projections .............................................................................................25
3.4 Key Issues ................................................................................................................27
4 Economic Base................................................................................................................28
4.1 Introduction..............................................................................................................28
4.2 Workforce Participation...........................................................................................28
4.3 Dominant Sectors & Activities ................................................................................29
4.4 Industrial development.............................................................................................31
4.5 Key Issues ................................................................................................................33
5 City Development and Land Use ..................................................................................34
5.1 Introduction..............................................................................................................34
5.2 Morphological Development of Varanasi................................................................34
5.3 Present Scenario.......................................................................................................37
5.4 Master Plan 2011 Proposals.....................................................................................38
5.5 Key Issues ................................................................................................................39
6 Urban Characteristics and Housing.............................................................................40
6.1 Urban Profile............................................................................................................40
6.1.1 The Old City ....................................................................................................40
6.1.2 The Central City...............................................................................................40
6.1.3 Peripheral areas................................................................................................41
0
6.2 Housing ....................................................................................................................41

6.2.1 Housing Densities ............................................................................................43
6.2.2 Housing Shortage.............................................................................................43
6.2.3 Distribution of households by size...................................................................44
6.2.4 Distribution of census houses by their usage...................................................44
6.2.5 Distribution of houses by type of structure......................................................45
6.2.6 Ownership status of the houses........................................................................46
6.2.7 New Development ...........................................................................................46
6.2.8 Housing In Varanasi Master Plan 2011 ...........................................................47
6.3 Key Issues ................................................................................................................47
7 Tourism and Heritage Conservation............................................................................48
7.1 Background ..............................................................................................................48
7.2 Tourism....................................................................................................................48
7.2.1 Destinations within Varanasi ...........................................................................48
7.2.1.1 Ghats 48
7.2.1.2 Temples 50
7.2.1.3 Old city 51
7.2.1.4 Sacred Kunds 51
7.2.1.5 Pilgrimage Routes 51
7.2.1.6 Banaras Hindu University 52
7.2.2 Destinations in the vicinity of Varanasi...........................................................52
7.2.2.1 Sarnath 52
7.2.2.2 Ramnagar 52
7.2.3 Fairs and Festivals............................................................................................53
MAP 5.................................................................................. Error! Bookmark not defined.
7.3 Heritage....................................................................................................................55
7.3.1 The Ganga River and the Riverfront Heritage Zone........................................55
7.3.2 Core Heritage Area ..........................................................................................55
7.3.3 Sarnath Heritage Zone .....................................................................................55
7.3.4 Current Scenario/Threat to Heritage................................................................56
7.4 Tourist Inflow ..........................................................................................................56
7.5 Tourism Infrastructure .............................................................................................57
7.6 Tourist Projection.....................................................................................................58
7.7 Tourism Policy.........................................................................................................58
7.8 Key Issues ................................................................................................................59
PART B: URBAN INFRASTRUCTURE AND GOVERNANCE
8 Water Supply..................................................................................................................60
8.1 Brief History ............................................................................................................60
8.2.1 Water Sources ..................................................................................................64
8.2.2 Water Treatment Plant .....................................................................................64
8.2.3 Storage Tanks...................................................................................................65
8.2.4 Distribution Network .......................................................................................66
8.2.5 Quality of Water ..............................................................................................68
8.2.6 System Maintenance ........................................................................................69
8.3 Future Demand.........................................................................................................69
8.4 Key issues ................................................................................................................70
1
9 Sewerage and Sanitation ...............................................................................................71

9.1.1 Main Existing Nallas and Sewers ....................................................................72
9.1.2 Sewage Pumping Stations................................................................................73
9.1.3 Sewage Treatment Plants.................................................................................76
9.2 Sewerage Districts ...................................................................................................77
9.3 Future Service Areas................................................................................................79
9.4 Key Issues ................................................................................................................79
10 Storm Water Drainage ..................................................................................................80
10.2 Key Issues ................................................................................................................80
11 Solid Waste Management..............................................................................................81
11.1.1 Generation and Composition of Waste ............................................................81
11.1.2 Storage at Source .............................................................................................82
11.1.3 Collection of Solid Waste ................................................................................83
11.1.4 Transport and final disposal.............................................................................83
11.1.5 Final Disposal Sites..........................................................................................84
11.1.6 Tools and equipments ......................................................................................84
11.1.7 Workshop.........................................................................................................85
11.1.8 Street Cleaning.................................................................................................85
11.2 Key Issues ................................................................................................................85
12 Traffic and Transportation...........................................................................................86
12.1 Present Situation ......................................................................................................86
12.1.1 City Level Road Network ................................................................................86
12.2 Signalized Intersections ...........................................................................................89
12.3 Traffic Characteristics..............................................................................................90
12.4 Vehicular Growth Rate ............................................................................................90
12.5 Parking .....................................................................................................................91
12.6 Public Transportation...............................................................................................91
12.7 Bus & Truck Terminals ...........................................................................................92
12.8 Key Issues ................................................................................................................93
13 Street Lighting................................................................................................................94
13.2 Key Issues ................................................................................................................94
14 Environmental Aspects..................................................................................................95
14.2 Water Resources ......................................................................................................97
14.3 Air Pollution.............................................................................................................98
14.4 Noise pollution.........................................................................................................99
14.5 Key Issues ..............................................................................................................100
PART C: INSTITUTIONAL FRAMEWORK AND FINANCE
15 Urban Governance and Institutional Framework ....................................................101

15.1 Introduction............................................................................................................101
15.2 Institutions for Urban Governance and Service Delivery......................................101
15.3 Institutional Roles and Responsibilities.................................................................102
2
15.3.1 Municipal Corporation of Varanasi ...............................................................102

15.3.2 Jal Sansthan....................................................................................................103
15.3.3 Jal Nigam .......................................................................................................104
15.3.4 Town and Country Planning Department ......................................................105
15.3.5 Public Works Department..............................................................................105
15.3.6 Uttar Pradesh Awas Vikas Parishad ..............................................................105
15.3.7 State Urban Development Agency.................................................................106
15.3.8 District Urban Development Agency.............................................................106
15.4 Overlapping of Roles & Accountability ................................................................107
15.5 System Deficiencies...............................................................................................108
15.6 Key Issues ..............................................................................................................109
16 Financial Profile and Credit Worthiness...................................................................110
16.1 Existing Practices...................................................................................................110
16.2 Finances of MCV...................................................................................................111
16.3 Finances for Water Supply and Sewerage .............................................................113
16.4 Key Issues ..............................................................................................................115
PART D: BASIC SERVICES FOR URBAN POOR
17 Basic Services for Urban Poor ....................................................................................116

17.1 Introduction............................................................................................................116
17.2 Slums of Varanasi ..................................................................................................116
17.3 Development of Slums...........................................................................................117
17.4 Characteristics of Slums ........................................................................................119
17.5 Status of Community Facilities..............................................................................120
17.6 Housing Scenario ...................................................................................................121
17.7 Housing requirement for Urban Poor ....................................................................122
17.8 Key issues ...............................................................................................................124
STAGE II: FUTURE PERSPECTIVE AND VISION
18 SWOT Analysis into Service Delivery........................................................................126

18.1 Introduction............................................................................................................126
18.1.1 City as a whole...............................................................................................126
18.1.1.1 Strengths 126
18.1.1.2 Weaknesses 126
18.1.1.3 Opportunities 127
18.1.1.4 Threats 127
18.1.2 Institution Level .............................................................................................128
18.1.2.1 Strengths 128
18.1.2.2 Weaknesses 128
18.1.2.3 Opportunities 129
18.1.2.4 Threats 129
18.2 Key Issues ..............................................................................................................129
19 Critical Assessment of Development Challenges & Resource Requirements ........130
19.1 Introduction............................................................................................................130
19.2 Short-term Challenges ...........................................................................................130
19.3 Medium term Challenges.......................................................................................130
3
19.4 Long term Challenges ............................................................................................130

19.5 Key Issues ..............................................................................................................131
20 Stakeholder Consultations ..........................................................................................132
20.1 Introduction............................................................................................................132
20.2 Stakeholder Workshops .........................................................................................132
20.3 Individual Consultations ........................................................................................136
21 Vision and Strategies ...................................................................................................137
21.1 Introduction............................................................................................................137
21.2 City Level Vision and Strategies ...........................................................................137
21.2.1 Vision at City Level .......................................................................................137
21.2.2 Strategies at City Level..................................................................................137
21.3 Sector wise Vision and Strategies..........................................................................138
21.3.1 Sub Mission I – Urban Infrastructure and Governance .................................138
21.3.1.1 Vision and Strategies for Traffic and Transportation 138
21.3.1.2 Vision and Strategies for Physical infrastructure 138
21.3.1.3 Vision and Strategies for Urban Renewal and Environment 139
21.3.1.4 Vision and Strategies for Heritage and Tourism 139
21.3.1.5 Vision and Strategies for Urban Governance and Finance 139
21.3.2 Sub Mission II– Basic Services to Urban Poor..............................................140
STAGE III: DEVELOPMENT PROJECTS AND REFORMS
PART A: URBAN INFRASTRUCTURE AND GOVERNANCE

22 Urban Renewal.............................................................................................................143
23 Heritage and Tourism..................................................................................................147
24 Water Supply................................................................................................................151
25 Sewerage and Sanitation .............................................................................................157
26 Storm Water Drainage ................................................................................................161
27 Solid Waste Management............................................................................................163
28 Urban Transport..........................................................................................................166
29 Environment & Beautification: ..................................................................................171
PART B: BASIC SERVICES FOR URBAN POOR
30 Basic Services to Urban Poor......................................................................................175
PART C: INSTITUTIONAL FRAMEWORK AND FINANCE
31 Institutional and Financial Reforms ..........................................................................179

31.1 Institutional Reforms .............................................................................................179
31.1.1 Introduction....................................................................................................179
31.2 Mandatory Reforms ...............................................................................................180
31.2.1 At State Level ................................................................................................180
31.2.2 At City Level..................................................................................................180
31.3 Optional Reforms Common to State and City .......................................................181
31.4 Proposed Urban Governance Reforms...................................................................181
4
31.4.1 Reforms at State Level...................................................................................181

31.4.2 Reforms at Municipal Level ..........................................................................182
31.4.2.1 Functions of LVC 182
31.4.2.2 Benefits of LVC 182
31.5 Project Phasing & Costing .....................................................................................183
31.6 Finance and Accounting Reforms..........................................................................183
31.6.1 Introduction....................................................................................................183
31.6.2 Accounting Reforms ......................................................................................184
31.6.2.1 Double Entry Based Accounting 184
31.6.2.2 Asset Accounting & Creation of Fixed Asset Register 184
31.6.2.3 Chart of Accounts 184
31.6.2.4 Accounting Manual 184
31.6.2.5 Capacity Building 184
31.6.2.6 Computerisation of Procedures 184
31.6.2.7 Benefits 185
31.6.3 Increasing the Revenue Base .........................................................................185
31.6.4 GIS Mapping..................................................................................................185
31.6.4.1 Comprehensive Database 185
31.6.4.2 Self Assessment of Taxes 185
31.6.5 Water Supply Management............................................................................185
31.6.6 Non Performance ...........................................................................................186
31.6.7 Proposed Activities ........................................................................................186
31.6.8 Project Phasing & Costing .............................................................................186
STAGE IV: FINANCIAL OPERATING PLAN AND FINANCIAL STRATEGY
32 Financial Strategy and Capital Investment Plan (CIP)............................................188

32.1 Analysis of Existing Situation ...............................................................................188
32.2 Financial Performance Indicators ..........................................................................189
32.2.1 Municipal Corporation Varanasi-Critical finance Issues...............................189
32.2.2 Review of Financials of VDA........................................................................190
32.3 Financial Operating plan........................................................................................190
32.3.1 Scenario Building...........................................................................................190
32.4 Forecast of Revenues .............................................................................................191
32.4.1 Property Tax Assessments .............................................................................191
32.4.2 Property Tax Demand ....................................................................................191
32.4.3 Tax Collection Efficiency ..............................................................................191
32.4.4 Forecast of Revenue Expenditure ..................................................................192
32.5 Capital Investment Plan .........................................................................................192
32.6 Funding of Priority Projects...................................................................................195
32.7 Financing Strategies...............................................................................................198
32.8 Stakeholder Identification for implementation of sectoral projects.......................200
32.9 Projects identified for Public Private Partnership (PPP)........................................205
32.10 Impact of FOP under Sustainable Investment Scenario ....................................206
5
LIST OF TABLES
Table 1: Population of Varanasi...........................................................................................20
Table 2: Population Growth in KAVAL Cities...................................................................21
Table 3: Population Density of Varanasi .............................................................................21
Table 4: Ward wise population densities .............................................................................21
Table 5: Ward wised density areas.......................................................................................22
Table 6: Literacy Rates in KAVAL Cities...........................................................................24
Table 7: SC/ST population for Varanasi Municipal area ..................................................24
Table 8: Population projections by different methods .......................................................25
Table 9: Population projection on decadal growth rate.....................................................26
Table 10: Employment Profile of Varanasi City.................................................................28
Table 11: Workforce Participation composition.................................................................29
Table 12: No. of Employees in Different Industries............................................................31
Table 13: Clusters and their export potential in Varanasi ................................................32
Table 14: Land Use Pattern- Previous Master Plan ...........................................................37
Table 15: Land Use Pattern – Existing Master Plan .........................................................38
Table 16: Household densities...............................................................................................43
Table 17: Distribution Of Households By Size And Number Of Dwelling Rooms..........44
Table 18: Census houses and the uses to which they are put.............................................45
Table 19: Distribution of census houses by residence, residence-cum-other use and type
of structure .....................................................................................................................45
Table 20: Distribution of households by ownership & number of dwelling rooms .........46
Table 21: New Housing schemes...........................................................................................46
Table 22: Important festivals and the venue in Varanasi city ...........................................53
Table 23: Annual Tourist Inflow ..........................................................................................57
Table 24: Availability of Rooms in Varanasi. ....................................................................58
Table 25: Demand pattern of tourist accommodation: ......................................................58
Table 26: Water Supply Sources ..........................................................................................64
Table 27: Location and capacity of Overhead tanks ..........................................................65
Table 28: Future water requirement of the city..................................................................69
Table 29: Main existing Nallas and Sewers .........................................................................72
Table 30: Estimated waste generation .................................................................................81
Table 31: Staff employed for Solid Waste Management....................................................84
Table 32: Availability of Equipment with MCV for Solid Waste Management ..............84
Table 33: Road lengths in Varanasi .....................................................................................86
Table 34: Traffic volume at major intersections.................................................................90
Table 35:Total no. of registered vehicles in Varanasi {on road vehicles}.........................90
Table 36: Annual growth rate of motor vehicles.................................................................91
Table 37: Total number of registered Vehicle in Varanasi District in 2002.....................91
Table 38: Street lighting facilities in Varanasi ....................................................................94
Table 39: Water quality of river Ganga in Varanasi.........................................................98
Table 40: Vehicular emission load in Varanasi...................................................................99
Table 41: Emissions from fuels in Varanasi (Kg/day)........................................................99
Table 42: Institutions and Their Functions .......................................................................101
Table 43: Roles and Responsibilities of Various Institutions ..........................................102
Table 44: Slums an Overview .............................................................................................119
Table 45: Slum population Data.........................................................................................120
Table 46: Structural Condition of slums ...........................................................................122
Table 47: Population projection on decadal growth rate.................................................123
6
Table 48: Housing for Urban Poor .....................................................................................123

Table 49: Details of Workshops conducted in Varanasi ..................................................132
Table 50: Projects Identified for Urban Renewal.............................................................143
Table 51: Capital Investment and Phasing required for Urban renewal .......................145
Table 52: Projects identified for Heritage Sector .............................................................147
Table 53: Capital Investment and Phasing required for Heritage..................................149
Table 54: Projects Identified under Water Supply component.......................................151
Table 55: Capital Investment required for Water Supply Projects................................154
Table 56: Projects Identified for Sewerage Sector............................................................157
Table 57: Capital Investment and Phasing required for Sewerage projects..................160
Table 58: Projects Identified for Drainage Sector ............................................................161
Table 59: Capital Investment and Phasing required for Drainage projects ..................162
Table 60: Projects Identified for Solid Waste Management Sector ................................163
Table 61: Capital Investment and Phasing required for Solid Waste Management.....165
Table 62: Projects identified for Urban Transport ..........................................................166
Table 63: Capital Investment required for Urban Transport projects ..........................169
Table 64: Projects Identified for Environment & Beautification....................................171
Table 65: Capital Investment and Phasing required for Environment & Beautification
........................................................................................................................................173
Table 66: Projects Identified for Basic Services to Urban Poor......................................175
Table 67: Capital Investment and Phasing for Basic Services to Urban Poor...............178
Table 68: Phasing of E-Governance Projects and Costs .................................................183
Table 69: Towards Property Tax Reforms........................................................................187
Table 70: Activities for Effective Water Supply Management........................................187
Table 71: Summary of Financial Profile of MCV 2001-02 to 2005-06............................188
Table 72: Summary of Revenues of MCV by Source .......................................................188
Table 73: Financial Health Indicators of MCV ................................................................189
Table 74: Total Costs of Projects for JNNURM ...............................................................193
Table 75: Costs of Priority Projects ...................................................................................196
Table 76: Requirement of funds for Priority Projects………………………………... 200
Table 77: Sectoral Funding Pattern ..................................................................................200
Table 78: Sector wise identification of stakeholder for implementation of projects .....201
Table 79: Projects identified for PPP.................................................................................206
Table 80: Assumptions for Investment Scenarios……………………………………... 208
Table 81: Projections of Finances of MCV under Static Investment Scenario……… 210
Table 82: Projections of Finances of MCV under Sustainable Investment Scenario.. 214
7
LIST OF FIGURES
Figure 1: Overview of CDP...................................................................................................11
Figure 2: Process of Preparation of CDP ............................................................................13
Figure 3: Population Growth Trend ....................................................................................20
Figure 4: Population Projection ...........................................................................................26
Figure 5: Employment Profile of Varanasi City .................................................................28
Figure 6: Employment in Different Industries....................................................................32
Figure7: First Map of Varanasi Prepared by James Prinsep in year 1822.....................36
Figure 8: Land Utilization – Previous Master Plan............................................................37
Figure 9: Land Utilization – Existing Master Plan.............................................................38
Figure 10: Comparative Land Utilization of Master Plans ...............................................39
Figure 11: Housing Stock Varanasi......................................................................................43
Figure 12: Projected Housing Shortage...............................................................................44
Figure 13: Type of Housing Structure .................................................................................45
Figure 14: Tourist Inflow of last four years ........................................................................57
Figure 15: Composition of Waste generated by different activities ..................................82
Figure 16: Trend in Revenue Receipts...............................................................................111
Figure 17: Composition of Revenue Receipts....................................................................112
Figure 18: Trend in Revenue Expenditure........................................................................112
Figure 19: Composition of Revenue Expenditure.............................................................112
Figure 20: Composition of Revenue Expenditure of MCV..............................................113
Figure 21: Collection Efficiency of Revenue of JS............................................................113
Figure 22: Trend in Collection Efficiency of JS................................................................114
Figure 23: Trend in Revenue Receipts of JS .....................................................................114
Figure 24: Trend in Capital Expenditure of JS ................................................................115
Figure 25: Trend in Revenue Expenditure of JS ..............................................................115
Figure 26: Population concentration in Slums..................................................................119
Figure 27: Zone wise Distribution of Slums ......................................................................120
Figure 28: Availability of Physical Infrastructure in Slums............................................120
Figure 29: Structural condition of Houses in Slums.........................................................122
Figure 30: Graphical representation of the process of project identification ................142
Figure 31: Public Interactions with ULBs for Various Reasons of Life .........................179
Figure 32: Public Interactions with ULBs for Various Business Reasons......................179
Figure 33: Breakdown of Costs of Various Infrastructure Projects...............................194
Figure 34: Costs for Institutional and Financial Reforms ...............................................194
Figure 35: Costs for In-situ Development of Slums..........................................................195
Figure 36: Costs for Ex-situ Development of Slums .........................................................195
Figure37: Release of funds for projects for First 2 years.................................................196
Figure 39: Funding Pattern.................................................................................................200
8
LIST OF MAPS
Map 1: Location Map of Varanasi………………………………………………….18
Map 2: Ward wise density of Varanasi……………………………………………..23
Map 3: Small & Medium manufacturing zones of Varanasi……………………...30
Map 4: City Characteristics Zones…………………………………………………42
Map 5: Major Tourist Spots of Varanasi…………………………………………..54
Map 6: Water Supply Zones………………………………………………………...63
Map 7: Location Map of Reservoirs………………………………………………..67
Map 8: Sewerage Network of Varanasi…………………………………………….74
Map 9: Sewerage Zones of Varanasi………………………………………………..78
Map 10: Transport Network of Varanasi……………………………………………87
Map 11: Location of Slums in Varanasi……………………………………………118
Map 12: Lacking facilities in slums…………………………………………………125
Map 13: Urban Renewal………………………………………………………….. 146
Map 14: Heritage………………………………………………………………….. .150
Map 15: Major Transport Proposals……………………………………………… 170
Map 16: Environment……………………………………………………………….174
9
LIST OF ANNEXURES
Annex 1: Employment, Investment and increase in Industries ………………… 220

Annex 2: Revenue Receipts of Municipal Corporation of Varanasi…………….. 222
Annex 3: Revenue Expenditure of Municipal Corporation of Varanasi………... 224
Annex 4: Revenue receipts of Jal Sansthan………………………………………... 226
Annex 5: Revenue Expenditure of Jal Sansthan………………………………….. 227
Annex 6: List of slums in Varanasi………………………………………………... 228
Annex 7: Status of infrastructure and services in slums………………………… 230
Annex 8: Stakeholder Consultations……………………………………………… 234
Annex 9: Details of equipments required for Solid waste management…..…… 242
Annex 10: Proposed intersections for improvement……………………………… 243
Annex 11: Proposed Routes for Intra city Bus service in Varanasi……………… 245
Annex 12: Prioritization of Projects on the basis of Stakeholder Consultations… 247
Annex 13: Share of ULB/PS in each of financial Year for Phase I of the Projects
under JNURM…………………………………………………………… 253
10
1 Project Perspective
1.1 Introduction
Urbanization is an inevitable process due to high pressure on land, low agriculture

income, excessive population growth and the difference between rural and urban living
standards. As per 2001 census approximately 28% of total population of India is
residing in urban areas and it is expected to reach 40% by the year 2050. It is not only
the percentage but also the shear of actual number i.e. 285.35 million in 2001, which is
mind-boggling. Urban areas play a vital role in Indian’s socio-economic transformation
and contribute 50-55% of the Gross Domestic Product (GDP).
The role and importance of urban sector was first recognized by Government by way of
constitution of National Commission on urbanization in 1987 followed by passage of
74th Constitution Amendment Act (CAA) 1992, which provided momentum to urban
sector reforms in the country. But an indifferent implementation of the 74th CAA has
resulted in continuation of statues, systems and procedures that impede the operation of
land and housing market. As a urban households particularly urban poor have limited
access to potable water, sanitation, drainage, waste disposal facilities etc.
In order to cope with massive problems that have The Mission’s statement is: Reform
emerged as a result of rapid urban growth, it has driven, fast track, planned
become imperative to draw up a coherent development of identified cities
policy/strategy to implement projects in cities on with focus on efficiency in urban
infrastructure & services delivery
mission mode. In the light of this situation, mechanism, community
Jawaharlal Nehru National Urban Renewal Mission participation and accountability of
(JNNURM) has been initiated by Government of Urban Local Bodies (ULBs)
India, which aims at creating efficient, equitable and &Parastatals towards citizens.
responsive cities.
Government of India has framed the JNNURM guidelines in such a way that applicant
Urban Local Bodiess will be eligible for grant assistance provided cities take under
certain reforms; the objective behind this is to improve infrastructure along with long-
term sustenance of the ULBs. Thus in order to be eligible for the grant assistance under
JNNURM, the Government of India requires eligible cities to –
Figure 1: Overview of CDP
Detailed
Project Reports
City
Development
Plan
Private Sector Release &

Participation leverage of
funds
11
Formulate a medium-term City Development Plan (CDP) to align with citizen’s

interests and priorities;
Prepare project proposals in accordance with CDP;
Draw up a timeline for implementing urban sector reforms.
As mentioned above, the preparation of CDP of the city is the first step towards
achieving the Mission objective, which shall further call for preparation of Detailed
Project reports (DPRs) for the identified projects, as per priority in the CDP. The
duration of the Mission is seven years beginning 2005-06. During this period, the
Misiion shall seek to ensure sustainable development of select cities. If need be, the
program shall be calibrated before the commencement of the Eleventh Five year plan.
1.2 Objectives, Process and Permissible Activities
The CDP will be the guiding document that presents the vision of a desired future. It
also gives how the Municipal Corporation together with other stakeholders, intends to
work towards achieving their long-term vision by year 2031. The CDP thus prepared
should translate the mission into actions and actions into outcomes. The objective of
involvement of the stakeholders, through consultation process and being endorsed by
the local body and other implementing agencies who have committed themselves to
action to realistically achieve the mission statements, actions and expected outcomes.
1.2.1 Mission objectives
Focused attention to integrate development of infrastructure services in the cities

covered under the Mission;
Secure effective linkages between asset creation and asset management so that the
infrastructure services created in the cities are not only maintained efficiently but
also become self sustaining over time;
Ensure adequate investment of funds to fulfill deficiencies in the urban
infrastructure services;
Planned development of identified cities including peri-urban areas, out growths,
urban corridors, so that urbanization takes place in a dispersed manner;
Scale up delivery of civic amenities and provision of utilities with emphasis on
universal access to urban poor; and
To take up urban renewal program i.e. redevelopment of inner (old) cities areas to
reduce congestion.
1.2.2 The Process
The CDP provides both a perspective and vision for the development of a city. It
presents the current stage of city’s development, sets out directions of change,
identifies thrust areas, suggests alternate routes & strategies & interventions for
bringing about the change, provides framework and vision within which projects need
to be identified and implemented. It establishes a logical and consistent framework for
evaluation of investment decisions.
Anchored on the Mission goal of creating economically productive, efficient,

equitable and responsive cities, the CDP focuses on the development of economic and
social infrastructure, strategies that deal specifically with issues affecting the urban
12
poor, strengthening of municipal governments and their financial accounting and

budgeting system and procedures, creation of structures for bringing in accountability
and transparency and elimination of legal and other bottlenecks that have shifted the
land and housing markets. It provides a basis for cities to undertake urban sector
reforms that help direct investment into city-based infrastructure.
The process of preparation of CDP is a multistage exercise. For Varanasi it has been
divided in four stages. These steps are Reconnaissance survey for City assessment,
workshops and stakeholder consultations for future perspective and vision
formulation, data analysis and service performance surveys to finalise the strategies
for development of city and sector in particular and final step is to estimate level of
investment and financing options for preparation of city investment plan. The
graphical representation of the process is as shown below:
Figure 2: Process of Preparation of CDP
Process to formulation of City Development Plan

Stage 1 Stage 2 Stage3 Stage 4
Reconnaissance
Workshops Data Analysis Estimate Level
Secondary reports
Stakeholders Service of Investment
Discussions&
consultations performance Financing
Meetings survey options
City Future Strategies City

Assessment Perspective for Investment
& Vision Development Plan
Strengths Options and
Direction of change strategies Estimate level of
Weakness
and expectation Link with investment
Opportunity Economic Vision reform agenda Financing
Threats Criteria for options
Services Vision
prioritization
Key Issue Identification
Step 1: City Assessment
A detailed reconnaissance survey of the city has been carried out as a part of city
assessment. In depth analysis of existing situation, covering various aspects like
demography, economic base, financial situation, infrastructure availability,
environment and institutional roles and responsibilities were analysed. Key issues of
each of these aspects were identified and based on the detailed analysis Strength,
Weakness, Opportunity and Threats (SWOT) at city level and specifically at
institutional level were identified.
Step 2: Future Perspective and Vision
Findings of the reconnaissance survey carried out in first step were then presented in
various workshops to different stakeholders. Focus of these presentations was to make
consensus on the key issues identified, and to have an open discussion on “Where are
we now? and Where we want to go in the future?” Individual stakeholder
13
consultations were also done so as to know the future perspective of the sector and
their vision for future. The vision at city level is also discussed in these workshops
and the final outcome of the vision at city level is “Economically Vibrant, Culturally
Rich and Liveable tourist city”.
Step 3: Strategies for Development
Based on visions of the city as a whole and sectors in particular, strategies have been
formulated. Strategies are the actions that need to be taken by each sector to achieve
the desired vision for the city. The actions will be in the form of project identification;
their prioritisation and working out feasibility costs are also discussed with various
stakeholders. The strategies thus formulated will be used for bridging the gap between
existing and required facilities, and to achieve the desired Vision.
Step 4: City Investment Plan
In this step identification of types and sources of financing for priority projects and
reforms required from internal resources, state and central governments, local
financial institutions, donors, and through public-private partnerships for each of the
priority actions have been done. Apart from that assessment of the risks and measures
required for risk mitigations for debt financing of commercially viable project have
been done. The financing was structured by ensuring maximum leverage of local
financial resources, through GoI viability gap financing/grant, private sector
investments.
1.2.3 Permissible Activities
• Urban renewal i.e. redevelopment of the inner (old) city areas (this would include
items like widening of narrow streets, shifting of industrial/commercial
establishments from non confirming ares to confirming areas to reduce
congestion, replacement of old and worn out water pipes by new/higher capacity
ones, renewal of sewerage/drainage/solid waste disposal system, etc).
• Water supply including setting up de-salination plants, where necessary
• Sewerage and solid waste management
• Construction and improvements of drains/storm water drains
• Urban transport
• Laying/improvement/widening of arterial/sub-arterial roads and bridges to remove
transport bottlenecks
• Laying of ring roads and by-passes around cities, provided certain cost recovery
measures like toll charges are built in
• Construction and development of bus and truck terminals
• Environmental improvement and city beautification schemes
• Construction of working women hostels, marriage halls, old age and destitute
children’s homes, night shelters with community toilets.
1.3 Stakeholders Consultation
Stakeholders consultations forms the most important part of the CDP preparation.
Consultations, be at government level or individual level are important as the plan
14
will be prepared for betterment of People of Varanasi. Consultations in Varanasi are

done at two levels i.e. during Workshops and during Individual consultations. Five
workshops were conducted at different places. Workshops were conducted at all the
levels of CDP preparations viz., at assessment level, at project identification level, for
defining Vision for the city as a whole and sectors in particulars.
15
2 City Profile
2.1 About Varanasi
The ancient city of Varanasi was not built in a day. The city has two remnants of a holy
past: the first being Rajghat plateau, where the archeological findings of wares date
back to the period of very existence of urban settlement and the second being Sarnath,
where Buddha gave his first sermon, “Turning the wheel of law” in 528 BC. Later
during 3rd century King Ashoka built a monastery township there, which continued its
existence till 12th century and was later destroyed.
Since ancient times the natural and cultural

landscapes of the city have retained an active
social role in contemporary society closely
associated with the traditional way of life.
The city is a place of pilgrimage and a holy
site for sacred baths in the Ganga River, to
have a good death, to get relief from
transmigration, to learn and receive spiritual
merit, etc. The city has still maintained its
traditions. In spite of several downfalls and Pilgrimage taking scared bath in Holy Ganga
upheavals, traditions are fully alive even
today1.
Being the holiest city of Hinduism, the impact of the religion is found everywhere in
the city – the chanting bells and the monotonous, but oddly soothing, chant of Sanskrit
hymns, in the fragrant flower offerings, and the colored powders that are sold in a
myriad roadside shops which decorate the foreheads of the devout, in the tens of
thousands of worshippers and the thousands who offer them salvation or services.
Ghats with stairways along the Ganga with presence of “dying homes”, charitable
homes, pilgrims’ rest houses, are some of the city’s unique characteristics. Apart from
that, silk weaving and sari making, metal, wood and terracotta handicrafts, toy making,
particular painting forms, etc., comprise the continuity of historical and cultural
tradition. Varanasi is famous for its fairs and festivals with respect to variety,
distinction, time, sacred sites, performers, viewers and sideshows.
2.2 Location
Varanasi town lies between the 25015’ to 25022’ North latitude and 82057’ to 83001’
East longitude. The River Ganga only here flows South to North having the world
famous ghats on the left bank of the river. The highest flood level of river Ganga was
73.90m (1978) and the lowest river water level is approximately 58m. It is at an
elevation of 80.71 metres above mean sea level.
1
Prof. Rana B P Singh (2005), “Life in Historic Urban Landscape of Varanasi, a Heritage City of India”,
Geography Department, Banaras Hindu University, Varanasi, UP
16
2.3 Linkages and Connectivity
Varanasi is well connected by road, rail and air with other parts of the country. The
distance from the major cities are Delhi-750 km, Lucknow-286 km and 125 km from
Allahabad. There are three national highways i.e. NH-2, NH-56 and NH-29 and four
state highways i.e. SH-87, SH-73, SH-74 and SH-98 passing through the heart of the
city. The linkages provided by the National highways are:
i. NH 2- G.T. Road from Mughal Sarai to Allahabad;

ii. NH 29- Varanasi to Gorakhpur, Kushinagar; and
iii. NH 56- Varanasi to Jaunpur Lucknow,.
These National Highways and state highways have high passenger traffic as these roads
provide a good connectivity to the surrounding areas in the U.P. state as well as to
metropolitan cities like Delhi and Kolkata. The Grand trunk road or NH2 forms the
main transportation spine of the city.
A bypass is being constructed along the Eastern edge of the city to relieve the burden
off NH-2. Another ring road is under consideration along the Western edge of the city
to divert the traffic and provide better connectivity to the newer developments coming
up in the Trans Varuna Region.
Varanasi is well connected by railways with

broad gauge. There are three rail lines
entering to the city from Lucknow, Bhadoi
and Allahabad and is diverted in two lines
to Gorakhpur and Mughal Sarai. The city
lies on Delhi-Kolkata rail route of North
Eastern Railways, which is the broad gauge.
A rail line connects the town with Sarnath.
The other cities having good connectivity
through railways are Patna, Guwahati,
Chennai, Mumbai, Gwalior, Meerut, Main Railway station – Varanasi
Lucknow, Kanpur and Allahabad.
The town also has an airport at a distance of about 24 km away from the city. There are
flights to Varanasi from Agra, Bhubaneshwar, Kolkata, Delhi, Gorakhpur, Khajuraho,
Lucknow, Raipur and Kathmandu (Nepal). It is on a regular aviation route of Delhi to
Kolkata and Bhuvaneshwar. It is also the aviation gateway to Nepal. Map 1 shows the
regional setting of Varanasi.
17
18
Topography, Geology and Climate
A ridge runs almost 200m to 400m away from the western bank of Ganga and the area
between the river and the ridge slopes towards the river Ganga. With vast expanse of
gently undulating plain, most of the area beyond the ridge slopes towards the river Assi
in the South and towards Varuna River in the North. The general ground level varies
from RL 71.0m to 80m.
Geologically it is situated in the fertile alluvial Gangetic plains and is under laid with
sediments deposited in successive stages. Layers of clay, fine sand, clay mixed with
kankar and stone bazari is met with during drilling operations.
The climate of the town is of tropical nature with temperature varying from 5°C in
winter to 45°C in summer. The annual rainfall varies from 680mm to 1500mm with
large proportion of its occurring during the months of July to September.
19
3 Demographic Profile
3.1 Population Growth & Composition
3.1.1 Population Growth
The present area under Municipal Corporation of Varanasi (MCV) jurisdiction is 79.79
sq km with a population of 1.2 million in 20012. Owing to its rich tourism potential, the
estimated daily flow of tourists and pilgrims to the city is 25,0003.
Varanasi town shows a constant increase in the population with varying rate of increase
from decade to decade. In last seven decades the population has grown almost six folds,
with increase in population from 207,650 in 1931 to 1,202,443 in year 2001. The
growth of the population can be seen from the table below (Table 1, Figure 3)
Table 1: Population of Varanasi

%
Year Population Increase
Increase
1931 207,650 -- --
1941 266,002 58,352 28
1951 355,771 89,769 34
1961 489,864 134,093 38
1971 671,934 182,070 26
1981 773,865 101,931 25
1991 1,030,863 256,998 33
2001 1,202,443 171,580 17
Source: Census of India, 2001
Figure 3: Population Growth Trend
Population Growth Trend
1,400,000
1,200,000 1931
1,000,000 1941
Population
800,000 1951
600,000 1961
400,000 1971
200,000 1981
0 1991
1931 1941 1951 1961 1971 1981 1991 2001 2001
Year
It can be observed that there is a sharp drop in the growth rate of the town in the last
decade although the trend is not unusual and can also be seen in the past.
2
Census of India, 2001
3
Revitalization of Varanasi as a Tourist Destination for Ministry of Tourism and Culture, Govt. of India,
February 2006
20
As compared to the KAVAL cities of Uttar Pradesh, Varanasi is the second least
populated city (second only to Allahabad) and exhibits the lowest decadal growth rate
for 1991-2001(Table 2).
Table 2: Population Growth in KAVAL Cities

KAVAL Cities 1981 1991 2001 Growth Rate
81-91 91-01
Kanpur 1,639,064 2,029,889 2,555,811 23.84 25.91
Lucknow 1,007,604 1,669,204 2,185,927 65.66 30.96
Agra 741,318 948,063 1,275,134 26.86 34.50
Varanasi 773,865 1,030,863 1,202,443 33.00 17.09
Allahabad 650,070 844,546 1,081,622 29.92 28.07
Source: UP Census Handbook 1991
3.1.2 Population Density
Present area under MCV jurisdiction is 79.79 sq km. The area under jurisdiction of the
Municipal Corporation is a function not of its population growth or densities, but of
political and administrative changes related to development/urbanization of the urban
fringe areas. Planning area has changed from 56.65 sq km to 79.79 sq km over the last
decade. Overall population density of the town is 150,70 persons per sq km (i.e. 150
persons/ha), which is considerable, compared to other class B cities. Change in the
gross density of Varanasi over the last decade is shown in Table 3.
Table 3: Population Density of Varanasi

Year Population Area (sq km) Gross Density (Pop/sq km)
1991 1,030,863 56.65 18,197
2001 1,202,443 79.79 15,070
Source: Master Plan of Varanasi, 2011
The city of Varanasi is broadly divided into two zones: the Cis Varuna and the Trans
Varuna zone. Most part of the city is presently confined within the Cis Varuna area but
with the provision of infrastructure facilities (as per Master Plan 2011) and the
construction of the ring road, the city is expected to grow towards the Trans Varuna
area. The city had 40 municipal wards (1991), which have now been increased to 91.
The population density in these wards varies significantly and are as shown in the
following table. (Table 4, Map 2)
Table 4: Ward wise population densities

War Ward Density Ward Density
Population Density Population Population
d No. no no
1 12384 427 32 11847 146 63 12788 388
2 15694 67 33 13490 225 64 11142 139
3 13135 1459 34 15920 300 65 18082 176
4 14313 77 35 9441 858 66 13397 1489
5 13027 30 36 14588 1042 67 6039 671
6 12877 165 37 11206 560 68 14414 262
7 20506 128 38 19675 133 69 8281 460
8 15874 529 39 11719 533 70 9187 707
9 14561 455 40 12275 767 71 13862 87
10 14608 239 41 9700 462 72 9303 137
11 15758 927 42 10749 1792 73 13076 108
12 13989 350 43 11476 1913 74 14865 275
13 15854 148 44 9640 1377 75 19864 168
21
War Ward Density Ward Density

Population Density Population Population
d No. no no
14 12823 164 45 12576 273 76 7319 523
15 13669 144 46 12781 492 77 10598 230
16 11945 1991 47 8177 303 78 9193 766
17 22373 254 48 11621 581 79 10183 196
18 12678 1585 49 9433 472 80 8319 347
19 15708 126 50 9401 1343 81 8594 409
20 16228 49 51 9273 98 82 7907 104
21 13826 94 52 9841 757 83 6908 345
22 11052 425 53 5339 334 84 12316 99
23 11881 105 54 9284 928 85 10386 142
24 7193 654 55 8269 413 86 12018 240
25 13169 27 56 17068 263 87 8297 638
22
23
3.1.5 Literacy Rate
Across districts, Varanasi district has moderate literacy rates (67.2 percent, as per 2001
census). Current total literacy rate within the MCV area is high (72 percent) as
compared to state urban average of 56.3 percent and national urban average of 70.1
percent but low as compared to the prevalent literacy rates in the other KAVAL cities
(Table 6).
Table 6: Literacy Rates in KAVAL Cities
City Total literacy rate
Kanpur 78.8
Agra 70
Varanasi 72.0
Allahabad 80.9
Lucknow 77.1
Like KAVAL cities, Varanasi also has low female literacy rate. This is a cause of
concern considering the fact that the city is renowned for its education and philosophy.
3.1.6 SC/ ST Population
The SC population in Varanasi Municipal area is 81,704 (Census of India, 2001),

approximately 7.4% of the total Municipal area population. As per the census 2001, ST
population in the city stands at 483, which is a mere 0.04% of the municipal
population. The sex ratio for the ST population in the city stands at 1021, which is
much higher than the total sex ratio of the city (Table 7).
Table 7: SC/ST population for Varanasi Municipal area

Category Total % to Total Break up
Population Population Male % Female %
Municipal 1,103,952 - 588,554 53.3% 515,398 46.7%
SC Population 81,704 7.4% 43,850 53.6% 37,854 46.4%
ST Population 483 0.04% 239 49.48% 244 50.52%
3.2 Social Composition
Varanasi, also known as the cultural capital of India, is a predominantly Hindu city.
The city is bound to the River Ganga as the focus of the city.
• River Ganga is considered sacred as per Hindu Mythology and tradition and
several tourists and pilgrims visit the ghats daily for religious offerings, bathing,
prayers, funeral pyres, etc.
• Hindi is the local and official language
• Owing to its proximity to the Buddhist holy place of Sarnath, the city also attracts
several national and international Buddhist tourists. Apart from Buddhists, it is
also a favoured religious destination for Jains. It is a birthplace of 23rd
Thirthankar.
• The city is also known for its music, literature, Vedic philosophy and architecture
24
• The city is a famous centre for Sanskrit education and at many a places in
Varanasi; the Guru Shishya Culture is still being practiced.
• Some of the major festivals celebrated in and around Varanasi include:
o Ganga Mahotsav in Oct - Nov
o Bharat Milap at Nati Imli in Oct – Nov
o Panchkroshi Parikrama
o Mahashivratri in Feb - March
o Buddha Purnima at Sarnath in May
o Ramlila of Ramnagar in Oct – Nov
• Daily aartis are offered on the ghats of the sacred River Ganga in morning and
evening
• It is believed that nearly 60,000 people take a bath daily in the River Ganga,
which is believed to absolve one from all the sins.
• There are some specific days in the year when Hindus take dip in holy river
Ganga. Important among them are Paush Purnima and Makar Samkranti in
January Mouni Amvasya, Basant Panchami and Magh Purnima in February and
Mahashivaratri in March.
3.3 Population Projections
Population projection is important and basic requirement for the provision of basic
services to the people. It is also required to plan for service provision and revenue
realization from the users in a city, which is the direct function of the population and
population growth. The city of Varanasi has a uniquely different growth character,
complemented by the movement of people from surrounding areas for occupational
reasons, tourist traffic as a result of its heritage value, and special events of spiritual
importance of the Ganga at Varanasi. The proximal townships of Ramnagar and
Mughalsarai, both of which lies across the Ganga River, east of Varanasi,
complement the growth of the Varanasi region.
The base data used for population projection is the data obtained from the Census of
India, with detailed urban area population and municipal ward for 2001 and the 1991
census data summaries. This data provided the numeric basis for benchmarking the
actual population and its decadal growth for the past decades.
Different population projection methods like incremental increase, geometric methods

and exponential method have been used to calculate future population. As different
methods will have a different projections, average of all the methods is considered for
CDP population projection. Projected populations by different methods are as shown
in Table 8:
Table 8: Population projections by different methods

Population
Methods
2011 2021 2031
Geometric 1,489,931 1,846,154 2,287,544
Incremental increase method 1,995,366 3,311,161 5,494,624
Exponential 1,576,734 2,067,531 2,711,102
Average Population 1,687,344 2,408,282 3,497,757
Looking at the decadal growth rate variations from 1931 till 2001, one can conclude
that there are huge fluctuations in decadal growth rates, and since 1961 it reflects
25
declining trend. Looking at the growth trend over the last 7 decades, it can be said,
that the population projections thus achieved are on a higher side. The declining
decadal growth rate for Varanasi can be attributed primarily due to the sluggish
growth of industrial sector of the city. Other major reasons contributing to this
declining trend are the dying traditional small-scale industries, heavy dependence on
tourism sector and the crumbling physical infrastructure of the city.
Keeping these factors in mind and with the intent of being more realistic in population
projections, which will form the basis of subsequent design efforts; these higher end-
point populations have been used as the basis of refining the population growth and
dispersion.
Based on the assumption that the same declining trend has and will continue till 2011,
present (2006) population should be around 1,370,785, and considering the decadal
growth rate at 14%, population for 2011 should be around 1,535,279. Also, with the
induction of different revenue generating projects that has been identified under
JNNURM, population growth rate should increase over next decades and reach
28% by 2021 and 31% by 2031. A small increase of 3% is assumed for year 2031
keeping in mind that the satellite towns like Ramnagar and Mugal Sarai will also be
developed and there will be less developmental pressure on Varanasi. Reanalyzing the
data for population projections, it can be estimated that population for year 2021
should be around 1,965,157 and for year 2031 it should be around 2,572,356. Table 9
and Figure 4 shows population projection on decadal growth rate.
Table 9: Population projection on decadal growth rate

Year Population Decadal growth rate %
1961 489,864 37.69
1971 671,934 26.14
1981 773,865 25.23
1991 1,030,863 33.21
2001 1,202,443 16.64
2006 1,370,785 14.00
2011 1,535,279 12.00
2021 1,965,157 28.00
2031 2,574,356 31.00
Figure 4: Population Projection

Population Projection
3000000
2500000
2000000
Population
1500000
1000000
500000
0
1961 1971 1981 1991 2001 2011 2021 2031
Year
26
3.4 Key Issues
Based on the above analysis following issues have emerged with regard to the
demographic characteristic of the City.
Although there is a sharp decline in percentage population growth compared to
previous decades there is an absolute increase in population of Varanasi during the
last decade. This is due to natural growth and migration of people from surrounding
areas in search of job.
The migrant population is likely to increase the demand for housing particularly
EWS/LIG. If not planned for this section of population then slums or unplanned
growth will be expected.
The positive feature of Varanasi is that a large parcel of vacant lands are available
along outskirts of the city and current densities are low, except the core old city,
hence there is no issue of land availability, but the affordability is area of concern.
The growth in population is also likely to stress already stressed public transport
and will have impact on other services, hence planned efforts are required to direct
the growth of the city in right direction.
27
4 Economic Base
4.1 Introduction
The economy of the city is based on various sectors like tourism; export of famous
Banarasi saari, musical instruments and also on the education sector, with world
famous universities present in the city. The overall economy of the region is dominated
by tourism, with tourist coming not only from all parts of India but also from different
countries.
The huge dependence on informal sector for the industrial development has led to an
overall stagnation of the secondary sector. The preponderance of the informal economy
makes Varanasi distinct. However, Varanasi’s informal economy has not developed in
relation to or as an adjunct to large industrial centres, making complimentarily between
formal and informal sectors hazy. Cottage industries along with Small-scale industries
form an important base for the economy of the city.
4.2 Workforce Participation

The composition of the work force conveys a picture of quality of life people maintain
and their social and economic activities. Around 11% (10.69%) of the total population
is engaged across different manufacturing activities whereas the tertiary sector
accounts for 6.80% of the total employment. Table 10 and Figure 5 provides the
city’s employment profile in detail.
Table 10: Employment Profile of Varanasi City
Category No. of Employees Percentage Share
Manufacturing 128,930 10.69
Trade and Commerce 82,035 6.80
Other Services 60,466 5.01
Transport and Communication 24,235 2.01
Agriculture 12,239 1.01
Construction 7,028 0.58
Marginal Workers 5,938 0.49
Total Employed 320,871 26.60
Not Employed 885,425 73.40
Total 1,206,296 100.00
Source: Vision 2025, ICRA report, 2006
Figure 5: Employment Profile of Varanasi City

Manufacturing
11%
Trade and Commerce
7%
5% Other Services
2%
Transport and
1% Communication
1% Agriculture
Construction
73%
Marginal Workers
Not Employed
28
Work participation rate, (which is defined, as the percentage of total workers (main
and marginal) to total population of Varanasi city for 2001 is 28.7 percent. The work
participation rate is low compared to both state (32.5%) and national (39.9%) as per
2001 census. Table 11 gives the work force participation in terms of main and
marginal workers for last two decades:
Table 11: Workforce Participation composition

Year Main Workers Marginal Workers Total Workers
1991 283,287 4,933 288,220
2001 314,933 5,938 320,871
Source: Census 2001
It can be seen from the above table that there is marginal increase in number of
workers both main and marginal over the last decade. Workforce participation rate
has marginal increased by 0.74 compared to last decades work participation rate of
27.96. The reason for this marginal increase is due to the very fact that there is overall
stagnation of the secondary sector in the city.
4.3 Dominant Sectors & Activities
During eighties the major thrust was on industrial development of the city, when
number of industrial units and that of industrial workers had shown an upward trend.
Household industries were predominant and constituted about 29% of the total
working population with large-scale industries employing about 11% of the
workforce. However, the late eighties and early nineties were the era of significant
downfall of industrial development of the city. Currently, it is the household sector,
the informal sector that accounts for over a third of the total industrial workforce of
the city.
The city is renowned for its silk weavers who prepare the finest types of woven silk
fabrics. Silk weaving in Varanasi is a cottage industry, which is found in many areas
of the city, and one can see looms at work all days. But today, Varanasi silk industry
is in turmoil. Emergence of power looms and use of computer-generated designs has
hit the business of these silk weavers. In 1995, there was a sudden influx of Chinese
silk traders, who imported cheap yarn to local market and even competed against
Varanasi traders by hiring local weavers from the city.
Varanasi does not show signs of a matured economy. It has been primarily dominated
by the Small Scale Industries (SSI) sector and household industries (Fig 5). The
traditional industry of silk sarees will tend to become sick and the city will lag within
the region if investment in the power and the registered manufacturing sector does not
pour in.
Varanasi is also famous for its trade in wholesale commodities. Having trade links not
only in different parts of country but also abroad, major commodities traded are
Banarasi Saree, Betel leaves, handicrafts, carpets, rugs, and durries. Silk weaving is
perhaps the most coveted art of Varanasi. Besides Banarasi sarees and brocades,
exquisite pieces of brassware, copperware, wooden and clay toys and antique designs
of heavy gold jewellery are also traded in the city. Map 3 shows manufacturing zone
in Varanasi.
29
30
Other commodities include the hand-knotted carpets of Mirzapur, musical

instruments, the 'khatta-meetha' (sweet 'n' sour) 'Langda Aam', a popular variety of
mangoes available during summer season and the famous betel leaf that is considered
a speciality of the region. There are different Mandis in the city dealing with different
commodities at various places. Some of these mandis are present in areas like
Pahadiya (fruit and vegetable mandi), New Pan Duriya (Pan Mandi), Vishnunath Gali
(Toys mandi), Gola Dinanath (masala mandi) and Chauk for silk.
The areas of retail business in Varanasi city are Chowk, Gyan Vapi, Vishwanath Gali,
Thatheri Bazar, Lahurabir, Godoulia or Dashswamedh Gali and Golghar. Practically
all these areas are unplanned. This is because that most of the structures exists since
early days and front side of these dwellings have been converted into shops which is a
common feature in such type of developments of the towns. The haphazard
development of shops along roads has created problems of parking and traffic
congestions. From the above analysis it can be concluded that the wholesale business
is spread out along main roads and petty shops are springing up indiscriminately.
Non-availability of parking space for vehicles is also a problem in the retail and
wholesale business areas.
4.4 Industrial development
Over the last decade the industrial development has shown a declining graph, due to
the very fact that there is declining share of land for industrial development. A major
emphasis was given in the Master Plan 1991 to promote the industrial area in
Varanasi but since the industrial base in the city could not be developed as expected,
the area allocation under the Master Plan 2011 for industrial use has been reduced
significantly. While provision for absolute area has gone down from 981.37 hectares
to 656.19 hectares, the share of industries has declined from 6.77% to 4.52%.
Amongst manufacturing units, spinning and weaving alone accounts for 50.70% of
the existing employment in Varanasi followed by metal and metal products industry,
accounting for almost 15% of the manufacturing employment of the city. These two
activities account for over 2/3rd of the total manufacturing employment of the city.
Apart from other industries, Diesel Locomotive Works (DLW) continues to be a
major industry in the city. Table 12 and Figure 6 shows category wise industries and
number of employees in each category.
Table 12: No. of Employees in Different Industries

Category No. of Employees Percentage to total
Spinning and weaving 65368 50.70
Metal and metal manufacturing 19223 14.91
Food and food processing 4938 3.83
Timber and wood workers 4487 3.48
Printing and publishing 7981 6.19
Manufacturing machinery 4435 3.44
Textile 1354 1.05
Zarda and tobacco 1147 0.89
Chemical production 2669 2.07
Transport equipments 1405 1.09
Electric machinery 6472 5.02
Miscellaneous 9451 7.33
Total 128930 100.00
Source: Varanasi Vision 2025, Draft Final Report, ICRA, 2006
31
Figure 6: Employment in Different Industries

7% Spinning and weaving
5%
1%
2% Metal and metal
1% manufacturing
1%
Food and food processing
3%
Timber and wood workers

52%
6%
Printing and publishing

3%
Manufacturing and machinery
4%
15% Textile
Zarda and tobacco
Chemical production
Apart from cottage industries, small-scale industries also form an important part of
the economy of the city. Both registered and unregistered units exist in this sector
with unregistered sector being more prominent than the registered sector. Varanasi
district ranks at the eighty-first position in terms of number of SSI units present in
registered sector. The estimated number of such units in Varanasi is slightly less than
30,000, which forms approximately 0.7% of the total number of unregistered units in
top 100 Indian districts in terms of number of units in unregistered SSI sector (Annex
I).
There are few clusters available in Varanasi, which include agricultural implements,
fans, power looms and sheet work. Varanasi power looms cluster is the largest among
all the clusters. The latter two clusters have the huge potential of exports. Thus, there
is a need to tap this potential by providing incentives to these sectors. But this should
not be done at the cost of the traditional handloom industry, which is already
suffering. The clusters with their export potentials are as shown in Table 13:
Table 13: Clusters and their export potential in Varanasi

Name of Type Product Group Export Potential for
Cluster of potential technology up
Cluster gradation
Agricultural SME Base metals, products thereof & machinery Low High
Implements equipment & parts thereof, excluding
transport equipments
Electric Fan SME Base metals, products thereof & machinery Medium Medium
equipment & parts thereof, excluding
transport equipments
Powerloom SME Textile and Textile Articles High Medium
Sheetwork SME Base metals, products thereof & machinery High Medium
(Globe, equipment & parts thereof, excluding
Lamp etc) transport equipments
Source: Vision 2025, Final Report, ICRA, 2006
32
4.5 Key Issues
The percentage of working population in the informal sector (HH industry workers)
is close to 33%
The city is not a major manufacturing base for both private and public entity
The weaving and handicraft industry and the associated SSI sectors are not showing
any signs of growth
Workers are employed without secure contracts and limited access to public
infrastructure and benefits
Workers do not have access to markets for proper sell of their finished products and
work under a ‘ties regime’
Limited access to the credit market/institutional market for setting up self-
employment ventures.
No proper revival policy in place for sick SSI units
33
5 City Development and Land Use
5.1 Introduction
The city of Varanasi has grown along the arc of Ganges with River Ganga as a focal
point in one direction and growth of the city taking place in semi-circular direction. The
city has a radial development pattern with areas like BHU, Manduadih, Sheopur and
Sarnath emerging as new growth centres in all directions. Over a period of time, with
the inclusion of a large number of villages and urban settlement, the city development
has resulted in irregularly shaped built up areas along peripheries of the central areas of
the city. The coming up of the Diesel Locomotive works and residential colonies over
an area of 250 ha in the Southwest and the Soda Ash factory along the GT road in the
East mark the development around the rural city fringe.
5.2 Morphological Development of Varanasi
The renowned American novelist Mark Twain once wrote, "Banaras is older than
history, older than tradition, older even than legend and looks twice as old as all of
them put together." Any history buff will be delighted to learn that this ancient city
finds mention in most of the great epics of India. Hindu legend has it that Varanasi is
the center of the universe, the first city created by the gods on Earth, and it is certainly
true that it was already an old city when Rome was created.
The History of Varanasi dates as far back as the Aryan culture in the second
millennium B.C. It was already an old city and was a flourishing centre of trade when
Buddha came to Sarnath, some 10 km away, to preach his first sermon in 500 B.C. The
Afghans completely destroyed the city in the 1400's AD and it had to be completely
rebuilt.
Varanasi comprises of the old city

area, central area and new area.
Architecture in the old city area
dates back to just after Afghan
invasion, and in the central and
new city, it is less than 150 years
old. In the 2nd century, for the
first time we find description of
Dashashvamedha Ghat with
reference to the great horse
sacrifice ritual performed by the
kings of Naga dynasty. During the
Gupta period, 3rd to 6th century Dashawamegh Ghat: A view in 1820s,
AD, the ghats became the centre by James Prinsep, 1830
of economic and cultural
activities. The Puranic literature describes its glory vividly in various contexts. In the
Gahadavala period, 11th-12th century, as much as five ghats were mentioned in several
inscriptions, viz. Adi Keshava, Vedeshvara, Kapalamocana, Trilocana and
Svapaneshvara. From the inscriptions it is also clear that on solar and lunar eclipses and
34
on some other family celebrations people were going to the ghats for performances and
giving donations to the Brahmins.4
By 17th century the riverfront landscape

(ghats) became prominent in the overall
arena of Varanasi. Varadaraja’s
Girvana-padamanjari (17th century)
gives a full account of the ghats, rituals
and festivals associated to them. The
palatial buildings along the ghats were
built under the patronage of the
Marathas during 18th -19th centuries.
Even in 19th-20th century many ghats
were re-constructed, re-named and
reshaped too. Since 1950 the state Re-construction of Ghats, Varanasi in 1922
government of Uttar Pradesh has been deeply involved in making the ghats stone stairs
(pucca) and their repairing. During the period between late 18th and 20th century,
along the riverfront many monasteries (ashramas), Sanskrit schools, temples, and
pilgrims rest house were built by principalities, of different parts of India, like Peshvas
of Pune (Gujarat), Holkar of Indore, and Scindhias of Gwalior (Madhya Pradesh),
Bhonshalas of Nagpur (Maharashtra), Sursand, Bhabhua, and Darbhanga estates of
Bihar, Rani Bhavani of Bengal, kings of Nepal, etc.5
By far and large, the charm of Varanasi is in the old city. This extends maybe 2 km
back from the river and is home to a maze of alleyways and streets, so narrow, only
bicycles can negotiate them. The Muslim quarter, most of the temples, mosques,
ashrams (learning centres), the vegetable shops and budget accommodation can be
found here giving it a typical characteristics.
The central and new area is a home to banks, cinemas, administration, train station and
world famous Banaras Hindu University (BHU). Pandit Madan Mohan Malviya in year
1916 founded BHU in 1300 acres, which is the greatest centre of leaning in India. It has
attracted a major migrating population during that period and the city started to grow in
all directions. Britishers also stayed in an area, which is now Cantonment area of the
city. With the influx of population, the city has developed naturally over a period of
time resulting in haphazard development of the city. ‘James Prinsep’ prepared the first
map in year 1822, showing the development of the city.
The first development plan was prepared in the year 1948 by the Improvement Trust
area of Varanasi, which was again revised and approved in the year 1973 on the basis of
extended areas in the year 1958. Preparation of Master Plan-2011 for the city of
Varanasi started in the year 1988, and was sanctioned in year 2001. The city is
expanding beyond central city area. The municipal city limits have been extended as
and when the need was felt to regulate the extensions. There are markets and industrial
establishments in this area. This area is an emerging area for the future development of
the city.
4& 5
Prof. Rana B P Singh (2005), “Life in Historic Urban Landscape of Varanasi, a Heritage City of India”,
Geography Department, Banaras Hindu University, Varanasi, UP
35
Figure7: First Map of Varanasi Prepared by James Prinsep in year 1822.
36
5.3 Present Scenario
Land management is a critical element in the city’s development. Also in the pretext of
urban expansion, valuable agricultural lands are converted into urban lands. Urban land
is a scarce and costly resource and needs to be apportioned to various uses very
judiciously. In order to plan the future land uses, a study of the existing land use is
necessary.
Figure 8: Land Utilization – Previous Master Plan

Residential
Commercial
20%
Industrial
37%
Public and Semi Public
9%
Recreational
2%
19% Govt. and Semi-Govt.
3%
Transport and
3% 7%
Communication
Agriculture
The Varanasi Development area has been broadly divided into 2 zones: Zone A and
Zone B. Zone A comprising of the area to the left of River Ganga (comprising of areas
like BHU, Varanasi Municipal area) and Zone B along the right bank of river Ganga
(including areas like Ramnagar and Mughal Sarai). The Master Plan 2011 has been
prepared for zone A. As per this Master Plan of Varanasi, total area under planning
jurisdiction was 14494.40 hectors for 1991.
Out of this total, developed area was 11662.34 ha, and is 80% of total area. Remaining
20% area is under agricultural belt around the city. Out of the total developed area
residential use constitutes maximum of 38% area (i.e. 5457.24 ha) followed by parks
and playgrounds, which constitute 19% (i.e. 2705.76 ha). The land utilization details
for the entire town as per the master plan report for year 1991 are as follows (Table 14,
Figure 8)
Table 14: Land Use Pattern- Previous Master Plan
As per 1991
Sl. No. Land Use
Area in Ha Percentage
1 Residential 5457.24 37.65
2 Commercial 475.10 3.28
3 Industrial 981.37 6.77
4 Public and Semi Public 450.42 3.11
5 Recreational 2705.76 18.67
6 Govt. and Semi-Govt. 292.18 2.02
7 Transport and Communication 1300.27 8.97
8 Agriculture 2832.06 19.54
Total area 14494.40 100.00
Source: Master Plan-2011, Varanasi
37
5.4 Master Plan 2011 Proposals
Varanasi Development Authority (VDA) has prepared a Master Plan 2011 for the
future development of the city, which states that total area of the city will increase from
14494.40 ha to 17927.22 ha. This increase in total area is very nominal with 23.68%
compared to pervious master plan. Table 15 and Figure 9 shows the detailed land
utilization proposed for year 2011.
Table 15: Land Use Pattern – Existing Master Plan

Proposed for 2011
Sl no Land Use
Area in Ha Percentage
1 Residential 9254.61 51.61
2 Commercial 618.23 3.45
3 Industrial 656.19 3.66
4 Public and Semi Public 1309.07 7.30
5 Recreational 984.47 5.49
6 Services 103.97 0.58
7 Govt. and Semi-Govt. 1433.15 7.99
8 Tourism and Heritage 423.73 2.37
9 Transport and Communication 1460.35 8.15
10 Agriculture 1683.45 9.39
Total 17927.22 100.00
Source: Master Plan-2011, Varanasi
Figure 9: Land Utilization – Existing Master Plan
Residential
Commercial
9% Industrial
8% Public and Semi Public
2%
Recreational
8%
53% Services
1%
5% Govt. and Semi-Govt.
7%
Tourism and Heritage
4%3%
Transport and
Communication
Agriculture
The land use pattern as proposed for year 2011 for the city of Varanasi revealed that:
Considerable change in residential land use, which in the existing Master Plan
account for almost 52% of the total land use. This increase would be due to pressing
demand for residential purposes.
Industrial area constitute on 3.66% of total land use, which has been drastically
reduced by almost 46%. Industrial and commercial land use together account for
marginally over 7% of the total land use and is far below compared to other cities
like Haridwar (12.2%), Agra (15.9%) and other industrialized cities (11%).
38
The total area under tourism/heritage is at alarmingly low levels (less than 3%),
compared too similar placed cities are 6%.
It can be seen from the above tables that there is reduction in the agricultural land
use, which depicts that rural agricultural land on the fringe and suburbs are
gradually being used up for building new colonies.
The major drawbacks of Master Plan 1991, which have been reflected upon in the
Master plan for 2011 are:
• Under utilization of area prescribed for industrial land use,

• Unauthorized constructions, developments which came up due to the construction
of the bye-pass and
• Under utilization of areas under green/recreational use.
Figure 10: Comparative Land Utilization of Master Plans
Residential
Commercial
Existing MP Industrial
Public and Semi Public
Recreational
Services
Previous MP Govt. and Semi-Govt.
Tourism and Heritage
Transport and Communication
0% 20% 40% 60% 80% 100%
Agriculture
% Distribution
The analysis of MPV-1991 and the targets achieved shows that almost all the land uses
could not be developed to the expected levels. Major gaps can be observed in
residential, recreational, PSP and industrial uses where the development was less than
the prescribed levels. Emphasis has been laid on the development of residential,
industrial and recreational uses in MPV-2011 (Figure 10).
5.5 Key Issues
The primary issue with regards physical planning and growth management in
Varanasi is that physical development and growth is haphazard and uncontrolled.
Master plan needs to be implemented correctly and reserved lands have to be used
for specified purpose.
Master Plan should be implemented in time bound manner.
The planning department to have a planned development does no proper assessment
of the land requirement
Under utilization of land uses like recreational, industrial resulting in the shift of
land use pattern
39
6 Urban Characteristics and Housing
6.1 Urban Profile
Understanding the urban character of Varanasi is very important while preparing the
CDP. The existing urban setting and growth trends of Varanasi can be classified into
three main categories. These areas are as shown in Map 4.
1. The Old City consisting of the Ghat area including Chauk, Kotwali, Adampura,
etc.,
2. The Central City comprising of the area beyond the old city and bound by NH-2
along the western and northern edge
3. Peripheral area comprising of the trans Varuna area.
6.1.1 The Old City
The urban character of Varanasi is very complex. The traditional typical old city of
Varanasi has undergone transformations over time, still retaining its original character
and ethos. Areas adjacent to Ghats and the old city exhibit dense development due to its
proximity to Ghats and their longevity of existence, which have become the cultural
fabric of the city. Predominant characteristics of the old city include:
Dependence on River Ganga as the sacred lifeline of the entire city

Proximity to Ghats which are the nodes of religious and tourist activity in the city
Rich built heritage representative of various traditional building styles.
Pollution of River Ganga due to intense load of tourist and religious activities
Dotted with temples of high religious significance all along the ghats
Bazaar street pattern catering mainly to religious and tourist population
High density core area with narrow and inorganic street patterns
Encroachment by commercial and informal sector on the roads
Slow moving traffic and lack of parking spaces leading to congestions and chaos
Major concentration of retail and wholesale trade of Handlooms (including
Banarasi sarees) and brassware
Haphazard cabling including electric and telephone wires.
Open drains with grey water and solid waste dumps along internal streets
Need for improvement in infrastructure, traffic facilities and utilities.
Need for provision of infrastructure to cater to the tourist load, conservation and
adaptive reuse of heritage buildings.
6.1.2 The Central City
Areas adjacent to the city core are constantly under great development pressure due to
close proximity to the core areas. This is because of availability of all services,
cultural attractions and Varanasi is no exception to this. These areas have been
categorized as “proximal areas” in developing the growth analysis. Predominant
characteristics of the newer city include:
Focus on religious character reduces considerably.

Lower density development as compared to the old city
Relatively wider roads with lesser encroachments
40
Vulnerable to high potential for growth.

Relatively less disorganized compared to the old city area and the built form is less
congested. The development pressure on these areas remains high and is likely to impose
additional burden on existing limited infrastructural facilities available.
Institutional areas like Kashi Vidyapeeth, BHU and Sanskrit University
Railway station and Cantonment area form a considerable part of this zone
The plantation levels and green areas are higher than those in old city but roadside
plantation needs to be provided
Major traffic congestion points like railway station, Chaukaghat and Andhrapul fall in this
one. The GT road itself carries significant amount of traffic and needs to be decongested
The marked reduction in the number of cycle rickshaws plying on the roads in this zone
leads to an increase in the average flow of traffic.
Lack of public transport facilities
Diesel Locomotives Factory lies in this zone and forms a major industrial zone on the
western side
Newer constructions coming up in the areas near Madhadhi and BHU
6.1.3 Peripheral areas
The peripheral areas encompassed by the municipal wards have a strikingly different
development pattern than the rest of the city. These areas are becoming more popular
among the citizens as they provide more organized development pattern with
infrastructure being relatively in better conditions. The State Housing Board, through
the Varanasi Development Authority, undertakes these developments. The demand
for such development is increasing and with the participation of governmental and
private development groups, the growth of peripheral areas is likely to be much higher
in comparison to other parts of the city. The proposal for the construction of ring road
in this zone has further accelerated the development process. The development in this
zone is the most planned and organized in the whole city but there is a relative lack of
recreational/green spaces in this zone.
Major catalyst for urban growth will be development of new ring road to the north of
the city, which will over the next decade comes into developed form. Greater urban
development will take place along this in the northern part of Varanasi. Along with
this development of major road systems connecting to the National Highways on the
southern extent of the city is already causing a spurt in development in this area.
Combined with plans for a transport nagar in the western extremity of Varanasi and
the connectivity across the Ganga to the eastern bank (to Ram Nagar and Mughal
Sarai) the growth of urban areas and the population of Varanasi outside the municipal
wards are likely to continue to accelerate.
6.2 Housing
Housing, one of the basic services, which is to be provided for better quality of life,
shall be given the importance in the plan. The increasing level of urbanization has
created the stress on housing sector in Varanasi. As indicated by the last two decades
population demographic data, it can be seen that there is a high increase of 33%
population from 1981-1991 while it came down to 17% in next decade, but the
increase in housing cannot catch the pace of increasing population hence resulting in
the housing gap.
41
42
6.2.1 Housing Densities
The average housing density is approximately 2167 HH/sq.Km. The core area of the
city is very congested, which is highly densified. Though there is no scope for further
development in the old city area, developmental activities taking place in these areas
are causing more stress on present infrastructure. As the city is growing, new
extension areas has low housing densities, some of the people are shifting from old
area to these areas in search of better living conditions. Table 16 shows the change in
household densities for last three decades.
Table 16: Household densities

1991
1991
Particulars Area 1971 1981 (After 2001
(Undivided)
division)
Urban 129.2 157.7 156.15 96.1 79.79
Area in Sq. Km
Total 5091 5091 5092 1550.3 1449.44
Rural 344339 401578 476612 192705 147457
Number of households Urban 132632 154999 178030 143453 172975
Total 476971 556577 654642 336158 320432
Urban 1026.56 982.87 1140.12 1492.75 2167.88
HH/Sq.km.
Total 93.69 109.33 128.56 216.83 221.07
Source: Report on District land Use Plan by State Land use board, 2005
6.2.2 Housing Shortage
The city faces an acute housing shortage. As per study conducted by ICRA there is a
huge gap between housing supply and demand. The housing demand is increasing at
the rate of 16% (approximately) yearly. According to the data there is nearly shortage
of 90,000 houses in year 2001, which is expected to be 119,954 in 2011 and further to
139,657 in 2025 as shown in Figure 11 & 12.
Figure 11: Housing Stock Varanasi

Housing Stock Varanasi
250000
200000
DU's
150000
100000
50000
0
1951 1961 1971 1981 1991 2001
Year
Demand Supply
43
Figure 12: Projected Housing Shortage
Projected Housing Shortage
145000
140000
135000
130000
125000
120000
115000
110000
2011 2015 2020 2025
6.2.3 Distribution of households by size
Due to acute shortage of housing Varanasi city faces the problem of overcrowding.
With the average Household size of Varanasi being 7.3, the condition of the people is
very bad and overcrowded. There are 47% of the households, who live in one room or
two rooms. Five and six dwelling rooms are found in only 7% and 14% of the
households respectively. Table 17 shows distribution of HHs by size and number of
dwelling rooms.
Table 17: Distribution Of Households By Size And Number Of Dwelling Rooms

Households having number of dwelling rooms Median
Total number of
Household size No exclusive Two Three Four Five Six rooms number
Households One room
room rooms rooms rooms rooms and above of rooms
All Households 145,150 1,856 32,020 35,516 24,779 19,875 10,140 20,964 3
1 4,032 837 1,963 644 241 157 61 129 1
2 7,255 115 3,026 1,961 937 540 236 440 2
3 9,136 74 3,212 2,563 1,455 870 361 601 2
4 16,796 119 4,586 4,974 2,898 2,087 832 1,300 2
5 20,087 118 4,945 5,804 3,657 2,560 1,216 1,787 2
6-8 45,889 266 9,565 12,230 8,593 6,663 3,104 5,468 3
9+ 41,955 327 4,723 7,340 6,998 6,998 4,330 11,239 4
Assuming that two persons can live in one room, with better living conditions, the
overcrowding data can be calculated for Varanasi. Total overcrowding population in
Varanasi is approximately 447,026. Thus there is a need to provide more housing to
keep the pace with increasing population and avoid overcrowding.
6.2.4 Distribution of census houses by their usage
As per census 2001, a ‘census house’ is defined as “A building or part of a building

used or recognised as a separate unit because of having a separate main entrance from
the road or common courtyard or staircase, etc. It may be occupied or vacant. It may
be used for a residential or non- residential purpose or both”. There are 184,833
census houses in Varanasi out of which 67% houses are put to residential use and are
predominant in the city. Vacant houses constitute 4%, which can be put to residential
use, to reduce the housing demand of the city. Table 18 shows the use of census
houses in Varanasi.
44
Table 18: Census houses and the uses to which they are put
Total number of census houses 184,833

Total number of vacant census houses 7,826
Total number of occupied census houses 177,007
Residence 117,699
Occupied census houses
Residence-cum other use 24,399

Shop, Office 21,491
School, College, etc. 735
used as
Hotel, Lodge, Guest House, etc. 430

Hospital, Dispensary etc. 708
Factory, Work-shop, Work-shed etc. 1,734
Place of worship 1,745
Other non-residential use 8,066
6.2.5 Distribution of houses by type of structure
Condition of houses in the city has been assessed based on the type of structure. As
there are 92% houses are pacca houses, overall condition of housing in Varanasi is
better. Out of total only 7% constitute semi-pacca houses and 1% constitutes
temporary housing structures. Distribution of census houses by residence, residence-
cum-other use and type of structure is as shown in Table 19 and Figure 13.
Table 19: Distribution of census houses by residence, residence-cum-other use and type
of structure
Total number of census houses 141,953

Permanent 131,017
Type of census
Semi-permanent 9,641
houses
Total 1,281
Temporary Serviceable 877
Non-serviceable 404
Unclassifiable 14
Figure 13: Type of Housing Structure

TYPE OF HOUSING STRUCTURE
7% 1%
92%
Permanent Semi-permanent Temporary
45
Out of total housing structures 62% houses are in very good conditions, 34% are in
livable conditions and the remaining 4% are in dilapidated conditions. People living
in the dilapidated housing structures should also be included for the proposed housing
stalk required for the future population.
6.2.6 Ownership status of the houses
Ownership status is one of the major components as it helps to determine the housing
demand of the city in future. It has been noted that 83% population owns the house,
14% people live in rental accommodation and remaining 3% population live in other
form of housing. Housing demand in the city is increasing at a higher pace but the
supply is at very lower pace. Table 20 shows distribution of HH by ownership & no.
of dwelling rooms
Table 20: Distribution of households by ownership & number of dwelling rooms

Households having number of dwelling rooms
Median
Total Six number
Ownership
number of No exclusive rooms of
status One room Two rooms Three rooms Four rooms Five rooms
households room and rooms
above
Total 145,150 1,856 32,020 35,516 24,779 19,875 10,140 20,964 3
Owned 120,056 1,463 20,973 28,045 21,834 18,300 9,601 19,840 3
Rented 20,085 271 8,617 6,230 2,386 1,222 448 911 2
Any other 5,009 122 2,430 1,241 559 353 91 213 1
6.2.7 New Development
Varanasi Development Authority (VDA): VDA is responsible for overall planned

development of the city. Presently VDA has few new housing schemes in the
Varanasi areas viz., Lodhan housing scheme and Unitech housing scheme. Awas
Vikas Parishad has appointed VDA for the devolvement of these areas. The area of
the Lodhan scheme is 40-50 acre and the Unitech scheme has an area of 2200acre.
These two schemes are located in the southwest region of Varanasi.
Awas Vikas Parishad- Awas Vikas has an active role in meeting the housing demand
of the city. The details of the properties declared completed up to May 2006 are given
in Table 21:
Table 21: New Housing schemes
Name of Scheme Category of property Properties declared complete upto 05/06
M.I.G 384
M.I.G 64
Kabir Nagar
H.I.G 96
EWS 76
Total 620
Jawahar Scheme Residential plots 22
Total 22
H.I.G 42
E.W.S 69
Pandeypur yojna
L.I.G 106
M.I.G 204
Total 421
Source: UP Housing Board, Varanasi
46
Keeping in view the future needs and demand of the city, six housing schemes have
been proposed, in the areas namely, G.T. Road By Pass Scheme, Housing at
Allahabad-Jaunpur road, Dharupur Yojna, Gopiganj housing Scheme, Mehuri Khurd
Land development and Housing scheme, Pusauli Land development Housing Scheme.
Although there is no data available about the housing provided by private developers
and builders, the private sector plays and important role in meeting the demand of the
city.
6.2.8 Housing In Varanasi Master Plan 2011
In Master Plan 1991, 5457.24 ha of land is proposed for residential development out
of which only 47.9% i.e. 2615.64 ha of land is developed. The rest 52.1% or 2841.6
ha land is left undeveloped. As per the plan the densities in several congested areas
have exceeded more than 1000 persons/ha hence they have identified the need for
decentralization. Thus for the planned development of the city they have identified the
total land of 9254.61 ha for residential use in Master Plan 2011.
6.3 Key Issues
Housing stock is not available to cater the increasing population.

Overcrowding in the residential areas of the city
Housing densities is very high in inner city and need to be decongested
The city has major area under unplanned residential housing.
New housing development schemes should be linked with proper transport
facilities;
The land allocated under residential use in the Master Plan 2011, shall be
optimally used to bridge the housing gap.
47
7 Tourism and Heritage Conservation
7.1 Background
The ancient city of Varanasi is

believed to have existed since
beginning of the earth and finds its
mention in the Arthavedas6. Varanasi,
owing to its rich traditional fabric and
ghats, attracts more than 30 lakh
domestic and international tourists
each year. The city, an important
centre for religious tourism in India is
also a gateway to the Buddhist circuit;
with significant foreign tourist coming
from Japan, China, Malaysia, etc.
Being the holiest city of Hinduism, the Painting showing Kashi on Trishul of Lord Shiva
impact of the religion is found
everywhere in the city. The city of Varanasi is unique in the architectural, artistic and
religious expressions of traditional Indian culture and is, even today, a living example
of this culture.
7.2 Tourism
7.2.1 Destinations within Varanasi
7.2.1.1 Ghats
Varanasi is famous for its Ghats. Ghats are steps that lead down to River Ganga. The
crescent shaped bank of river Ganges houses 84 ghats on the western bank spread
over a distance of 6.8 km. Several rituals and religious ceremonies are associated with
these ghats and pilgrims travel from all over the country for prayers, holy dip in the
river Ganga, cremation, religious offerings, etc. The most important ghats are
Dasaswamedh, Harish Chandra, Manikarnika, Panchaganga, and Assi ghat.
Dasaswamedh Ghat: It is one of the

most important ghats of Varanasi. It is
located near ‘Kashi Vishwanath
Temple’. It is belived that on this very
Ghat ten horses were sacrifised by Lord
Brahma to allow Lord Shiva to return
from a period of banishment. In spite of
the fact that Dasaswamedh is one of the
oldest ghats of Varanasi, dating back to
many thousand years, the ghat has
remained unspoilt and clean.
View of Dasaswamedh Ghat
6
Revitalization of Varanasi as a tourist destination, Ministry of Tourism and Culture, GoI, Feb 06, HUDCO
48
Dasaswamedh provides a beautiful and

colourful riverfront view. A large
number of Sadhus can be seen
performing religious rites on this ghat.
Devotees must not miss the
opportunity of visiting this ghat in the
evening when the Aarti is performed.
During Dipawali festival, thousands of
earthen lamps are immersed in the
waters of the holy Ganges and the
floating lamps give a divine look to the Aarti at Dasaswamedh Ghat
river at dusk.
Harish Chandra Ghat: Harish Chandra Ghat is name after a mythological King
Harish Chandra, who once worked at the cremation ground here for the
perseverance of truth and charity. It is believed that the Gods rewarded him for
his resolve, charity and truthfulness and restored his lost throne and his dead son
to him. Harish Chandra Ghat is one of the two cremation Ghats (the other being
Manikarnika Ghat) and is some times referred as Adi Manikarnika (the original
creation ground). Hindus from
distant places bring the dead bodies
of their near and dear ones to the
Harish Chandra Ghat for cremation.
In Hindu mythology it is believed
that if a person is cremated at the
Harish Chandra Ghat, that person
gets salvation or "moksha". The
Harish Chandra Ghat was somewhat
modernized in late 1980's, when an
electric crematorium was opened Cremation at Harish Chandra Ghat
7
here .
Manikarnika Ghat: It is one of the oldest and most sacred Ghats of Varanasi.
People belive that being burned here provides an instant gateway to liberlisation
from the cycle of births and rebirths. Lying at the centre of five tirthas, ghat
symbolises both creation and destruction. At Manikarnika Ghat, the mortal
remains are consigned to flames with
the prayers that the souls rest in
eternal peace. It is also believed that
fire does not extinguish at this Ghat.
There is a sacred well at the
Manikarnika Ghat, called the
Manikarnika Kund. Manikarnika
Kund is said to be dug by Lord
Vishnu at the time of creation while
the hot ashes of the burnt bodies
makes one remember the inevitable
destruction of everything in the Wooden logs at Manikarnika Ghat
world.
7
http://www.varanasicity.com/harishchandra-ghat.html
49
Panchaganga Ghat: As the name

suggests, it is belived that five rivers
Kirana, Ganga, Yamuna, Saraswati and
Dhuta-papa converge here. Dominating
the ghat is Auangazeb's smaller
mosque, also known as the Alamgir
Mosque, which he built on the site of
large Vishnu temple erected by the
Maratha chieftain Beni Madhav Rao
Scindia.
Assi Ghat: This Ghat marks the Panchganga Ghat

confluence of the Assi canal with the
River Ganga. It is believed that when Lord Durga killed the demons Shunga and
Nishunga, her sword fell in Varanasi creating a depression in the form of Assi
canal.
Out of these ghats Manikarnika, Panchganga, Adi Kesava, Dasaswamedha and Assi
Ghat comprise the “Pancha Jala Tirthas”.8
7.2.1.2 Temples
Apart from the Ghats, there are around 2000 temples, small, medium and big in
size throughout the city. Many important temples are located along the ghats of
Ganga River, adding to the religious value to the holey river. Some of the
important temples are Kashi Vishwanath, the
Sankat Mochan temple, The Tulsi Manas
temple, the Durga temple, the Kal Bhairav
temple and the Mritunjaya temple.
Kashi Vishwanath Temple: Located almost

centrally on the west bank of River Ganga,
this is the most important temple in the city. It
is also known as the Golden Temple dedicated
to Lord Shiva, the founder of the city. It is
believed that Aurangzeb destroyed the original
temple and the stones were used to build a
mosque next to the temple. The rear wall of
the temple was left untouched by Aurangzeb
and Queen Ahilya later on built a new temple
close to the old one.
Vishwanath Temple
Sankat Mochan Temple: Sankat Mochan
temple is one of the sacred temples of Varanasi. It is located in the southern part
of Varanasi, near the Banaras Hindu University. It is dedicated to the Hindu
God, Hanuman. The word "Sankat Mochan" means one who helps in removing
sufferings i. e. Lord Hanuman. Tulsidas, the author of the famous Hindu epic
Ramacharitamanasa, founded the Sankat Mochan temple. According to Hindu
mythology, one who visits the Sankat Mochan temple regularly, his wishes get
fulfilled.
8
Revitalization of Varanasi as a tourist destination, Ministry of Tourism and Culture, GoI, Feb 06, HUDCO
50
Every Tuesday and Saturday, thousands of devotees queue up in front of the

Sankat Mochan temple to offer prayers to Lord Hanuman. According to Vedic
Astrology, Hanuman protects human beings from the anger of planet Saturn and
those who have ill placed Saturn in their horoscope visit the Sankat Mochan
temple to get remedy. People put "Sindoor" on the statue and offer "laddoos" to
Lord Hanuman. The "Sindoor", from the statue of Lord Hanuman is put on the
foreheads of devotees9.
Tulsi Manas Temple: Tulsi Manas temple is one of the most famous temples of
Varanasi. It is also an important tourist attraction of the holy city. The Tulsi
Manas temple is located near the famous Durga temple. It was built in white
marble in the year 1964. The temple has been made more charming by the
magnificent landscaping around it. The Tulsi Manas temple is dedicated to lord
Ram. It is believed that temple is built at the same place where Tulsidas wrote the
famous Indian epic, Ramcharitamanasa. The walls of the Tulsi Manas temple
are engraved with verses and scenes from the Ramcharitammanasa, the Hindi
version of the Ramayana10.
7.2.1.3 Old city
Narrow lanes characterize the old city of Varanasi and its rich architectural legacy
allures the travelers into the religious and cultural mosaic that forms an integral part
of Varanasi’s tradition. Several old temples and Havelis still adorn the built fabric.
The area comprising of the gnats, the temples and the old city has been identified as
a Cultural Heritage zone.
7.2.1.4 Sacred Kunds
The city is interspersed with sacred

kunds mostly within the temple
complexes or along the ghats. These
kunds are associated with religious
rituals having tremendous historical and
religious significance. Over a period of
time due to tremendous pressure on land,
some of these kunds have been steadily
engulfed within the built up areas. Even
today, many of these tanks face the Deteriorated condition of Kunds
danger of encroachments or extinction.
Some of the important kunds are Lolar Kund, Durga Kund and Pittar Kund. The
riverfront is dotted with temples representing varied architectural styles.
7.2.1.5 Pilgrimage Routes
Varanasi has five sacred territories or Khandas and each Khanda has a sacred yatra
associated with it. These yatras are: Chaurassikosi yatra, Panchkroshi yatra, Nagar
Pradakshina, Avimukta yatra and Antargraha Yatra. Most of these yatras are
concentrated in the old city area along the riverfront.
9
http://www.varanasicity.com/temples/sankat-mochan-temple.html
10
http://www.varanasicity.com/temples/tulsi-manas-mandir.html
51
7.2.1.6 Banaras Hindu University
The university founded in 1917 by Pandit Madan Mohan Malviya is the most famous
institution in Varanasi and the largest residential university in the country. The
university also houses attractions like a New Vishwanath temple (an architecturally
significant temple) and the Bharat Kala Bhavan, which has a vast collection of Hindu
and Buddhist Sculptures.
7.2.2 Destinations in the vicinity of Varanasi
Apart from Varanasi, the other major tourist destinations in the vicinity of the city are:
7.2.2.1 Sarnath
Located 10km from the city of Varanasi,

this place is a prominent Buddhist holy
place. It is here in Sarnath that ‘Gautam
Buddha’ first preached his doctrine to the
world and is one of the four holiest places
of Buddhist pilgrimage. This is the major
tourist place, which has been identified as
a Heritage zone as per Master Plan 2011.
There are archeological remains of

Buddhist Monastery built by the King
Buddhist Stupa at Sarnath
Ashoka. Apart from this there is Sarnath
Museum, which is a treasure trove of Buddhist sculptures, inscriptions and pottery.
Some of the finest images of the Buddha and panels depicting important episodes
from the life of Sakyamuni can from the Gupta period, carved in the fine-grained
Chunar sandstone. In Sarnath Museum one can see the magnificent Lion Capital,
which once crowned the Ashoka pillar at Sarnath and which today is the official
symbol of the Indian State.
7.2.2.2 Ramnagar
For a 17th century fort, this one is

seriously well preserved, probably because
the king -- the former king -- still resides
here. 14 km from Varanasi the fort at
Ramnagar houses a museum displaying
the Royal collection which includes old
silver and brocade palanquins for the use
of the ladies of the court, elephant
howdahs made of silver brocades, a replica
of the royal bed and an armoury of swords Entrance of Ramnagar Fort
and guns, vintage cars, royal palkies, an
armory of swords and old guns, ivory work and antique clocks. Ramnagar Fort was
the home of the Maharaja of Banaras. The Durga Temple and Chhinnamastika
Temple are also located at Ramnagar.
52
Located across the river on the Ram Nagar road that leads east from the BHU, the fort
comes into its own during the annual Dussera festival. Ramangar houses the
residential palace of the king of Banaras, which is presently being used as a museum
(exhibiting palanquins, swords, etc.). Dussehra celebrations at Ramnagar are worth
watching. Ramnagar fort and palace was built in 1750 A.D. by the king of Banaras.
This fort located on the right bank of Ganga is primarily made of red sandstone. Apart
from this, the fort also houses an astronomical clock, which transpires several
astronomical wonders.
Major tourist destinations in and around the city are as shown in the Map 5
7.2.3 Fairs and Festivals
Varanasi, the sacred corridor (tirtha) is the embodiment of living sacred heritage and
hosts a large number of fairs and festivals throughout the year. The importance of
these festivals can be seen from the number of pilgrims arriving and attending the
fairs. During the greatest festivals when more than 2500 people arrive per hour, the
self-organization of the Varanasi pilgrimage system intensifies partially due to
increased mutual interaction of pilgrims who arrive in informal groups of family and
friends or various kinds of pilgrimage tours. Table 22 shows the fares and festivals
that take place in Varanasi, with their venue and period during which they occur:
Table 22: Important festivals and the venue in Varanasi city

Festivals Venue Period of Occurrence
Paush Poornima Ghats January
Makar Sankranti Ghats January
Mauni Amavasya Ghats January/February
Magh Poornima Ghats/Ravidas Mandir February
Ganga Water Rally Ghats February
Dhrupad Mela Tulsighat March
Mahashivaratri Ghats & temples March
Navratra (Chaitra) Ghats / Temples April
Ram Navami Tulsi Manas Mandir & Ghats April
Sankat Mochan Music
April
Festival Sankat Mochan Mandir
Buddha Poornima Sarnath May
Ganga Dussehra Ghats June
Ramlila, Ramnagar Ramnagar September-October
Dhanush Yagya Ramnagar September
Ram Vivah Ramnagar September
Nakkataiya Ramnagar September
Pitra Visarjan Ghats September
Navaratra(Ashwin) Ghats & Temples October
Vijaya Dashmi / Dussehra Ramnagar D.L.W Vidyapeeth October
53
54
7.3 Heritage
Heritage areas were classified in three different zones. These zones are Riverfront
heritage zone, core city heritage zone and Sarnath heritage zone. These zones are
elaborated as follows:
7.3.1 The Ganga River and the Riverfront Heritage Zone
Riverfront heritage zone can be divided in two parts. First being the Eastern side of
Ganga, where heritage zone is flanked by the strip of green belt of trees along the
sand belt of the river. Second being on the Western side, where the road that connects
the Assi locality to Rajghat delineates it. The Eighty-three-riverfront ghats cover a
length of 6.8 km along the crescent-shaped bank of the River Ganga comes under
Western side heritage zone and is very important.
7.3.2 Core Heritage Area
The core heritage area lies within the Old City Heritage Zone. The path linking
Vishalakshi Devi, Dharmakupa, Vishvanatha, Annapurna, Adi Vishwanatha, and
Razia Bibi Mosque demarcates it. The Vishvanatha temple is the nucleus. There are
about 70 important shrines and temples in this area.
Most of the heritage properties in the old city belong to individual owners, substantial
holdings by the Vishvanatha Temple Trust, non-government organisations and
charitable trusts. A few tangible heritage sites falling within the Riverfront & Old City
Heritage Zone such as Manmandir Observatory on Dashashvamedh Ghat,
Aurangzeb's mosque and the Jnana Vapi mosque have been declared as Monuments
by the Department of Archaeology, Govt. of India under the Ancient Monuments and
Archaeological Sites and Remains Act 1958 Act No. 24 & 1958 (Central Act) and the
said sites and its buffer zone are maintained and conserved by the Department of
Archaeology.
7.3.3 Sarnath Heritage Zone
ASI has also declared Sarnath as a Heritage zone. Some of the archeological remains
that can be seen in Sarnath Heritage Zone are as follows:
a) The Ashoka pillar and its famous lion capital were discovered in 1904. Later Saka
and Kushan monarchs also patronised Buddhist monks and promoted Buddhist art in
Sarnath.
b) The Dhamekha stupa is considered to be the sacred place where the voice of
Buddhism was first heard. Many dignitaries of Buddhist countries visit this place
for circumambulation of this sacred stupa and to worship the Buddha.
c) Dharmarajika Stupa marks the site where the Buddha gave his first sermon. It
was broken down in the 18th century by an officer of the Maharaja of Benaras
who was looking for building material for constructing a bazaar. Alexander
Cunningham found a marble casket beneath the stupa during excavations in the
late 19th century.
55
d) Chaukhandi- The first landmark that visitors see on their way to Sarnath from
Varanasi is a high mound with the remains of a brick stupa built in the Gupta
period. Today the site is called Chaukhandi. It marks the spot where the Buddha
first met his five companions on arriving in Sarnath. Govardhan added a Mughal
style octagonal tower, son of Raja Todar Mal, in 1588, to celebrate a visit by the
Mughal Emperor Akbar to the city.
Archeological remains of the Buddhist Monastery built by the King Ashoka
7.3.4 Current Scenario/Threat to Heritage
Increase in population trend has led to the threat of these heritage areas and zones.
The riverfront and old city heritage zone of the city is densely populated (above
1000 persons/ha), and it is here that development pressures are altering
irreversibly the socio-culture of the city.
The city is converting into concrete structures with no or less open spaces left
which has deteriorated the living condition and the structures are getting affected
as the affordability of people is getting poorer.
The modification of urban spaces in the old city centre of Varanasi could also
negatively alter the religious and cultural life can destroy the tourist attractions –
both of which are the major sources of earning for its population.
Increasing population is leading to more number of vehicles and traffic
congestion, not only at peak hours but at most hours of the day leads to noise
pollution and smog.
The rapid increase in the number of tourist every year (around a million pilgrims)
has created a stress on the city heritage areas and infrastructure. Tourism and
related activities are major source of city’s economy. Thus it is important to create
harmony with the existing cultural and religious atmosphere of the city.
The river eco-system is facing pressures in the riverfront heritage zone and also
from other parts of the city whose sewage flows directly into the river.
7.4 Tourist Inflow
The city has a magnetic attraction for people all over the world. It is an important
centre for religious tourism in India and also the gateway to the Buddhist circuit. The
majority of domestic tourists are from Bihar, West Bengal, Madhya Pradesh and other
parts of Uttar Pradesh. While the foreign tourist are basically from Sri Lanka followed
by Japan and then by other parts of world. Approximately the entire foreign tourist
visiting Varanasi visits Sarnath additionally. The peak season is regarded as October
to March with tourist inflow being 60% of the total domestic tourist coming in a year
while for foreign tourist it is 71%. The average stay is 2-3 days for both domestic and
56
foreign tourists. Table 23 shows the annual tourist inflow in Varanasi during last 4
years.
Table 23: Annual Tourist Inflow
2006 (Till
Year (Jan to Dec.) 2002 2003 2004 2005 march’06)
Domestic 25,88,178 27,01,716 28,09,422 30,49,980 9,69,909
Varansi Foreign 98,765 1,08,017 1,41,328 1,43,993 44,000
Total 26,86,943 28,09,733 29,50,750 31,93,973 10,13,909
Domestic 4,39,099 4,45,334 5,04,833 5,72,650 1,51,250
Sarnath Foreign 1,47,173 1,72,872 1,99,413 2,01,725 49,102
Total 5,86,272 6,18,206 7,04,246 7,74,375 2,00,352
Domestic 30,27,277 31,47,050 33,14,255 36,22,630 11,21,159
Total Foreign 2,45,938 2,80,889 3,40,741 3,45,718 93,102
Total 32,73,215 34,27,939 36,54,996 39,68,348 12,14,261
Source: Uttar Pradesh State Tourism Department Corporation, 2006
Figure 14: Tourist Inflow of last four years
Thousands
3500
3000
2500
2000
1500
1000
500
0
2002
1 03
2 04
3 054
Varansi Foreign
Varansi Domestic
Tourism is the second most dominant sector in Varanasi. A major portion of the
tourist traffic comprises of domestic tourists who visit Varanasi for religious
activities/purposes. A significant percentage of foreign tourists also visit the city due
to its characteristic Ghats and proximity to Sarnath. The foreign tourist comprises
nearly 15% of the total tourist coming to Varanasi. The tourist inflow is increasing at
the rate of average 4% per year with the last year increase of 8% last year. The major
increase is in number of foreign tourist till 2004. Although in the year 2005 there was
an increase in number of foreign tourist, the percentage had drops drastically as
compared to previous two years.
7.5 Tourism Infrastructure
The average duration of stay for the tourist is 2-3 days. A few five star hotels, large
number of 2 to 3 star hotels and Dharamashalas are located in the vicinity of the
riverfront to cater to the tourists while the rest of the hotels are near Cantonment
57
railway station. There is a pronounced lack of infrastructure and accommodation

facilities in the old city. The supportive infrastructure to the tourist accommodation
like electricity supply and water is also poor.
Total beds within the city are 12077 per day and nearly 33% of the whole
accommodation facilities are in Dharamshalas. On overall basis the 50% of the
accommodation are cheap budget hotels concentrated in old city area. Table 24 shows
availability of rooms in Varanasi.
Table 24: Availability of Rooms in Varanasi.

Type Number of Rooms Bed Availability/day
5 Star 254 517
4 Star 85 170
3 Star 223 446
2 Star 104 208
Non Star 1868 3736
Dharamshalas _ 4000
Unregistered Hotels _ 3000
Total 12077
Source: ICRA report, 2006
7.6 Tourist Projection
On the current trend of the tourist inflow in the city, in the next year the tourist is
expected to increase at 10.4% and the approximate tourist inflow is expected to be
43,83,834. As the tourist inflow increases, there will be stress on infrastructure
facilities like accommodation, tourist hotels and facilities. The total number of tourist
accommodation required for the next 15 years will be nearly 10,000. Table 25 shows
the demand in the next few years of development:
Table 25: Demand pattern of tourist accommodation:

Peak demand Till 2008 2008-2013 2013-2020
5 Star 407 55 97
4 Star 325 44 78
3 Star 407 55 97
2 Star 407 55 97
Star Hotels 1545 208 368
Economy Hotels 2439 329 582
Dharamshalas 1171 158 279
Total 6700 903 1597
Source: ICRA report, 2006
7.7 Tourism Policy
To promote tourism with the tourist and pilgrim as the focus U.P. State Tourism
department has prescribed the strategies and policies. Some of the policy has been
listed below: -
To develop the necessary infrastructure facilities through private-public

partnership. Special importance would be given to facilitate investment by NRI.
58
To develop and publicise new tourism products and attractions like Yoga,
Spiritual knowledge, Ayurveda, naturopathy, adventure sports, eco-tourism, water
cruises, film locales, diverse cuisines, traditional attire, and crafts, village life etc.
Promotion of eco-tourism in the hills, forests and areas with water bodies to
preserve the environment.
Restoration of ancient places, havelies, buildings, forts, and introduction of a
Heritage Hotel Subsidy scheme.
Formulation of standards for tourism units and introduction of an incentive
scheme to facilitate their adoption by the private sector.
Extensive projection of the available facilities, tourist sports and attractions of the
state domestically and internationally through advertisements, films, C.D's,
cassettes, website etc. Effective marketing through participation in domestic and
international travel trade conferences, fairs and world marts, and organization of
Uttar Pradesh shows in identified cities of important countries.
To create sufficient facilities for tourism related human resources development
upgrading and improving the management of the Tourism Management Institute
and Food Craft Institute, besides establishing new ones, if necessary.
Strengthening and expansion of the departmental tourism organization through a
modern work culture and qualitative improvement in employees, better
organization of festivals, incentives to the tourism industry, and establishment of
special cell for efficient collection of data and research work.
7.8 Key Issues
Intensive pollution of River Ganga due to discharge of untreated sewage and

religious activities
Subsidence of Ghats due to influx of river water into the Ghat area
Unhygienic conditions on ghats, approach roads
Uneven risers of steps to Ghats
Shifting course of River Ganga
Unorganized tourist and religious activities leading to chaos
Lack of public facilities on Ghats
Lack of maintenance of traditional architectural facades
Tourists are left on the mercy of boatmen and pujaries who greatly harass the
tourists
Stress on infrastructure due to heavy tourism load.
Lack of maintenance
Unregulated tourist traffic
Lack of organized spaces for informal sector
Unorganized commercial activities encroaching upon the road
Scheme for dealing with encroachments of permanent and temporary nature
Lack of maintenance of traditional Havelis and temples.
Lack of proper infrastructure
Visual potential of the area is destroyed due to littered solid waste.
Lack of maintenance
Threat of encroachments and drying up
Eutrophication is taking place in the kunds and the condition is getting worst day by
day.
Lack of dedicated route
Chaos due to clashes with informal activities and traffic
59
8 Water Supply
8.1 Brief History
Water supply system for Varanasi is as old as 100 years when it was introduced in
year 1892. It was designed for the population of 2 lacs with a treatment plant of
33mld constructed at Bhelupur. In the early years, treatment of water was done
through slow sand filters but at the later stage rapid gravity filters replaced it. With
increase in population and corresponding water demand of the city, capacities of
different units were increased from time to time in stages along with reorganization
and extension of distribution system to make equitable distribution of supply and to
meet out the demand in different zones.
After the introduction of water supply system, the main reorganization of the system
was done in 1954 with per capita water supply at the rate of 200 lpcd and the scheme
was executed for 4.6lac population. The whole city as per reorganization was divided
in to 7 zones, which are as follows;
Sikraul (Civil lines)

Cotton mills
Rajghat
Benia park
Neechibagh (Chowk)
Bhelupur
London Mission
The scheme was supplying water to the entire city except distant areas of Sikraul
(Civil Lines) and Cotton mill zones, which were covered by the ground supply.
Following improvements were made to improve the water supply scheme in this
reorganization.
Raw water carrying capacity was improved to 90 MLD.

Effective filtration capacity was improved to 90 MLD.
Clear water pumping capacity was improved to 32 MLD.
Distribution system was improved to serve more population.
In later stages, with increase in population and demand, additional tube wells were
constructed in different parts of the city to supplement the surface/river water supply
especially in the high zone areas. Water supply schemes for the Lahartara, Shivpur,
Bazardiha, Jalalipura etc. areas were executed in the year 1967-1968 due to extension
of Municipal boundaries and increase in the population of the out skirt areas. These
reorganizations were followed by Master plan proposals for the river water districts
and ground water districts were drawn up in the year 1972 – 1973. Based on these
proposals, work for augmentation and reorganization of water supply were taken up in
Cotton mill, Maidagin and Jaitpura zones. Similarly, in Shivpur, Rajghat, and Lanka
zones, additional tube wells were constructed for the augmentation of water supply.
A comprehensive scheme for 7.82 lac anticipated population for the year 1981 under
the World Bank program was prepared in the year 1977 with a water supply rate as
225 lpcd. The scheme was divided in to three subprojects as subproject-1,
60
subproject-2, subproject-3 and the city was divided in to two parts as Cis- Varuna and
Trans – Varuna. Cis – Varuna area included the old city where as the Trans – Varuna
included Civil lines, Shivpur, U.P.College, Pandeypur, and Paharia areas. The
following works were executed under this scheme:
Tube wells #12.

Overhead tanks #12.
Clear water reservoirs # 2.
Distribution system in different diameters #234.00 km in various areas of
the city.
Further at the later stage in the period of 1983 to 1992 some more works has been
executed to accommodate the increasing demand due to the increase in population of
the city, which are as follows:
Tube wells # 26
Under ground clear water reservoir # 1 of 1500 kilolitres.
Zonal pumping stations and distribution system in Jaitpura zone has also been
completed.
One more project was prepared by Varanasi Jal Sanstha in 1985 to supply 150mld
clear water. The project was executed with the financial aid from the World Bank
(Under U.P. Urban Development project) The estimated cost of the project was Rs.
1214.05 lac. and the main works under this project were:
1) Construction of an intake well at Bhadaini and installation of 4 pumps each of

pumping capacity 40 kl./min. of raw water against a head of 35 meters with the
assumption that it would be sufficient to fulfill the demand up to 2031.
2) Construction of raw water rising main of 1200mm diameters from Bhadaini to
Bhelupur water works.
3) Replacements of 5 nos. clear water pumps of Bhelupur water works.
4) Conversion of two nos. settling tanks in to flocculation cum settling basin with the
provision of hydraulic de-sludging arrangement.
5) Construction of 100 MLD and 150 MLD rapid gravity sand filters.
6) Construction of 25000 Kl clear water reservoir at Bhelupur water works.
7) Laying of 29.85 Km feeders main to London mission, Lahartara, Rajghat,
Maidagin, Jaitpura, Cotton mill, and Lanka zones.
8) Installation of 5.0 nos. C.W. pumps of capacity 40 Kl./min. with 40m head.
9) Laying of 18.84 Km distribution system in Trans Varuna area.
Deteriorated Conditions of Pumps
61
For the purpose of extending adequate and safe water supply facilities to the entire
area of the Master plan, the city has been divided into following 16 water supply
zones of which 5 zones lie in the Trans-Varuna area and the remaining 11 zones in the
Cis-Varuna area and are as follows. These zones are as shown in Map 6.
Trans Varuna District

(i) Shivpur Zone
(ii) U.P. College Zone
(iii) Pandeypur Zone
(iv) Paharia Zone
(v) Civil Lines Zone
Cis Varuna District
(i) Lahartara Zone
(ii) Landon mission Zone
(iii) Cotton mill Zone
(iv) Jaitpura Zone
(v) Rajghat Zone
(vi) Maidagin Zone
(vii) Chaok Zone
(viii) Benia Zone
(ix) Sigra Zone
(x) Bhelupur Zone
(xi) Lanka Zone
With all these developments over last couple of decades, total production of
treated/clear water is 280mld and total requirement based on 150 lpcd supply rate is
207mld, is quite higher than the requirement. Presently the average per capita water
production (excluding Cantonment and BHU campus) is approximately 275 lpcd.
Actual water consumption is not possible to determine since most services are un-
metered. Assuming UFW of 30% (as estimated by Jal Sansthan), the actual
consumption would be in the order of 212 lpcd.
As noted in a recent report “Report on State of the Environment for Varanasi”, by

CPCB, there is acute shortage of water because the distribution system is not well
developed. Findings from the CPCB report indicate that supply of water is only 60
lpcd in the trans-Varuna area, which is on very lower side of the norms.
62
63
8.2.1 Water Sources
The town has adequate perennial source of water. The lifeline of the town is River
Ganga, which takes care of approximately 45% of the water supplied of the town.
50% of the water supplied is met out of 112 deep tube wells operated by Jal Sansthan
and remaining 5% is supplied by publicly and privately owned 1559 hand pumps
Table 26 shows water supply sources and percentage of water extracted from each
source.
Table 26: Water Supply Sources
Source Capacity (MLD) Percentage Remarks
Ganga River 125 45 Water supplied to Bhelupur Water Works.
Tube wells (112 nos) 145 50 Operated by Jal Sansthan
Hand pumps (1559) 10 5 Some are privately owned
Total Municipal
280 100
Water Supply
Source: Report Prepared by Ganga Pollution Prevention Unit, Varanasi, “Pre Feasibility Report for Water Supply
component under JNNURM”, 2006
Raw water is lifted and pumped at Bhadeni raw water pumping station and taken to
Bhelupur Water Works where it is treated stored and distributed. The entire trans-
Varuna area and some recently developed localities in cis-Varuna are supplied
exclusively by ground water. Presently, approximately 145mld is extracted from 112
deep tube wells operated by Jal Sansthan. In addition to tube wells operated by Jal
Sansthan (JS), there are many privately owned and institutional tube wells that
provide around 5% of the total supply. A total of 1,559 hand pumps provide an
estimated 10mld of water in places of water scarcity.
BHU (Banaras Hindu University) has its own water supply network with about 15
tube wells, two used exclusively for the farms and the remaining for drinking water
supply. Water production at BHU has been estimated at 23.5 MLD based on an
installed pumping capacity of 259,000 gallons per hour x 20 hours per day. BHU
authorities estimate that approximately 50% of the water is used for gardening,
farming and other horticultural purposes; therefore about 11.75 MLD is used by the
BHU campus residents.
8.2.2 Water Treatment Plant
The raw water extracted from Ganga River

at Bhadeni gets treated at two water
treatment plants at Bhelupur water works.
Capacities of the Water Treatment Plants
(WTP) are 60mld(1954) and
250mld(1994). Water treatment comprise
of rapid sand filters, and clear water
sumps. There are 35 sand filter beds, 9 for
old WTP, and 26 for new WTP. Out of 9
beds of old WTP, only 5 are in working
conditions and remaining 4 beds are under
Water Treatment Plant at Bhelupur
64
maintenance (change of filter bed), which can be used after modifications. For new
WTP, all the filter beds are in working conditions. Depth of these filter beds is
1.2meters, with one layer of sand (750mm) and four layers of gravel (3 layers of
100mm and one layer of 150mm).
Treated water from these treatment plants is then stored in two under ground sumps of
25ML capacity each, and one OHT of 1.2ML at Bhelupur, which serves 50%
population of the city. Water is also distributed to other storage tanks all over the city.
8.2.3 Storage Tanks
There are 17 Over Head Tanks (OHTs) with total

storage capacity of 17.8mld along with 7 Under Ground
Reservoirs (UGRs) with total storage capacity of about
62mld. Total storage capacity including both OHTs and
UGRs is about 79.8mld. Details of OHTs and GLSRs
are as below (Table 27). Location of these reservoirs
can also be seen in Map 7.
OverHead Tank at Chetganj

Table 27: Location and capacity of Overhead tanks
Sl no Location Storage type Capacity Areas Covered
1 Bhelupur UGR 2 nos X 25 Bhelupur ward, Part of Nagwa ward,
ML Chauk, Chetganj, Jaitpura, Kotwali and
Adampur ward.
2 Maidagin UGR 1.5 ML Daranagar, Ausanganj, Maidagin,
Old Ishwariganga, Jaitpur, Salempura,
3 Maidagin UGR 1.5 ML Madhyameshwar and other Mahals
New
4 Rajghat UGR 1.5 ML Rajghat, Pralhad ghat, Part of
Madhyameshwar, Kayastha tola,
Chhitanpura, Jalalipura
5 Gopal Bagh UGR 1.25 ML Sheshman Bazar, part of Ishwariganga,
Udhavpura, Gopal Bagh, Dingiaagaganj,
Azad park
6 Beniya UGR 0.75 ML Muletan, Haripura, part of Chauk, Resham
Karta, Thatheri Bazar, Golagali
Mikhadidas, Nandan Sahu lane, Hadaha
Sarai,
7 Bhelupur OHT 1.14 ML Bhelupur and Water works area
8 Tulsipur OHT 1.0 ML Tulsipur, Raghunath nagar colony,
Navodit nagar colony, Ranipur, Patiya
Virdopur area
9 Mogawir OHT 1.0 ML Mogawir colony, Nariya area, Rashmi
area nagar colony, part of Lanka, Shukulpura,
Sankatmochan area
10 Sundarpur OHT 1.0 ML Sundarpur, Brig enclave colony,
area Sundarpur village, Dashmi, Batuapura,
Gayatri nagar colony, Teliyana square
11 Nagar OHT 1.0 ML Madhopur
Nigam Park
12 Lahartara OHT 1.0 ML Lahartara complete area
area
65
Sl no Location Storage type Capacity Areas Covered

13 Sonia area OHT 1.5 ML Sonia, Kazipura, Lallapura, part of
Aurangabad
14 Beniya area OHT 1.5 ML Badi Piyari, part of Kabir chura, Chetganj
15 Banaras OHT 1.2 ML Golghar, Pakki Bazaar, DIG colony,
Club Varuna Pul, Sikril village, Ardali Bazaar,
Khajuri, Makbul Alam road, Pahadpura
16 Mint House OHT 0.80 ML Nadesar, Raj Bazaar, Ghausabad, Mint
area house area
17 Maladhiya OHT 1.25 ML Maladhiya
18 Natiniya Dai OHT 1.0 ML Nitiniya Dai, Gautam Vihar, Mirapur
Basahi, Taktakpur
19 UP college OHT 1.0 ML Bhojubir, Chuppepur, Sushma nagar,
Laxmanpur
20 Kadipur OHT 1.0 ML Kadipur, Shivpur Bazaar, Shivpur kote,
Bharlai
21 Lalpur OHT 1.0 ML Pandaypur, Chota Lalpur, Soyepur,
Pandaypur colony
22 Pahadiya OHT 1.0 ML Ashapur, Mawaiya, Sarnath, Purana pul,
Pulkohana, Ashok Vihar, Chanda
Chauraha, Paigambarpur
23 Chaukaghat OHT 1.25 ML Dhelwariya, Nakkhighat, Shakkar talab,
Badi Bazaar, Usmanpura, Kamalgaddha,
Sanjay Apartment, Aghaganj, Nagkuan,
Alayipur
Total 24 79.8 ML
Source: Jal Sansthan, Varanasi, 2006
Present storage available is 79.8 ML, which is only 57% of the daily demand of
280ML in two fillings. The present storage capacity is insufficient to take care of the
present as well as the future demand of the city.
8.2.4 Distribution Network
The length of the distribution network as of now is 590km. A major length of the
distribution system i.e. 234km was installed in year 1977, under a comprehensive
scheme prepared under the World Bank program. Diameter of the pipes varies from
90 to 7500mm in different parts of the city and system consists of CI and PVC pipes.
With increase in the city limits distribution system is provided to new extension areas
under different development programs.
Rising mains are in good condition as they were reorganized from time to time under
different schemes. One of the problems of the rising mains is the alignment of rising
mains in some parts of the city, especially in the old town area. Distribution mains in
some parts of the city are in bad condition. Some of the problems related to the
distribution network is:
• Some of the lines are as old as 100 years, which are broken as they are deep down
the ground due to landfilling and needs replacement.
• In some parts of the city the distribution lines are passing through sewer lines,
open drains, nallas contaminating drinking water due to seepage of sewage in the
pipes
66
67
8.2.5 Quality of Water
Japan International Cooperation Agency (JICA) has conducted a detailed study on

“Water Quality Management Plan for Ganga River” covering entire stretch of Ganga
River from Rishikesh to Calcutta. Under this study, Varanasi was also covered.
During the study it has been observed that water quality of the upper stretch of Ganga
River is good because there is less pollution load discharged into the river and the
self-purification capacity is also very high.
The condition, however, worsens in

the middle stretch (from Kanpur to
Varanasi) because a large quantity
of water is withdrawn for irrigation
and domestic purposes thereby
deceasing the dilution or self-
purification capacity of river water.
Furthermore, a large quantity of
untreated wastewater is discharged
Disposal of Open drains in River Ganga
into the river from the cities located
on the bank of River Ganga and its tributaries and hence the section of Ganga from
Kanpur to Varanasi and the downstream section of Gomati from Lucknow are
excessively polluted.
Quality of water in Varanasi is found to

be far below the ISI standards and even
after 17 years of implementation of GAP,
some researchers have declared that
Ganga water in Varanasi also is not fit
even for human bathing. The main reason
for the pollution of Ganga water is the
pollution coming from industries and
urban wastewater and is very significant.
It is estimated that out of the total

pollution load runoff reaching the river Pollution load from point source
stream, the load from point sources (urban
wastewater and industrial effluent) is
significantly high (94%), including 79%
load from municipal sewage and 15%
load from industries. The industries that
are contributing to high pollution content
are mostly dying industry, which is
associated with making of Banarasi Saare
and are located in old city area. The
remaining 6% is observed to be
contributed by non-point sources such as Contamination of Water
agricultural and forestry runoff, livestock,
rural households, etc. The seasonal mean concentrations of DO & BOD along with
total & Faecal coliforms are found to be much higher (of the water samples collected
on the ghats) than the respective tolerance limits as given by the WHO and ISI
standards.
68
At city level, Jal Sansthan is responsible for monitoring the water quality, as 45% of
the total water supplied to the city is extracted from River Ganga. Jal Sansthan, in
every 15 days test the quality of water and the reports of these tests are found to be
satisfactory. The reason for satisfactory results is due to the very fact that water is
extracted from the centre of the river, where the depth of river is more. Since the Jal
Sansthan does not have their own laboratory, the collected water samples are sent to
Lucknow for testing. It is observed that during rainy season there is lot of turbidity in
the raw water and the treatment units becomes ineffective resulting in supply of
untreated water.
8.2.6 System Maintenance
There are two organizations responsible for water supply in the town. Jal Nigam
(UPJN) is responsible for planning and execution of water supply schemes and Jal
Sansthan (UPJS) is responsible for the operation and maintenance of the system. No
standard procedure is been followed for proper and regular maintenance of the
existing system. Operating staff is responsible to maintain the existing system. Present
system lacks any kind of preventive maintenance. Maintenance is taken up as and
when breakages occur. One of the problems for improper maintenance of the system
is lack of skilled manpower, which is leading to almost 40% water losses in the
system, which can be stopped by providing adequate skilled manpower.
8.3 Future Demand
It is important to calculate the future water demand, as it will form the basis for
identification of facilities that will be required for proper delivery of water supply to the
city. Projected population for the years 2011, 2021 and 2031 will be used to calculate
the future water demand/requirement. Apart from that there are certain assumptions
made to calculate the water requirement for the future. These assumptions are:
Water supply for the future population will be at the rate of 150 lpcd for domestic
use.
Another 23% of the total domestic demand is added to cover the water demand of
Institutions, commercial establishments and floating population. In addition to this
1% of total domestic water demand is added for fire fighting purpose in the city.
Provision for UFW in accordance with planning guidelines should be made and an
additional 15% of total water demand should be included.
Table 28 gives the future water demand of the city, which will be used for calculating
the facilities required to serve uninterrupted water supply to the city.
Table 28: Future water requirement of the city

Water Water Storage Requirement (mld)
Requirement Production
Year Population (mld) Capacity* (mld) Deficit Existing Required Deficit
2006 1,370,785 293.75 250.00 43.75 79.80 96.94 17.14
2011 1,535,279 329.01 240.00 89.01 79.80 108.57 28.77
2021 1,965,157 421.13 200.00 221.13 70.00 138.97 68.97
2031 2,574,356 551.68 160.00 391.68 55.00 182.05 127.05
*Note: Assumed that some of the existing facilities would complete their design period during the
implementation of the program and in case renovation/ rehabilitation is not undertaken Water
production will decrease with time.
69
8.4 Key issues
Some of the problems identified regarding water supply in the city are as follows:
• One of the major problems is about the quality of water. This is because Assi
Nalla discharges its waste ½ to 1km upstream of water intake works.
• Contamination of river water by throwing burn/un-burnt human and animal dead
bodies in to the river Ganga.
• Pollution of Ganga water by throwing flowers and garbage at the Ghat areas.
• Pipe network is passing from the nallas and drain and there are chances of
contamination of supply water from the damaged portions of the line.
• There are some local dying industries in the city, which are polluting the river
water.
• Some of the distribution lines are as old as 100 years and are deep down the
ground, which are difficult to maintain and needs replacement.
• Sewers disposing in to the rivers are contaminating the river water.
• Treated water gets contaminated as the distribution lines pass through sewer lines,
open drains and nallas. Major reason for the seepage is due to intermittent water
supply to the city.
• There are alignment problems in the distribution system leading to water losses
• Storage capacity is insufficient in the new extension areas of the city.
• Lack of skilled manpower leading to improper operation and maintenance of the
system.
• No proper water supply system for slums.
• Leakages in the water supply network.
• There are in excessive number of animals in the city and are dependent to the river
water. These animals go to the river Ganga for bathing and drinking. Animal dung
flows in to the river through nallas and drains and pollute the river water.
70
9 Sewerage and Sanitation
The situation and coverage of the sewerage network in Varanasi city is rather very
poor. Presently only 30% of the total area is provided with underground sewer
network with total length of about 400km. The existing sewer network caters
primarily to the old city, comprising mainly of the Ghat area. Entire trans Varuna and
nearly 50% part of Cis -Varuna area is un-sewered. Total sewage generated in the city
is 240mld of which only 90mld is treated in Sewage Treatment Plants (STPs) and the
remaining 150mld is directly discharged into River Ganga and Varuna through open
drains.
Underground sewer network was first provided to the town during the year 1891-
1917. Under this project three sewers were provided viz. the Main Sewer, Orderly
Bazaar Sewer and Ghat Intercepting sewer. Total length of the sewer covered under
this project was 16.52km.
The main sewer starts at Assi and passes through thickly populated areas of the
town and is a circular brick sewer in lime mortar. Total length of the main sewer
was 7.4km and the size varies from 750mm at the head to 2400mm dia at the tail
(outfall). The sewer was finally commissioned in the year 1917 and is still in
working condition.
Orderly bazaar sewer starts from a little beyond the Collectors Office and passes
through the railway track. It finally discharges into the main sewer near the
Ishwari Memorial hospital. Length of this sewer was 4.94km and size varied from
300mm SW pipe at the head to 600/900mm dia., at downfall. The construction
was completed in 1917 and is still in working condition.
The Ghat intercepting sewers were for the specific purpose of intercepting the
sewer discharge to the River Ganga from number of old drains between Meer
Ghat and Trilochan Ghat. The interceptor sewer serves Ghat portion of the town,
which cannot be drained into the main sewer. It consists of a 300mm C I S/S pipe,
1.18km in length and the outfall of the sewer is at the Trilochan Ghat directly into
the River Ganga. Several branch sewers and laterals have been laid from time to
time after construction of trunk/main sewers.
The existing city’s sewerage system was designed exclusively to carry domestic
sewage only, but owing to the traditional pattern of open drains laid in the core city
area, storm water also enters the trunk sewer directly or through manholes and branch
sewers. This leads to tremendous pressure on the sewerage network, especially during
monsoons. Due to combined system, the STPs’ become ineffective during rainy
season leading to more pollution of River Ganga and Varuna. Apart from that the
areas, which are not served by the sewer network, discharge the sewage directly into
River Ganga, Varuna or Assi Nalla, polluting the rivers.
The existing sewer lines in the city are more than 100 years old and are prone to
chocking and leakages. Due to presence of silt and garbage in the sewer lines, the
carrying capacity gets drastically reduced and during the reconnaissance survey of the
city it was found that most of the sewerage system was chocked and the sewage was
flowing on the roads. Cleaning and maintenance of sewer lines is not done properly
71
resulting in reduced section and less

carrying capacity of the system. The
clogging of these drains due to polythene
and waste dumps lead to formation of
stagnant pools of water leading to foul
smell. The nallahs and rivers of the city
are in a critical state due to the quantum of
untreated sewage and waste entering the
rivers on a daily basis.
Leaking sewer line in the city
9.1.1 Main Existing Nallas and Sewers
Main existing sewers and nallas of the city are given in the table below showing their
names, flows, type and point of discharge (Table 29 & Map 8).
Table 29: Main existing Nallas and Sewers

Sl Name of Type of sewer Measured flow Point of Remarks
No Drain/Nalla 1986 2000 Discharge
1 Ganaga River Running
Nakkhi drain Open channel - 0
almost dry
2 Ganaga River Running
Samne ghat drain Circular pipe - 0
almost dry
3 Assi Nala Open Channel 22 44.5 Ganaga River
4 Ganaga River Intercepted in
Shivala Drain Circular pipe 1 5.5
to main sewer
5 Harish Chandra Ganaga River Intercepted in
Rectangular 1.5 2.5
ghat Drain to main sewer
Mansarovar Drain Circular pipe 2.5 2.5 to main sewer
under GAP-1
7 Dr. R.P.Ghat Ganaga River Intercepted in
Rectangular 20 25
Nala(Ghora Nala) to main sewer
Jalesan Drain Rectangular 2.75 3.75
to main sewer
Sankatha ghat Rectangular - 0.3
to main sewer
10 Trilochan ghat Ganaga River Intercepted in
Rectangular 2 3.5
Drain to main sewer
Telia Nala - 1 3 to main sewer
undr GAP-1
12 Bhainsasur Nala - - 0.4 Ganaga River -
13 Rajghat Railway Ganaga River
Circular pipe - 0.03
Nala -
Rajghat Outfall Circular pipe 100 130 to main sewer
under GAP-1
15 Varuna River
Phuwaria Nala Open channel 3.2 7.6
(Right bank)
16 Varuna River
Sadar Bazar Nala 0.9 2
(Right bank)
17 Varuna River
Drain of hotels 0.2 0.2
(Right bank)
18 Varuna River
Raja Bazar Nala 0.1 0.1
(Right bank)
72
Measured flow
19 Varuna River
Teliabagh Nala 10.8 18
(Right bank)
20 Nala near Nakhi Varuna River
0.1 0.1
Ghat (Right bank)
21 Varuna River
Konia bypass - 50
(Right bank)
22 Varuna River
Central Jail Nala - 2.8 6.5
(Left bank)
23 Orderly Bazar Varuna River
- 2.2 7
Nala (Left bank)
24 Varuna River
Chamrautia Nala - 1.3 3
(Left bank)
25 Nala of Khajuri Varuna River
- 1.2 1.5
Colony (Left bank)
26 Banaras Nala No. Varuna River
- 0.8 1
5 (Left bank)
27 Varuna River
Hukulgang Nala - 1.9 2.5
(Left bank)
28 Varuna River
Nala of Nai Basti - 0.3 3
(Left bank)
29 Varuna River
Narokhar Nala - - 7.5
(Left bank)
Source: The Study on Water Quality Management Plan for Ganga River in the Republic of India, Final Report,
Vol.3, JICA
There are some big nallas in the city, which are very dangerous to human and animal
lives.
9.1.2 Sewage Pumping Stations
There are two main and five intermittent Pumping Stations (PS) in Varanasi city. Two
main pumping stations are Konia and Assi pumping stations and five intermittent
pumping stations are Harischandra Ghat IPS, Mansarovar Ghat IPS, Mansarovar Ghat
IPS, Jalesan Ghat IPS, and Trilochan Ghat IPS.
Konia Main Sewage Pumping Station
The Konia Main Sewage Pumping Station (MPS) is located in northern part of the
Central City Sewerage District, and is isolated with the river Varuna on one side and
railway track at Konia near Rajghat. This MPS was built during the GAP Phase-I. The
pumping station has a capacity to pump 100mld of sewage. It has two stage pumping
arrangement having three screw pumps in the first stage and a battery of centrifugal
pumps in the second stage. The sewage lifted by the screw pumps passes through the
grit chamber and during high flow period part of the sewage pumped is bypassed into
the river Varuna. The battery of the centrifugal pumps lifts the de-gritted sewage to
the Dinapur main Sewage Treatment Plant through 1200 mm rising main about 2.9
km long. Details of pumping plant are as below:
First stage pumping
3nos, screw type pumps, 215 HP, 1158 lps discharge and 8.51m head – Average
pumping 100mld/
73
74
Second stage pumping
3nos, Non-clog horizontal centrifugal pumps, 215 HP, 740 lps discharge and 3nos,
Non clog horizontal centrifugal pumps, 150 HP, 420 lps discharge – Average
pumping 100mld
Assi Main Sewage Pumping Station
Assi main pumping station is located on the bank of Assi River (now converted to
Nalla) adjacent to the BHU-Godauliya road. This PS intercepts sewage from Assi
nalla and pumps to the Bhagwanpur STP through a 400 mm diameter, 1940 meters
long, pre-stressed concrete pipe rising main for treatment. The capacity of the Assi
MPS is 9 MLD. Details of the pumping plant are as below:
3 pumps, 50 HP, 5000lpm discharge and 24m head.

1 pump, 22.5 HP, 3000lpm discharge and 15m head.
1 Diesel generating set of 70 KVA capacities
Details of intermediate pumping stations (IPS) on the Ghats along the left bank of the
river Ganga are as follows:
1) Harish Chandra Ghat IPS (Capacity: 4mld;

Rising main: 200 mm, CI)
Pump house = 6.0m dia pump house cum

sump.
Pumping plant = 1 No.50 HP, 5000 lpm at
24.00m head.
= 1 No.25 HP, 2600 lpm at
13.50m head.
= 1 No.10 HP, 1150 lpm at
9.50m head.
Diesel Generating set = 1 No. of 70 KVA capacity
2) Mansarovar Ghat IPS (Capacity: 6mld;

Rising main: 400 mm, CI) Intermittent Pumping Station
at Ghat
Pump house = 9.0m dia pump house cum sump
Pumping plant = 2 No.10 HP, 1300 lpm at 15.00m head.
= 3 No.25 HP, 2600 lpm at 21.0m head.
3) Dr. R. P. Ghat IPS (Capacity: 25mld; Rising main: 600 mm, CI)

= 2 No.75 HP, 8800 lpm at 22.00m head.
4) Jalesan Ghat IPS (Capacity: 5mld; Rising main: 250 mm, CI) and
75

= 2 No.55 HP, 1200 lpm at 15.00m head.
5) Trilochan Ghat IPS (Capacity: 5mld; Rising main: 300 mm, CI).

= 2 No.12HP, 1365 lpm at 18.00m head.
9.1.3 Sewage Treatment Plants
There are three Sewerage Treatment Plants (STPs) in Varanasi viz. Dinapur,
Bhagwanpur and Diesel Locomotive Works (DLW) STP. Capacities of these STPs
are 80mld, 9.8mld and 12mld respectively. Dinapur and Bhagwanpur STPs are under
direct control of UP Jal Nigam for operation and maintenance purpose, whereas DLW
is operated and maintained by railway authority.
The Dinapur STP was initiated in 1988 and commissioned in 1994. The STP consists
of primary clarifiers, aeration tanks, secondary clarifiers, and anaerobic sludge
digesters. Major liquid process components of the STP consist of head works, primary
treatment and secondary treatment.
The Bhagwanpur sewage treatment plant was commissioned in the year 1988 under
Ganga Action Plan. The plant receives sewage from two pumping stations within
BHU campus and from Assi pumping station. The design capacity of the plant is 9.8
mld (8 mld activated sludge process and 1.8 mld trickling filter). The present
wastewater treatment process consists of three overall process stages: preliminary
treatment, primary treatment, and secondary treatment. The major liquid process units
of Bhagwanpur STP consist of head works, primary system, and secondary system.
Sewage Treatment Plant at Bhagwanpur
Sewage treatment plant at Diesel Locomotive Works receives the raw sewage from
DLW compound and treats the sewage by biological treatment process.
76
9.2 Sewerage Districts
The city is presently divided into four sewerage districts. Three sewerage districts 1, 2
(Zone 2A, Zone 2B& Zone 2C) and 3 are located within current municipal
corporation limits whereas sewerage district 4 is not with in the present municipal
limit (Map 9). These Districts are described as follows:
District 1 is the Central City sewage district draining to Dinapur STP. This area
includes the old city, about 1km in breadth and 5km along the Ganga River from
Assi to Raj Ghat. Branch sewers connecting to the old trunk sewer and the
Orderly Bazaar trunk sewer cover this area. Wastewater that does not enter the
sewerage system follows open drains. These open drains discharge to Ghat
Pumping stations along the Ganga River. Densities in this area are very high and
this area urgently requires reinforcement of branch sewers and household
connections.
District 2: Zone 2A is the sub-central district on the CIS-Varuna side west of the
city centre and zone 2B is a slice of the Trans-Varuna district along the Varuna
River up to the ridge line defined by the Jaunpur road. Wastewater in these two
zones will be collected at Chakaghat MPS. Wastewater that does not enter in to
the sewerage system follows natural drainage patterns and discharging in to the
Varuna River and Assi Nala. In this District, many new colonies have been
developed but there is no sewerage system. In a few localities branch sewers were
laid and have either been connected to the old trunk sewer or to open drains.
Densities in this area are generally greater than 500 persons per hectare therefore
this area should be sewered as soon as possible.
Zone 2C is the Trans-Varuna district north of the Jaunpur road. Wastewater in this
area generally falls to the north east direction. This area is experiencing rapid
growth and projected populations indicate that densities will be much greater than
120 persons per hectare before 2015 therefore this area should be sewered as soon
as possible.
District 3 is the BHU/Assi district south of the City. At present this area is mainly
the Banares Hindu University campus, which is fully sewered. The other areas
around and near the campus up to the riverbank are developing rapidly. Only one
sewer was laid for Lanka area. There is development of residential colonies
beyond Municipal Corporation limits leading to Ramnagar pontoon bridge and
Bhagwanpur village behind the university campus. The area between DLW and
University is already built up but there is no sewerage system. Wastewater
discharged in this area follows natural drains flowing into Nagwa/old Assi Nala
and Nakkhi Nala.
District 4 covers Manduwadeeh, Shivdaspur & Lohta area out side the present
municipal limit. These areas are fully urbanized and sewerage facilities are
proposed after the year 2015.
77
78
9.3 Future Service Areas
Future service areas outside the current Municipal Corporation limit are described as
follows:
FSA1 is north of the Trans-Varuna district just outside the current Municipal
Corporation limit. Wastewater generated in this area tends to flow north and east
towards Sathwa.
FSA2 is west of the current Municipal Corporation limit, and bounded by
Northeastern railway. Wastewater in this area tends to flow north to the Varuna
River near Lohta.
FSA3 is west of FSA2 and bounded by the Northern railway line. Population
projections indicate that densities in this area could reach 120 persons per hectare
around 2020.
FSA4 is outside the current Municipal Corporation limit and surrounds the area
occupied by BHU campus. Wastewater in this area drains to Assi Nala and
Nakkhi Nala which discharge to Ganga River upstream of the water supply intake
and Ghats.
9.4 Key Issues
Some of the problems identified regarding Sewerage system are as follows:

• The existing sewerage system is inadequate with 70% area of the city uncovered
with sewer system leading to discharge of untreated sewage in open drains
polluting River Ganga and Varuna.
• Capacity of STPs is inadequate to treat the existing sewage leading to disposal of
untreated sewer into River Ganga and Varuna thus polluting the river water.
• Combined system of disposal putting more pressure on the system and STPs
especially during the rainy season.
• Present sewer infrastructure including sewer network (branch/main/trunk sewers),
and pumping stations is old and renovation/rehabilitation is required.
• Frequent clogging of sewerage system due to combined sewer and storm water
drainage and waste dumps, especially during monsoons.
• Considering the huge quantum of wastewater being discharged into the Rivers of
Varanasi, namely River Ganga, Varuna and Assi, there is an urgent need to
intercept the flow of wastewater into these water bodies to prevent further
pollution.
79
10 Storm Water Drainage
Varanasi lacks a proper storm water drainage system. Though a significant part of the
city has open drains, they are used for carrying wastewater and during monsoon
season they carry both wastewater and storm water putting more pressure on the
sewerage network. The open drains carry a mix of storm and wastewater and empty
into the sewer lines increasing the load on the sewage pumps and STPs especially
during rainy season. Apart from this, some storm water drains also empty directly into
river Ganga and river Varuna.
Most of the open drains are unlined and

contaminate the ground water owing to the
porous nature of alluvium. These drains
carry the grey water discharged from the
settlements along their path and is also
used as dumps for solid waste. The Assi
nallah also acts as a major outlet for the
city’s storm and wastewater. The drains
and nallahs of the city are prone to
chocking owing to the unregulated solid
waste dumping by the citizens. This leads
to stagnant puddles of water, which lead to Choked open drains due to waste
health hazards, unhygienic conditions and
act as breeding grounds for mosquitoes. The existing drain network cannot be used for
water harvesting owing to the heavy siltation, quantum of grey water and solid waste
in the drains.
There is a need for a dedicated storm water network for the city which would not only
be instrumental in avoiding water logging during monsoons but would also provide a
scope for water harvesting along these drains.
10.2 Key Issues
The main issues, which need to be addressed for storm water drainage, are:
• Lack of lined drainage in the city leading to contamination of ground water
• Frequent clogging of drains due to dumping of waste in the drains which lead to
unsanitary conditions
• Siltation reduces the carrying capacity of drains leading to water logging,
particularly during monsoons.
• Need for a dedicated storm water network to reduce the load on sewer network
80
11 Solid Waste Management
Solid waste management consisting of collection (at primary and secondary sources),
transportation and disposal is an obligatory function of MCV. To understand solid
waste management there are different components viz. generation, composition, storage
treatment and disposal.
11.1.1 Generation and Composition of Waste
Municipal solid waste mainly comprise of waste generated from household, markets,
commercial establishments, hotels, hospitals, and small scale industries in the town. It
has been assumed that the local residents of towns generate solid waste at the rate of
about 425 grams per capita per day on an average. This average generation of solid
waste includes local inhabitants (comprising the wastes generated by the resident
population, shops and commercial establishments, vegetable and fruit markets,
construction and demolition and hospital wastes - non-infectious and infectious) and
the floating population in the town.
Varanasi is a prominent tourist place therefore it receives significant floating

population. Floating population also contributes to waste generation in the town. Total
quantity of waste generated in Varanasi is about 600MT/day, out of which
approximately 450MT/day of waste is collected11. This constitutes to 75% of the total
waste. Road sweeping waste and commercial waste comprises the maximum
percentage of solid waste generated. Waste generated by different activities is as
shown in Table 30 and Figure 15.
Table 30: Estimated waste generation

Category Generation amount (ton/day) Percentage
Commercial waste 80 13.33
Industrial waste 15 2.5
Road sweeping waste 450 75
Clinical waste 20 3.33
Nala cleaning waste 10 1.66
Construction and others 25 4.16
Total 600 100.00
Source: The study on Water Quality Management Plan for Ganga river in the Republic of India;
Final report Volume I, Summary, July 2005, JICA, NRCD, MOEF
11
Source: Study on Water Quality Management Plan for Ganga river in the Republic of India, Volume I
summary, JICA, NRCD, MoEF, July 2005
81
Figure 15: Composition of Waste generated by different activities

Construction and Commercial
Nala cleaning others waste
waste 4% 13%
2%
Industrial waste
3%
Clinical waste
3% Commercial waste
Industrial waste
Road sweeping waste
Clinical waste
Nala cleaning waste
Construction and others
Road sweeping
waste
75%
Most of the waste generated in the city comprises of biodegradable, compostable and
recyclable material. This is due to the high quantum of religious and vegetables waste
along with the high amount of waste generated due to plastics. A small percentage of
waste also comprises of debris and inert material generated from construction, repair
and maintenance activities. These wastes contain bricks, cement concrete, stones,
tiles, wood, etc. and the storage of this waste at the time of its generation is totally
neglected. By and large, people deposit construction waste, after salvaging useful
material, on the road.
11.1.2 Storage at Source
The waste generated from different sources, is either thrown on the streets, (which is
the normal practice) or is disposed in the dustbins (if located near the house, shops or
restaurants). There is no scientific and systematic storage of waste at source.
It was observed during the primary

surveys that there are very few bins for
storage of domestic, trade and institutional
wastes at source. It was also observed
during the survey that even when the
dustbins were put at various places in the
city, they were never properly utilized.
The waste used to be strewn all over the
area in and around the dustbins.
Furthermore, the waste is dumped
everywhere such as vacant lots,
dilapidated buildings without tenants etc. Dustbins in deteriorated condition
The habit of throwing the wastes to the streets and/or drains was more prevalent in
case of small restaurants and eateries. Clogging of drains due to wastes thrown was a
common scene in the town. It was also observed that the local inhabitants and the
shopkeepers alike caused the frequent clogging of drains due to excessive use of
polythene.
82
11.1.3 Collection of Solid Waste
At the primary stage, the waste collected from the roads is put in dustbins on streets,
and transported to secondary collection depots. There is no door-to-door collection
system in Varanasi. Varanasi has total thirty secondary collection depots for the solid
waste, and concrete walls similar to the cases in other cities surround most depots.
Since the collection sites are fit into the

open spaces, they have various shapes
and sizes. Several roofed collection
depots are established on various
locations. Although three kinds of
containers with volumes of 0.75m3 to
4.5m3, are placed on 137 spots, all
containers are very old and deformed. At
many secondary depots, the waste is
littered around. Some places are not only
unsanitary but also the littered waste
hinders the approach to the collection Secondary collection point with litter around
depots. This causes the vicious cycle of
waste-litter-spread.
The new roofed secondary collection

depot is built in parallel with a road. One
side has a small door where handcarts
can approach, and the other side has a
large door to enable vehicles for carrying
out waste to approach backward.
Scavengers collect valuable things at
dustbins, containers and secondary
collection depots. Valuable martial are
also collected in roofed collection
depots12.
New secondary collection depot
At present there is no segregation of waste done at household, shops and commercial
establishments in Varanasi city. Such waste on the streets or in the municipal bins
goes to disposal sites un-segregated. In absence of the practice of segregation of waste
at source, rag pickers pick up part of this waste in soiled condition. Currently, there is
no system of door-to-door collection of wastes and source segregation of wastes,
though these practices are considered as the best for effective solid waste
management.
11.1.4 Transport and final disposal
The waste collected to secondary collection depots and containers is loaded into
dumper trucks by various shovel loaders or manually, and transported to final disposal
sites. Arm system container trailers are used for the loading of containers. Most of the
12&3
83
present machinery looks very old. The loaded waste is transported to final disposal
sites by open dumper trucks. Since many trucks have no plates or sheets covering the
back, there is a high possibility that litter fall out during transportation13.
11.1.5 Final Disposal Sites
There were three final disposal sites, which are now abandoned. These sites were
located in Palang Shahid (10 acre), Nahi ghat (2 acre) and Kabir Math (1 acre). The
landfill system was open dumping system with gentle slopes. The leachate from the
waste at the disposal site may be directly discharged in the Nalla and the River Ganga,
thus polluting the river. The present disposal site is located along Ramnagar road near
Mugal Sarai. Municipal Corporation of Varanasi has adopted only dumping as
method of disposal of the waste as of today.
11.1.6 Tools and equipments
Under the Municipal Act, road/street sweeping and drain cleaning are the obligatory
responsibilities of the MCV and the solid waste generated in the town shall be
collected and removed by the sanitary workers of the Public Health Division. For
solid waste management of Varanasi city there are about 2,000 employees at all the
levels. The break-up of the staff & equipment available is as shown in Table 31& 32:
Table 31: Staff employed for Solid Waste Management
S.No Designation Sanctioned No. of Workers Vacant
Posts Employed Posts
1 Sanitary Worker 2320 1909 411
2 Sanitary Supervisor 104 66 38
3 Food and health Officer 19 12+2 5
4 Chief Health Supervisor 4 -- 4
5 Zonal Sanitary officer 2 -- 2
6 Driver 35 25 10
7 Cleaner 31 28 3
8 Bhisti 133 125 Nil
9 Main town health Officer 1 1 --
10 Nagar Health Officer 1 1 --
11 Upper Nagar Heath Officer -- 1 Nil
Total 2650 2170 473
Source: Health Department, Municipal Corporation Varanasi, 2006
Table 32: Availability of Equipment with MCV for Solid Waste Management
S.No. Vehicle type Total no. of Off - road On - road Requirement/
vehicles vehicles vehicles Shortage
1 J.C.V. Loader 8 4 4 3
2 Robot Loader 3 2 1 1
3 Dumper 19 6 13 10
4 Dumper Placer 12 4 8 --
5 Tractor 15 2 12
6 Haper 17 2 14
7 Rickshaw Trolley 120 10 110
8 New handcarts 400 100 300
9 Old handcarts 600
10 Container (Garbage 62
bin)
84
Source: Health Department, Municipal Corporation Varanasi, 2006

Currently, the wastes are not treated in a systematic and scientific manner while
disposing. As a result, the whole area in and around the disposal site is unhygienic
and poses serious threat to the environment and to public health. No treatment
methods are adopted for disposing the waste. The wastes are just dumped without
segregating biodegradable and non-biodegradable wastes.
11.1.7 Workshop
A municipal workshop is located near the Raja bazaar road and Patel road in the
central district of the city. The repair equipment includes grinder, hand grill, air
compressor, etc. most of the vehicles are old and need maintenance.
11.1.8 Street Cleaning
Under the Municipal Act, road/street sweeping and drain cleaning are the obligatory
responsibilities of the Municipal Council. The streets of Varanasi are cleaned on a
daily basis around 6 to 9am and made into small piles of waste by the Municipal
sweepers but due to high intensity of activities, the roads are generally dirty by the
afternoon.
11.2 Key Issues
Some of the problems faced by the Municipal Corporation of Varanasi in the solid
waste management are as follows:
• Currently, there is no proper system of collection and transportation of the waste.

Loading and unloading is fully manual causing health hazard to the workers.
• Varanasi has not provided adequate number of dustbins for storage of wet and dry
wastes for the clearance through their regular primary collection process.
• As per the norms/standards Municipal Corporation of Varanasi has to provide
containers, for proper collection of waste wherever possible throughout the city
for better management of the waste.
• The vehicles are not covered resulting in spread of foul smell as the vehicle moves
around the town for collection and disposal of the waste also the lighter waste
materials fly and fall down the way.
• There is not enough staff for sweeping the roads of Varanasi, making it difficult to
clean the city.
• Condition of the vehicles carrying waste is very poor and needs proper
maintenance/replacement.
• An important issue here is that, the bio-medical waste is also disposed off along
with the municipal solid waste at this site. Monitoring process is also non-existent
at the dumping site.
• Lack of formal sanitary landfill site
• Lack of segregation of waste and need to introduce composting to minimize the
quantum of waste going to landfill.
• Waste dumps in nallahs and rivers lead to water logging and unsanitary conditions
85
12 Traffic and Transportation
12.1 Present Situation
Traffic and transportation plays an important role in the overall functioning of the
city. It is an integral part of urban planning and is responsible for the smooth
functioning of the city. It is also responsible, besides other factors, for the spatial
growth of the city by increasing the accessibility of sites on the periphery of the city.
A study of the transport infrastructure for Varanasi is crucial for the understanding
and analyzing micro level (within the different zones of the city – linkages between
the old city and the newer developments) as well as macro level (linkages to Sarnath,
etc) functioning and linkages of the city.
12.1.1 City Level Road Network
Total length of the roads within the MCV area is 1170 km, which constitute roads
maintained by NHAI i.e. Bye-Pass and CPWD i.e. National Highways No.2, 29 and
56, roads maintained by state PWD department and other roads maintained by MCV.
Out of total length of the roads, MCV maintains approximately 70% roads, which are
internal arterial roads & narrow streets in the old town area are as shown in Table 33
Table 33: Road lengths in Varanasi

Category Length in Kms. Percentage Remarks
Kuchha Roads 104 8 National Highways are
Water Bound Macadam - - maintained by PWD while
Roads MCV maintains rest nearly
Black Topped Road 649 55.4 70% of arterial and other
Other roads 417 35.6 roads.
Total 1170 100
Source: Municipal Corporation of Varanasi, 2006
Map 10 shows the major road network of Varanasi. Based on traffic characteristics,
the town can be divided into three zones. First zone consisting of old city area near
Ghats, second consisting of area from old city to the G.T. Road while the third being
the new areas on the northern side of the railway line.
The Old City Area
The old town area includes very congested areas like Chauk, Kotwali, Adampura,
etc., having very narrow streets and mixed land use. Narrow, irregular lanes leading to
the Ghats are typical of this area. The width of these lanes varies from 1 to 2 meters
and only pedestrian movement is possible however, people do ply two wheelers
making it difficult for the pedestrians to walk. The presence of wholesale trade and
Mandis in the old city adds to the congestion.
Commercial encroachments considerably reduce the available RoW on all the roads
leading to the Ghats. There is a high degree of conflict between pedestrians and
vehicles in the old town area. The high density of the area coupled with
encroachment, heavy movement of cycle rickshaw and pedestrians make it the most
chaotic and congested area in Varanasi.
86
87
Satellite image of old city area showing high density and small lanes
Slow moving traffic causing chaos in old town
Central City Area
The second zone comprises of the area beyond the old town area up to G.T. road in
the north. In this zone road widths are more as compared to the old town area, but the
roads are still congested. The roads
leading to the inner city are wider but are
fully encroached on both sides creating
chaos for the movement. Roadside parking
and street vendors add to traffic problems
in the area reducing the road width
available for movement. The two central
bus stands on G.T. road: one of U.P. State
Transport Corporation and another private
(Ghazipur bus stand) add to the problems
of the traffic and restrict smooth vehicular
movement on the main road. Traffic congestion at Andhra Chowk
The area near railway station on either side of G.T. road has no organized parking and
creates havoc outside the railway station. The movement is not smooth in these areas
Roadside parking of private buses causing congestion Roadside parking at Railway Station
88
because there is
mismanagement of traffic,
absence of traffic signals
along with absence of auto
rickshaw stand and the
roadside encroachments.
The lack of organized
parking spaces at the
railway station, leads to
conflict of traffic and
pedestrian traffic. Since the
railway station has main
opening towards the south
of the city, the northbound traffic also has to pass through the southern side leading to
severe traffic congestions. Another hindrance to the traffic flow in the city is the
presence of streetlights and transformers in the middle of the roads.
Peripheral Newly Developed areas
This area comprises of the Nadesar, Police lines, Tajpura etc. that characteristically
have reasonable road widths with few encroachments but no traffic signals. The major
problems areas in the zone are Pandeypur chowk, Andhra Bridge and Chauka Ghat.
There should be traffic management exercises for these areas.
In general, traffic condition in Varanasi city is poor as most of the roads are narrow
and congested. To aggravate the problem of traffic flow is a mix of slow and fast
moving traffic. The mixed traffic mode with variable speeds like rickshaws and
cars/lorries on the roads during the peak hours causes most congestion/traffic jam on
the roads.
12.2 Signalized Intersections
Traffic intersections and rotaries play an important role in better traffic management.
Varanasi has no signalized intersections except four, namely MariMai Ka Temple,
Kabir Chaura, Rath Yatra, Maldahiya area. These signals are not in working condition
and lacks maintenance. Apart from these, there are about 32 intersections, which are
manually operated by traffic police. There is no proper traffic management plan put in
place for better traffic management, which is one of the major reasons for congestion
in the city. The city lacks street furniture on almost all the roads of the city.
The junctions, having the highest traffic volume are identified as Golghar Chowk,
Pandeypur Chowk, Andhra Pul, Chowka Ghat, Gadaulia, Ramapura, Kabir Chaura,
Lanka, Maldahiya, Sigra, Golgadda, Rathyatra, Dharamshala Chowk. These
intersections are problem areas in terms of design and/or management and are
unsuitable to meet the rapidly changing requirements of vehicle traffic. Most of the
intersections are full of encroachments and lack of traffic sense amongst the people
make it difficult to manage the traffic movement especially during peak hours.
89
12.3 Traffic Characteristics
The traffic composition in the city varies with area. Traffic in the city comprises
mostly of motorized (comprising mainly of two wheelers and autos) as well as non-
motorized (comprising of cycle rickshaws and bicycles) vehicles. The main reason for
congestion in the city is due to the unregulated movement of cycle rickshaws
followed by two wheelers and autos. Traffic volume at major intersections is as
shown in Table 34.
Table 34: Traffic volume at major intersections

Areas Truc Bus Tract Bullock Jeep Car Auto Ricksha 2- Cycle Total
k or Carts Rickshaw w Wheeler
Sigra 69 221 60 26 1594 3942 7302 12824 22732 24039 72809
Dharamshal 1226 886 225 214 2154 2303 12017 10073 13253 11293 53644
a
Rathyatra 12 203 10 8 1508 3044 8248 12354 2519 20417 70994
Gurubagh 25 75 18 12 918 2893 4801 9089 12017 13262 43110
Kamachha 30 117 15 14 1240 2318 5086 5118 15413 14995 44346
Lahurabir 147 142 47 33 931 2316 10269 20069 30871 32445 97270
Beniabagh 67 86 39 34 392 854 3340 22847 13551 18930 60140
Ramapura 30 48 19 26 1198 727 2549 27001 23759 31042 86399
Gadaulia 28 23 6 6 793 1192 445 23703 17459 19361 63016
Maidagin 71 134 40 212 909 1297 7175 19529 16512 18356 63936
Nadesar 58 86 28 1 1019 620 3675 1992 12502 11517 31498
Andhra Pul 1175 1612 272 108 4300 4650 10966 9390 20642 20332 72766
Englishiya 49 21 38 46 662 998 4717 5194 10510 13044 39043
Source: Traffic Police Department, Varanasi, 2002
From the above table it can be seen that traffic volume is very high at all the nodes
and intersections and the roads have already exhausted their capacity. Slow moving
traffic in form of rickshaws contributes maximum to traffic volume of the city causing
congestions at various places. The National Highway 2 from Khazakpura to Lahartara
Cantonment has been identified as the most congested highway of the city.
12.4 Vehicular Growth Rate
The total registered vehicles in Varanasi in the year 2001 were 3.3lakh, which has
increased to 3.8lakh in the year 2004. As can be seen from the following table, the
growth rate of the vehicles is less in Varanasi, compared to other cities. The reason
for this can be the non-availability of road space and congestion caused due to Non-
motorized traffic i.e. Cycle rickshaws. This very fact is also evident from the traffic
survey conducted by traffic police at 13 intersections, which showed that slow
moving vehicles constituted 40 to 80% of the total composition, of the vehicles. The
following table shows the increase in number of vehicle from 2001 to 2004. Table 35
shows number of registered vehicles in Varanasi.
Table 35:Total no. of registered vehicles in Varanasi {on road vehicles}

Year Multi Trucks Light Total Total Total Light Total Two Cars Jeeps Tractors Other Grand
axiled & Motor Buses Taxies Motor Wheelers Vehs. Not Total
Articula Lorries Vehicles Vehicles Covered
ted (goods) (Passenger
Vehicle
2001 45 9360 1992 1297 863 6636 270038 17756 2520 20077 949 331533
2002 102 2786 2262 986 493 4016 283769 19045 2632 20371 957 337419
2003 239 5578 456 1081 688 4972 304724 20694 2699 20705 964 362800
2004 420 5845 2567 1234 831 5907 324534 22473 2924 21022 968 388725
TOTAL 806 23569 7277 4598 2875 21531 1183065 79968 10775 82175 3838 1420477
90
Even with the increase in number of vehicles in Varanasi, the annual growth rate of
the motorarized vehicles, which include cars, taxis, have shown a downward trend
over the period of 17 years i.e. from 1985 to 2002. Table 36 shows the growth rate of
motor vehicles.
Table 36: Annual growth rate of motor vehicles

Year Percentage Growth rate
1985-1990 16.72
1990-1995 10.33
1995-2002 9.96
Source: Vision 2025, ICRA
The percentages of registered vehicles in Varanasi district for the year 2002 are as
given in table 37. Almost 82% of the total vehicles registered were two wheelers and
the remaining vehicles constituted only 18%. The percentage of cars and cabs
registered in 2002 were 6%, whereas the corresponding figure for autos and tempos
was 2% and are as shown in Table 37.
Table 37: Total number of registered Vehicle in Varanasi District in 2002

Classification of Vehicles Percentage of total Vehicles
Two-Wheelers 82
Autos/Tempos 2
Cars/Cabs 6
Buses 1
Goods Carriers 2
Tractors and other vehicles 7
Source: Transport Department, Varanasi, 2006
12.5 Parking
Parking facilities constitute an important part of traffic management plan and better
traffic management system. In Varanasi city, parking is done in very haphazard
manner and generally roadside parking is encouraged. There are no authorized
parking spaces in the town and no formal parking spaces for cycle rickshaws and
autos. The congested lanes of old city, which is the main market area, have not been
provided with any formal parking. Hence, conflict between roadside parking,
commercial encroachments and pedestrians for the space availability are rather
evident.
Curb parking are provided in the business areas like Chowk, old city area etc. The
vehicles are parked on the carriageway resulting in traffic jams and congestion.
Traffic movement in most of these areas is very slow, due to roadside parking and
causes congestion in the areas. Systematic parking spaces in the business area are
needed, especially during peak hours.
12.6 Public Transportation
The city does not have a formal public transport system. The buses plying on the GT
road cater more to inter city transport rather than intracity transport. In the absence of
a regularized public transport system, autos (for longer distances) and cycle rickshaws
(for small distances) act as the most prominent means of public transport. Therefore,
91
mode of transport in Varanasi is cycle rickshaw, 3-Wheelers and personal vehicles

running throughout the city.
Due to lack of public transport, the arrangement of sharing auto is very common with
fairs varying from Rs.2 to Rs10 depending up on the distance traveled. Along with
auto rickshaw another popular mode of transport is cycle rickshaws, which has
increased in past few years and has crossed a limited mark. MCV along with
cantonment board has authority to issue new licenses and renew old ones. MCV
however, has stopped giving any new licenses for cycle rickshaw but still there are
many unauthorized rickshaws that run in the city causing more congestion. This slow
moving traffic is the major concern of traffic management.
12.7 Bus & Truck Terminals
At present there are two bus terminals operating in the city namely Cant bus terminal,
which is operated by state transport department and Ghazipur bus terminal, which is a
private bus terminal. Both these bus
terminals are located on NH-2, which is
very congested being the major arterial
road in the city. Due to improper parking
facilities in the terminals the buses are
parked in haphazard manner on the main
carriageway resulting in long traffic
jams. Presently the bus terminal is
handling about 400 to 450 buses per day.
Apart from these there is another bus
terminal at Golgadha, which is now used
as a workshop with very few buses
operating from this terminal. Therefore, Golgadda bus depot
the entire load is on the Cant bus
terminal.
Presently there are no formal truck terminals in the city but there are 5 temporary
terminals, which are catering the movement of goods. The loading and unloading is
done during the night. The five temporary truck terminals located in the city are at
Pahadia, Visheswar Ganj, Maheshpur, Chandasi, Padao.
For efficient functioning the Uttar Pradesh State Road Transport Corporation
(UPSRTC) has been divided into regions totaling 15. Each region has been further
divided into operational units called depots. The total number of depots in the
corporation is 97. Each depot has a depot workshop attached to it to provide
supportive maintenance facilities. Varanasi region has seven such depots.
In most cities, improvements mean increased investments in urban bus systems that
carry the vast majority of low-income riders. For this fixed-route public transit excels,
and indeed has numerous advantages in providing urban transportation.
92
12.8 Key Issues
• Mixed traffic volume with large number of slow moving traffic mainly rickshaws
• Encroachments in form of temporary shops and extensions of existing shops on
roads reducing the road width for movement
• Geometry and Design of roads is not complying with norms and standards,
making it very low visibility at intersections
• Roadside parking causes traffic jams in all the areas and there is lack of adequate
parking spaces
• Absence of auto stands at major intersections and market has left the city in chaos.
• Heavy traffic moving through the city on GT road creating problem for the intra
city traffic movement.
• Non-signalized intersections have lead to mismanagement of traffic in the city.
• Presence of Two bus stands in center of the city has created problems in the city.
• High level of environmental pollution
• Traffic volume is very high on several roads exhausting the road capacities.
• The road conditions and the level of services are poor.
• Absence of footpath for pedestrian movement
93
13 Street Lighting
Varanasi Municipal Corporation has an obligatory function of provision and

maintenance of street lighting in the city area. The electricity department of the PMC is
responsible for installation, replacement, repairs, operation and maintenance of
streetlights in the city. The composition of streetlight includes provision of tube lights,
bulbs, sodium vapour lamps, metal high lamps and high mast installations and is as
shown in the Table 38:
Table 38: Street lighting facilities in Varanasi

Composition Number % Working % to total
Tube Lights 20436 70 52
Bulbs 14268 70 36
Sodium Vapour lamps 3488 60 9
Metal high lamps 770 70 2
High Mast Installations 48 90 1
Total 39,010 100.00
Source: Municipal Corporation of Varanasi, 2006
The town has total 39,010 streetlights spaced at a varying distance of 30-50m, as
against the norms of 30m. The newly formed extension areas are not well illuminated
where the distance between the poles is very high. Almost all the roads are illuminated
by streetlights and streetlights are also provided along ghats of Varanasi.
After a reconnaissance survey conducted in the town, it has been found that 35-40%
streetlights are not in working conditions. MCV is responsible for street light
management, which includes maintenance, repairs and replacement of the streetlights.
As per the discussions with official of MCV, 30% bulbs need to be replaced every 3-4
days, which increases the operation costs.
For the overall management of the streetlight, MCV has a staff of 86 persons, of which
56 staff is regular, staff of 5 linemen is hired on daily basis and remaining 25 staff is
hired on the contract basis. Out of these 25 staff, 13 staff is lineman and remaining staff
is helper. For the last financial year Rs. 8.69 lacs have been spent on the salaries of the
hired staff under contract apart from the salaries paid to the regular staff and material
worth Rs. 48.43 lacs has been purchased.
13.2 Key Issues
At the overall city level the level the provision of street lights is fairly good, but MCV
needs to review the following for improving the service further and other issues related
to the operation and maintenance are:
Improve the coverage at ward level particularly in extension areas

There are many poles and transformers in the middle of road, which needs shifting
for smooth traffic flow.
Carrying out a detailed assessment of spacing and energy audit to assess the power
consumption and implement efficient automatic switching operations as energy cost
will be very high for this level of service and also need to explore solar lighting.
94
14 Environmental Aspects
The population of Varanasi has nearly doubled over the last three decades but the area
under the city has increased marginally (1.5 times). This can be attributed to the
religious fervor of the city and the belief that living and dying in Varanasi leads to
salvation. This has led to reluctance of the citizens to shift out of the area bound by
Varuna and Assi leading to high population density laying stress on the already
existing infrastructure and poor environmental conditions in the city.
In the absence of a primary waste collection system in the city, the roads and drains
act as the waste dumps. This leads to unsanitary conditions and water logging. The
city does not have a separate network for storm water and sewerage, leading to
frequent blockages and backflows (especially during monsoons). Most of the city
roads are congested and narrow but on the other hand the high number of vehicles and
cycle rickshaws lead to congestions and pollution (air/noise). The narrow Right of
Way (RoW) of roads is utilized for parking and by vendors leading to chaos and
congestion.
a) Core Area
The city of Varanasi is one of the most ancient living cities in India and hence, the
design of the city, though unique in itself is struggling to cater to the increasing
infrastructural demands and population pressure. The core city area or the Cultural
Heritage zone, which comprises of the Ghats and the inner city areas are under
maximum environmental stress. More than 1 lakh people visit this area daily and at
least 60,000 people bathe in Ganga everyday. The intense tourist and religious traffic
to this area has led to an increase in the traffic movement in the narrow lanes and an
increase in the intensity of commercial activity. The heritage structures in the city,
especially along the Ghats have extreme potential for development as tourist spots.
The religious activities performed daily on the Ghats add to the pollution load to the
river deteriorating the water quality to such an extent that at several places the Ghats
are not even fit for bathing. The lack of proper sewerage and waste collection
facilities in the area lead to pollution on river Ganga. The quality of living in the core
city area is poor and needs immediate attention.
b) Solid Waste Management
The narrow lanes and water bodies of the city are used as dumping grounds for solid
waste in the absence of a proper waste management system. On an average nearly
10tonnes of waste per day is collected only from nallah cleaning.14 Dumping of solid
waste in the nallahs and rivers of the city leads to health hazards and hampers flow of
Nallahs. The city does not have a formal sanitary landfill site. Waste is dumped at a
site near Rajghat and in the absence of any preventive measures, the leachette
generated finds its way into the ground water and the nallahs leading to river Ganga.
14
95
A high percentage of waste generated in the city comprises of recyclable plastics and
compostable religious and domestic waste, which at present is either dumped into the
landfill or in the river.
c) Sewerage
Only 30% of the city is connected to a sewerage network. (mainly along the old city).
Inspite of the three STPs constructed in Varanasi under the GAP (STP at Dinapur –
80 MLD, STP at Bhagwanpur – 8 MLD and STP at DLW – 12 MLD), only around
90MLD of the total wastewater generated is treated. The rest finds its way into the
Ganga River either through river Varuna (after it is given primary treatment at Konia)
or directly through open drains discharging into the river.
Since, the existing sewer network serves as a storm water cum sewerage network, the
capacity of the STPs is reduced, especially during monsoons and this inturn leads to
extensive pollution of River Ganga.
GAP has proposed a Sewerage Management plan for Varanasi, which proposes phase
wise construction of STPs to intercept untreated sewage entering the river. This
scheme, if implemented, would considerably bring down the pollution load on the
river.
d) Drainage
The city has an intensive network of open drains which act as outlets for waste water
discharge and solid waste dumping. Since most of these drains are unlined, they lead
to ground water contamination. Siltation and blocking of drains due to solid waste
disposal is leading to unhygienic conditions.
e) Ground Water Resources
The water supply to the city is heavily dependant on ground water, especially for the
trans Varuna area and institutional areas leading to depletion of water table.
Contamination of water table due to discharges from open drains, nallahs and waste
dumps is a major cause of concern.
f) Open Spaces
The city lacks formal open spaces under recreational or green spaces. The proposed
Master Plan provision for green areas is only 5.49%15 of the total area. There is a need
for provision of more green areas in the city, especially in the Trans Varuna Region.
Extensive roadside plantation programs also need to be undertaken to maintain the
ecological balance of the city.
15
Source: Master plan for Varanasi, 2011
96
g) Slums
The city has 227 slums, which are mainly concentrated on the Cis Varuna side and
need provision of proper infrastructural facilities and in-situ upliftment.
h) Industries
Varanasi does not have a major industrial base. Most of the small-scale industries in
Varanasi have installed combined ETPs and DLW, which is the largest industry in the
city, has its own STP and chemical treatment plant. Thus, the industrial waste
generation in the city is negligible (only 2.2%) 16.
The handloom industry deploys coal fired boilers to generate steam leading to
intensive point source air pollution but due to efforts made by the SPCB, these
industries have reverted to the use of air pollution control mechanisms to bring down
the pollution levels.
i) Tourism
The tourism in Varanasi is mostly religious. The high tourist influx to the city has put
a tremendous pressure on the existing infrastructure facilities in the city leading to
unhygienic conditions.
14.2 Water Resources
a River Ganga
Varanasi lies on the banks of the sacred

River Ganga. The river, though the lifeline
of the city also has to face the brunt of
city’s pollution. NRCD (National River
Conservation Directorate) studies under
GAP (Ganga Action Plan) have revealed
that a major contributor to the pollution
load on Ganga is untreated sewage (90%), Varanasi
which is discharged into the river from the
open drains of the city. Location of Varanasi on Ganga stretch
As per CPCB studies, the desirable designated best use for Varanasi is B (outdoor
bathing) but contrary to this, the existing designated best use at Assighat (upstream)
and Malviya Bridge (downstream) is D (fit for wildlife and fisheries) due to high
levels of total Coliform at Assighat and high BOD levels at Malviya bridge. Table 39
shows the quality of water of river Ganga in Varanasi compared to standards
16
UPPCB
97
Table 39: Water quality of river Ganga in Varanasi

Temperature PH BOD Faecal Coliform D.O.
(deg. C) (mg/l) (/100ml) (mg/l)
Up Stream 27 7.4 2.8 9340 8.8
Down Stream 28 8.5 16.3 106300 7.3
Standards 27 6.5 to 8.5 3 500 5
Source: CPCB, 2003
Religious activities like

cremation, bathing, etc.
performed on the banks
of the river contribute to
the BOD and Coliform
load on the river. The
faecal Coliform load at
the downstream end of
the city have been
recorded as 1.5
million/100 ml. Even the
average BOD load at
Source: Study on Water Quality Management Plan for Ganga river in the
Varanasi exceeds the Republic of India, Volume I summary, JICA, NRCD, MoEF, July 2005
permissible bathing
quality standards of 3 mg/l and is at times as high as 16mg/l.
The Ghats of the river are exposed to the load of religious offerings and activities
associated with the river, namely, offerings of flowers and diyas, bathing, washing,
cremation, etc. These activities add to the waste content in the river, which requires
regular cleaning.
b) Varuna and Assi
Wastewater discharge into the two major tributaries of Ganga in Varanasi, i.e. River
Varuna and Assi nallah are steeply increasing. So much so, that over the past decade,
Assi has been converted into a Nallah. The open drains carrying the grey water from
the city also open up in these rivers. The quantum of solid waste discharged into these
rivers/ nallahs on a daily basis nears approximately 10 tonnes/day thereby polluting
them further and leading to choking of flow. The upcoming developments in the north
and south of the city close to river Varuna and Assi nallah are insensitive to the
catchment area of the water bodies.
c) Kunds
The city also has several shallow ponds/ Kunds, some of which are of religious
significance. But most of these ponds are in a state of poor maintenance and face the
threat of drying up or reclamation due to upcoming settlements in the periphery.
14.3 Air Pollution
As per CPCB report, air pollution levels in the city are high and significant
concentrations can be witnessed at major traffic intersections during peak hours. The
major contributor to air pollution in the city is vehicular emissions from petrol and
diesel vehicles which contribute to high Carbon Monoxide, Sulphur dioxide and
98
Nitrogen dioxide levels. Suspended Particulate Matter (SPM) levels in the residential
areas of Varanasi are high. High SPM levels in the city can be attributed to vehicular
emissions, unpaved roads, high dust content in the air due to lack of plantation and
proximity to river.
The low traffic movement speed in the old city area leads to discharge of harmful
fumes from the vehicles leading to concentrated pollution loads. The compact built
fabric of the city and narrow lanes lead to limited air circulations, thereby, acting as a
hindrance to the dispersal of pollution load. Frequent power cuts in the city have
propagated the use of diesel gensets, especially in the old city area, which add to air
and noise pollution levels. Industrial pollution levels in the city are insignificant.
UPPCB study also shows that diesel powered vehicles are the most polluting vehicles
in the city. Thus, there is a need to check the number of diesel autos and four wheelers
plying in Varanasi. Vehicular emission loads in Varanasi are as shown in Table 40
Table 40: Vehicular emission load in Varanasi

Particulates SOx (kg/day) NOx (kg/day) Hydrocarbon CO (kg/day)
(kg/day) (kg/day)
Light duty 12.04 3.24 62.01 87.29 2269.43
gasoline powered
Light duty diesel 84.66 335.11 388.02 91.71 1534.47
powered
Heavy duty diesel 485.44 970.88 13592.25 1359.22 8220.08
powered
Motorcycles 216.48 21.65 75.20 10823.94 18400.71
Total load/day 798.62 1330.88 14117.48 12362.16 30424.69
Source: UPPCB
Coal is the most critical fuel used in Varanasi from the perspective of environmental
pollution followed by Kerosene. The high CO emissions can be attributed to the use
of coal in roadside commercial activities and ghats. Emissions from fuels in Varanasi
are as shown in Table 41
Table 41: Emissions from fuels in Varanasi (Kg/day)

Domestic and commercial Emission rate (kg/day)
emission sources
Type of fuel Consumption/day PM SOx NOx CO
Coal 30 T 150 228 45 1342
Kerosene 50 KL 101 170 78 10
LPG 125 T 54 0.07 225 54
Source: UPPCB
14.4 Noise pollution
The noise pollution levels are perceivably high at major traffic intersections namely,
core area, Chauka Ghat, Andhra Pul and the Railway Station. The high number of
diesel autos and cycle rickshaws leading to traffic congestion contribute to city’s
noise pollution.
The noise pollution levels in the city are also perceivable higher even outside the core
city area. The major factors contributing to this are the heavy traffic volume on the
99
narrow roads leading to persistent honking and the high intensity of commercial
activities on the roads.
14.5 Key Issues
Pollution load on Ganga river due to untreated waste discharge and religious
activities associated with the river
Encroachment on the Catchment areas of Varuna and Assi and their tributaries
reducing the runoff to the rivers
Solid waste and wastewater discharge into water bodies. Lack of maintenance of
ponds, which face the threat of extinction and encroachments.
Lack of facilities on the ghats to reduce the pollution load on the river.
Ground water depletion due to extraction of ground water through tube wells and
hand pumps to supply water to the trans Varuna areas and institutional areas.
Lack of plantation and open spaces, especially in the old city
High SPM levels due to vehicular emissions, unpaved roads, proximity to the river
and lack of plantation in inner city areas
High CO, NOx and SOx levels at main intersections namely, Railway station,
Chauka Ghat and Andhra Pul
High number of diesel autos plying the roads not only lead to traffic congestions but
also to high SOx and Nox levels.
Lack of air quality monitoring stations.
Concentration of commercial activity and heavy traffic intensity on the roads
Unorganized religious and tourist traffic to the ghats
Lack of noise buffers.
100
15 Urban Governance and Institutional Framework
15.1 Introduction
There is a large number of institutions in Varanasi responsible for urban development

and service delivery. This section examines the key institutions responsible for service
delivery in terms of their organisational structure and functions and concludes with
highlighting the key governance issues that need to be addressed for smooth
implementation of the CDP.
15.2 Institutions for Urban Governance and Service Delivery
Urban development and service delivery in Varanasi is the combined responsibility of a

set of state level and city level institutions. These institutions and their key functions
are listed in Table 42 segregated in terms of institutions functioning at the state level
and city level.
Table 42: Institutions and Their Functions

Institution Key Function
State Level
UP Pollution Control BoardPollution control and monitoring especially river water
(UPPCB) quality and regulating industries
Public Works Department Construction of roads main roads and transport
(PWD) infrastructure including construction and maintenance of
Government houses and Institutions
State Urban Development Apex policy-making and monitoring agency for the urban
Authority (SUDA) areas of the state. Responsible for providing overall
guidance to the District Urban Development Authority
(DUDA) for implementation of community development
programs
Town and Country Planning Preparation of Master Plans including infrastructure for
Department (TCPD) the state (rural and urban)
UP Jal Nigam (JN) Water supply and sewerage including design &
construction of water supply, sewerage networks and
treatment plants. In the last two decades ‘pollution
control of rivers’ has become one of their primary focus
areas
UP Avas Vikas Parishad Nodal agency for housing in the state. Additionally
(AVP) involved in planning, designing, construction and
development of almost all types of urban development
projects in the state. Autonomous body generating its
own resources through loans from financial institutions
City Level
Varanasi Jal Sansthan (JS) Nodal agency for water supply in the city. Key functions
include O&M of water supply and sewerage assets. JS
proposes tariffs and collects revenues – however, tariffs
need to be approved by the UP Jal Nigam and the State
Government)
Varanasi Municipal Nodal agency for municipal service delivery and O&M.
Corporation (MCV) Its key functions include:
101
•Primary Collection of Solid Waste

•Maintenance of Storm Water Drains
•Maintenance of internal roads
•Allotment of Trade Licenses under the
Prevention of Food Adulteration Act
• Collection of Property tax
• O&M of internal sewers and community
toilets
• Management of ghats
• Construction of Community Toilets
Varanasi Development Responsible for preparing spatial Master Plans for land
Authority (VDA) use and development of new areas as well as provision of
housing and necessary infrastructure
District Urban Development Implementing agency for plans prepared by SUDA.
Authority (DUDA) Responsible for the field work relating to community
development – focussing on the development of slum
communities, construction of community toilets,
assistance in construction of individual household
latrines, awareness generation etc.
15.3 Institutional Roles and Responsibilities
15.3.1 Municipal Corporation of Varanasi
Clarity of roles and responsibilities of institutions is a pre-requisite for good

governance. This clarity is conducive for role separation that in turn is an enabling
factor for a host of good governance practices like accountability, transparency etc –
factors that lead to efficiency in service provision as well as efficiencies in
institutions. As an introduction to examining issues of governance in Varanasi, the
following Table 43 identifies the roles and responsibilities of the various institutions
in terms of planning, implementation and maintenance.
Table 43: Roles and Responsibilities of Various Institutions

Function Planning & Design Implementation Maintenance
Land Use/ Master Plan/ VDA VDA, MCV VDA, MCV
Building Permission
Water Supply JN JN, JS JS
Sewerage JN JN, JS JN, JS
Roads and AVP, VDA, TCPD, AVP, VDA, TCPD, AVP, VDA, TCPD,
Transportation PWD, MCV PWD, MCV PWD, MCV
Street Lighting VDA, AVP, MCV, VDA, AVP, MCV, AVP, VDA, TCPD,
PWD, PWD, PWD, MCV
Drainage VDA, JN, JS, MCV, VDA, JN, JS, MCV AVP, VDA, TCPD,
AVP PWD, MCV
Solid Waste MCV AVP, VDA, TCPD, AVP, VDA, TCPD,
Management PWD, MCV PWD, MCV
Parks and Green Spaces VDA, AVP, MCV, AVP, VDA, TCPD, AVP, VDA, TCPD,
PWD, PWD, MCV PWD, MCV
102
Pollution Control UPPCB UPPCB, UPJN, JS, PCB, JN, JS, MCV
MCV
Slum Development SUDA, DUDA JS, JN, PWD, MCV JS, JN, PWD, MCV
Community roads, SUDA, DUDA, MCV, JS, JN, PWD, MCV JS, JN, PWD, MCV
toilets, water-supply JS
Heritage Conservation ASI ASI ASI
It may be noted that there are functional overlaps between institutions in the realm of
functions that have been transferred to the local government under the 74th CAA.
VDA is actively involved in the development of residential colonies and also provides the
infrastructure in these colonies as well as environmental services like construction of parks
etc. The functions of the VDA include –
Preparation of Master Plan and Zonal Development Plans for the city;
Maintenance and improvement façade of certain buildings and abutting arterial
roads;
Acquisition, disposal and development of land;
Construction of Housing (units/ colonies) to meet the housing demand of the
growing population;
Provision of infrastructure facilities (roads, sewers, water supply) as per the
population needs; and
Provision of bus stands outside the dense city pockets for proper transport
infrastructure.
The VDA does not have a separate cell for handling complaints. All complaints have
to be addressed to either the Joint Secretary or Secretary. Most of the complaints that
VDA receives pertain to roads, water supply, street light maintenance etc. The VDA
maintains an Asset Register and follows a system of double entry accounting.
15.3.2 Jal Sansthan
Jal Sansthan is responsible for O&M of water supply and sewerage systems installed
and transferred to it by JN and other state level organisations like DUDA, VDA etc.
Although the JS is legally a part of the MCV since 2002, in practice, the two
organisations (MCV and JS) still operate independently and are technically separate
entities. JS maintains independent accounts and has a separate revenue collection unit.
The water supply wing is well developed with separate administration, finance,
planning and construction, operation and maintenance divisions. However, for
sewerage services, such a structure does not exist and this function is considered to be
a minor function for most water supply engineers. The organisation has been engaged
in sewerage management for quite a number of years and therefore has the technical
capabilities and manpower to plan, develop and maintain such facilities. The
infrastructure and equipment available with the organisation are quite old and not
much addition of equipment has taken place during last few years.
103
JS regularly conducts media campaigns on storage practices and water pollution. It

also has a 24-hour complaint cell that registers people’s grievances.
Water Tax and water charge form the major source of revenue for JS contributing to
approximately 85% of its total revenue. In the absence of water metering, the tax is
assessed as percentage of the annual rental value of residents’ property. One of the
major issues has been the problem in assessment of annual rental value and 5-yearly
reassessment, which has not been practiced by MCV. This is leading to low revenue
for the JS, whose charges are a fixed percentage of property tax. Further, increase or
revision of tax rates is not taking place, mostly due to political reasons. Due to
insufficient revenues JS ends up with non-payment of electricity bills at times.
The current maintenance practices are reactive rather than preventive and routine as
per manual. Most of the maintenance is carried out in response to customer
complaints related to overflows etc. These problems are normally resolved by
clearance of blockages in sewers, pipeline repairs against leakages etc. There is no
evidence of a planned regime of cleaning or inspection of the system.
15.3.3 Jal Nigam
JN is a State Government organisation responsible for the management of water

supply, sewerage and sewage treatment facilities. The main fixed assets of JN are the
water works including own scheme’s hand pumps. The sewage treatment works
created under Ganga Action Plan are operated and maintained by JN. As per the UP
Water Supply and Sewerage Act, 1975 the key functions of JN are –
Preparation, execution, financing and promotion of schemes of water supply and
sewerage and sewage disposal;
To render necessary services in regards to water supply and sewerage to state
government and ULB’s and on request to private institutions;
To prepare state plans for water supply, sewerage and drainage;
To review and advise of tariff, taxes and charges on water supply;
To access material requirements and arrange for their procurement;
To establish state standards for water supply and sewerage services;
To review annually the technical, financial, economic and other aspects of water
supply and sewerage system of JS and ULB;
To operate, run and maintain any waterworks and sewerage system on request by
the state government;
To access requirements of manpower and training in relation to water supply and
sewerage services in the state; and
To carry out applies research for efficient discharge of functions of MCV or JS.
The Board of Directors at JN comprises of the Chairman (JN), Managing Director

(JN), Finance Director (JN) as the permanent members. The nominated members on
the board include the State Principal Secretary for Urban Development, State
Principal Secretary for Planning, State Principal Secretary for Finance, State Principal
Secretary for Rural Development, Director (Health and Medical) and Director (Local
bodies). Other invitees are the Principal Secretary Public Enterprises Bureau and
Secretary Water supply (Uttaranchal Government).
104
Current functioning of the JN displays a ‘reactive’ approach rather than a ‘preventive’

one. The JN has a Human Resource Development Cell that is in charge of specific
public participation programmes. They conduct programmes for creating awareness
regarding water conservation etc. and also conduct training programmes for capacity
building of JN staff to undertake community participation related activities in their
programmes. There is no separate complaint cell at JN. The Executive Engineer
receives the complaints and forwards it to the respective department.
15.3.4 Town and Country Planning Department
Varanasi has a divisional office of the State TCPD. This office is responsible for the
provision of various services in the city and is headed by the Commissioner. VDA
and TCPD perform similar functions and the commissioner decides as to which of
these department shall take up an assigned task. The Chief Town & Country Planner
is the technical head next to the Commissioner.
15.3.5 Public Works Department
The State PWD is primarily responsible for construction and maintenance of roads,
state government institutions and state government housing in the city. The CPWD is
responsible for the construction and maintenance of only central government
buildings and institutions.
PWD operates under the State PWD Minister and State-level Secretary and Principle
Secretary. At the district level the Superintending Engineer heads either one or two
districts. There is one Executive Engineers (Ex En) for every 3 to 4 election
constituencies. The total administrative and technical staff up to the Junior Engineer
level is around 250 followed by a fleet of 3000 workers and sub-staff in the entire
state.
The PWD is responsible for the maintenance of the main city roads with the MCV
responsible for the internal roads. There are no criteria for categorising the roads to be
maintained by PWD or MCV. The DM assigns the responsibility to either of the
departments based on the primacy of the road stretch. PWD has a better reputation
over MCV in road maintenance.
PWD maintains a complaint cell. People usually post their complaints to the executive
Engineer of their area, who forwards these complaints to the cell, from where they are
passed on to the Assistant or Junior Engineer. PWD faces work overloads during the
Kumbh festival on account of a large number of complaints received. This indicates
lack of a pro-active maintenance strategy.
15.3.6 Uttar Pradesh Awas Vikas Parishad
The UP Awas Vikas Parishad (AVP) is the nodal agency for housing in the state. It
was established in April 1966 to work towards housing solutions. Besides housing
projects it has diversified its activities to planning, designing, construction and
development of almost all types of urban development projects through out the state.
In addition, AVP plans and executes projects for the development of health and
education. It is also handling new district head quarters projects with the execution of
105
large number of schemes. AVP has constructed multi storied office buildings and
commercial towers for its own and public use. Providing public facilities is also a
priority function of AVP. It develops market areas and convenient shopping. AVP
also indulges into housing for the shelter-less .It has constructed 8480 dwelling units
under ‘Aashraya Yojana’ at different places.
The AVP is an autonomous and raises its own resources. With a budgetary turnover
of about Rs. 3463 millions for year 2000-01, AVP has a very strong finance base.
AVP has notified 137 cities for its activities in the state. It has acquired 13500 acres
of land in 78 cities where housing schemes are being developed and Varanasi is one
such city.
AVP is a professionally managed organization with specialists working in different

fields viz – Architecture, Town Planning, Construction Technology, Infrastructure
Design, Execution and Maintenance, Estate and Financial Management etc. The AVP
has an Engineering, and Architecture & Planning wing.
There are specific rules and regulations for all activities undertaken by the AVP
board. All rules and regulations of the board are made public through Gazette
notifications. To look into the difficulties of the allottees and landowners etc. a public
Redressal systems known as ‘Parishad Bandhu’ is operating in Board since 1997.
There is a face-to-face hearing and spot decision. This helps in prompt public
redressal.
15.3.7 State Urban Development Agency
The institutional responsibility for slum improvement vests with the SUDA that
operates through a network of the District Urban Development Authorities (DUDA).
SUDA executes various government schemes for urban renewal like – Balmiki
Ambedkar Awas Yojana, Integrated Urban Slum Sewerage Plan, National Slum
Development Program, and Golden Jubilee Urban Employment Scheme etc.
The State Secretary for Urban Employment and Poverty Alleviation is appointed as
Chairman SUDA and is responsible for the acceptance and approval of all the
schemes being implemented by SUDA. Other members in SUDA are Secretaries for
Health, Education, Urban Development, Housing, Youth-development and Social
Development. SUDA operates through a series of community structures like –
Community Development Societies (CDSs) – (1350 in the state)
Neighbourhood Committees (NHCs) – (10009 in the state)
Neighbourhood Groups (NHGs) – (100963 in the state)
SUDA executes all its programs using beneficiaries for prioritization of needs and
execution of schemes.
15.3.8 District Urban Development Agency
DUDA has been constituted for effective execution of the SUDA undertakings in all
the districts of the state. DUDA members include the DM or Chairman DUA,
Municipal Commissioner as Vice Chairman DUDA and other district level officers. It
is primarily responsible for works relating to community development, in the
106
respective districts of the state, which includes development of slum communities,

construction of community toilets, assistance in construction of household latrines,
creation of awareness etc. They also work for provision of sewers, tube-wells etc in
slum localities. The assets thus created are finally handed over to JS for maintenance
purpose. DUDA has also taken up a series of activities for infrastructure improvement
in slums.
DUDA coordinates with CDSs for community participation in various initiatives

undertaken by DUDS in these communities.
15.4 Overlapping of Roles & Accountability
Within the MCV at the departmental level, there are functional overlaps; for example,
both PWD and the Street Lighting departments are undertaking the construction and
maintenance of streetlights and municipal properties; MCV as well as PWD clean
drains; etc. These overlaps cost the MCV in terms of revenues as well as manpower and
are often subject to problem arising from a lack of coordination – a situation that is not
conducive to institutional efficiency.
The MCV faces a shortage of sanitation staff. The Public Health Department is
responsible for cleanliness in several wards. The numbers of sweepers available in the
MCV and the PHE are way below the standards set in the Government Health Manual.
The key issue is to decide on the trade-offs between hiring full time staff versus
outsourcing. The latter will mean that the liabilities of the MCV will be reduced but,
experience of similar attempts in other municipalities have shown that outsourcing is
difficult to implement both because of the legal aspects involved as well as the
opposition from existing staff. While this is difficult to implement, the long term
advantages of outsourcing definitely outweigh the initial teething troubles.
Despite the very large size of the MCV, all functions are performed out of the main
office of the MCV. There is no decentralization in either the Execution or Elected
Wings and therefore no Zonal Offices or Ward Committees. This centralized approach
is not very amenable to efficient working.
The MCV has set up three cells to handle customer complaints. All complaints have to
be made either in person or through regular post since the MCV does not have a system
of online grievance handling. The length of time for registering complaints and their
resolution is therefore quite long and could be a deterrent for customers.
Quite like the other development authorities, the VDA functions as the ‘Developer to
the Government’. Functional overlaps are seen between the VDA and the TCPD with
both being responsible for spatial planning. Functional overlaps are also seen in the
implementation and maintenance functions that are performed by both the VDA and the
MCV. As a parastatal, the VDA is supposed to hand over sectors that have already been
devolved to the MCV for service provision and in order to ensure that levels of service
are satisfactory, it needs to take the MCV into confidence while developing sectors.
There is a possibility that sectors be developed in places where infrastructure is
deficient.
107
The VDA is focusing on developing the outlying areas since the inner areas of the city
are already developed. While planned development is taking place there is a high
possibility that this is encouraging unplanned growth with unauthorised colonies
coming up through the conversion of designated agricultural land to residential use.
JS’s cost recovery through user charges is inadequate compared to the cost of service
delivery because of poor billing systems and low user charges. JS has poor coordination
with the MCV and because of this, functional inefficiencies arise. JS is unable to
rationalize user charges because of its lack of power in this connection. Levels of
accountability in the JN are low because it is a state department.
This lack of accountability arises from a lack of role separation since the JN is
responsible for both policy making for the sector as well as implementation of the
policy – therefore regulation is non existent. Being a state department, its functioning is
also subject to a high degree of political interference. Dependence on state budgets
means that there are limited resources available for capital investment for preventive
maintenance and its functioning is therefore more reactive.
The absence of criteria for classification of roads to be maintained by the MCV and the
PWD is not an enabling framework for efficient functioning by either agency. As a
corollary to the above, neither agency (MCV/ PWD) is able to plan its work in advance
leading to a reactive mode of functioning.
The functions of the AVP, the VDA and the MCV are similar. All the three agencies
are involved in planning and development of land for residential and commercial
purposes. The linkage of these agencies with the TCPD is also indicative of overlaps.
15.5 System Deficiencies
Few prominent system deficiencies in ULBs/ parastatals are listed as follows:

MCV and JS are public service organisations but they work in isolation and do not
interact much with public or call for their opinion in operational matters and
development issues;
All the organisations are primarily conducting breakdown maintenance work. Routine
and preventive maintenance seems to be lacking;
Most of these institutions spend 30-40% of their expenditure on manpower at worker
level. Several activities of MCV and JS are similar and carried out separately;
There are issues related to transfer and O&M of the assets created previously;
As a check against depleting ground water table, JS has submitted a proposal of
imposing a tax on boring in the city. However, the authorities have not taken any
further action on this;
Most of the institutions do not have proper asset records and no efforts have been
initiated so far for asset inventory;
MCV does not have zonal offices and Ward Committees have not been constituted so
far;
Most of the institutions including VDA and MCV do not have any website. These
organisations still depend a lot on paper work in the absence of computerisation and
e-governance; and
MCV is short of sanitation staff. Lack of manpower for sanitation services is leading
to ineffective sanitation and solid waste facilities in the city.
108
15.6 Key Issues
Issues that need be attended to with regard to better and effective urban governance are –
MCV collects Property Tax and JS collects Water Tax, Water Charge and Sewer Tax
from the residents. Tax Collectors of both the departments visit the same household
separately and the tax payer has to visit two different offices for payments or
complaint redressal;
VDA collects development charges for plot development whereas all infrastructure/
services are provided and maintained by MCV and JS;
VDA uses JS water supply for housing development. An amount fixed up as certain
percentage of cost of construction is paid by VDA to JS for this service. However,
this payment often gets delayed adding to the financial problems of JS
MCV shows several interdepartmental overlaps. These overlaps in the absence of co-
ordination can lead to inefficient service delivery; and
Inter-institutional overlaps are common between VDA and TCPD, JS and MCV, JN
and JS, PWD and MCV, DUDA and JS etc.
109
16 Financial Profile and Credit Worthiness
16.1 Existing Practices
There is an increased role of urban government/ governance with increase in urban

population. With advancement in science and technology, man’s concept of minimum
amenities for acceptable living conditions has undergone changes. It has now become
utmost important to provide quality services to the urban dwellers in order to increase
the competitiveness in the city and attract investment on a continuous basis. The
municipal corporation, to estimate the affordability of capital investment and debt
servicing, has not properly appreciated the importance and benefits of better financial
planning.
The existing budgeting practices of MCV involved planning and budget estimates
preparation of the forthcoming year only, which is shortsighted approach. The
revenue and expenditure are generally estimated on ad hoc basis from the previous
year expenditure. This previous year expenditure is also not analyzed in great detail
i.e. trend analysis, to understand the factors influencing the revenue and expenditure,
to rationally estimate the future trends of these major items.
MCV like any other municipal corporation of India is not able to recover the cost of
service rendered by it. There is big resource gap for performing the basic core
functions like public health, sanitation, and waste management. In order to bridge the
gap all the three tiers of the Government have to cooperate and work in this direction.
JNURM Mission is one of the initiatives by the Central Government for enhancing
the service levels of ULB in the different cities of India by establishing a vision of the
city and d then plan for revenue and expenditure of future years.
MCV maintains records on single entry cash based system of accounting. The output
of this cash basis of accounting is a Statement of Receipts and Payments that
classifies cash receipts and cash payments under different heads. A statement of assets
and liabilities is not prepared.
The cash basis of accounting fails to meet most of the financial reporting objectives. It
is due to the reason that the timing of cash payments and cash receipts does not
coincide with the earning of revenues or expenses. Further more, making small
change in the timing of cash receipts or payments can change measures of
performance based on cash basis of accounting. For example postponing the payment
of certain bills by a few days can conceal a budgetary deficit. Also under Cash basis
of accounting no distinction is made between the expenditure on construction of
roads, water sewerage system and bridges and expenditure on routine items such as
salaries, rents etc. The limitation of cash basis of accounting for proper measurement
of performance and financial position has led to the adoption of accrual basis of
accounting in the Government organizations.
For better financial management of any organization, information of overall financial

position of the entity and current assets and liabilities and changes in financial
position is necessary prerequisite.
110
The Corporation accounts of receipts and expenditure shall be maintained in such a

manner as prescribed as per section 142 of Municipal Adhiniyam Act 1959. There is
no mandatory provision for the maintenance of accounts on double entry accrual
based system of accounting as per Municipal Act. Recently great development has
taken place in all over the country in this regard. UP Government has issued an order
for switching over the accounts from single entry to Double entry accrual based
system.
16.2 Finances of MCV
Since the fiscal decentralization is in the early process of devolution in Uttar Pradesh,
MCV is facing the problems of poor financial status, absence of regular maintenance
and high operating cost. Lack of capacity and capability of MCV to mobilize the
resources due to undue pressure by the elected body would result in low investment
for creation of new infrastructure.
Revenues of MCV primarily comprises the revenues from the Governmental transfers
in the form of grants and revenue from own sources in the form of tax and non-tax
revenues. Capital receipts (Annex I1) consist of loan from the government and
revenues earned from sale of land and grants received on account of MP and MLA
funds.
Figure 16: Trend in Revenue Receipts
6,000.00
5,000.00
4,000.00
2003-04
3,000.00 2004-05
2005-06
2,000.00
1,000.00
-
2003-04 2004-05 2005-06
There is no increase in own revenue sources of MCV in the last three years not in
terms of tax revenues and non-tax revenues. Government is also not able to help the
municipal corporation in the last years. Increase in assigned revenues in terms of
stamp duty on transfer of properties is also not significant that in the year 2003-04
MCV is not able to get its share in transfer duty. MCV is providing all the major
services to the urban citizens with a maximum coverage of area in the city. But due to
specific rule in the U.P. this share in transfer duty is one third out of total percent
which is very less if we want to link the revenue with the related service expenditure.
Out of total revenues of MCV grants from the government is 64.07% and balance
36% is from tax and non-tax revenues. Further MCV is not able to revise its tax rates
from the year 1976, which is acting as main negative factor for the performance of
MCV.
111
Figure 17: Composition of Revenue Receipts

4000.00
3500.00
3000.00
Tax Revenues
2500.00
Assigned revenue
2000.00
Non-tax revenues
1500.00
Non Plan Grants
1000.00
500.00
0.00
2003-04 2004-05 2005-06
The revenue expenditure comprises salary expenditure and non-salary expenditures

comprising expenses on service provision by MCV (Annex III). Capital expenditure
consists of repayment of loans. Establishment costs and normal maintenance expenses
can be met out of owned revenue sources of MCV. The most attending point is that
establish costs or the salary expenditures constitutes 66% of total expenditure of the
corporation.
Figure 18: Trend in Revenue Expenditure

Revenue Expenditures
4,650.00
4,600.00
4,550.00
4,500.00
4,450.00 Revenue Expenditures
4,400.00
4,350.00
4,300.00
4,250.00
2003-04 2004-05 2005-06
Figure 19: Composition of Revenue Expenditure

3500.00
3000.00
2500.00
Salary Expenditure
2000.00
1500.00 Non-Salary
Expenditure
1000.00
500.00
0.00
2003-04 2004-05 2005-06
112
Capital Expenditure in terms of addition in the assets is negligible in MCV. It consists

of repayment of loans also which is also nil since it is loan on revolving fund from the
government on which no interest is required to paid to the government
Figure 20: Composition of Revenue Expenditure of MCV

35
30
New Engg. Works-
25 Sew erage
Repayment of loans
20
15 Construction of
Roads,streets
10 Construction of
Buildings
5
0
2003-04 2004-05 2005-06
16.3 Finances for Water Supply and Sewerage
Water Tax and Water Charge form the major source of revenue for Jal Sansthan
contributing to about more than 90% of the revenue in 2005-06. Sewer tax and
charges form the major part of the remaining revenue contributing to around 9% of
the total revenue. In the absence of water metering, both taxes are assessed on
percentages of the annual rental value of residents’ property. One of the major issues
has been the problem in assessment of annual rental value and 5-yearly re-assessment,
which has not been practiced by MCV. This is leading to low revenue for the Jal
Sansthan, whose charges are a fixed percentage of property tax. Further, they are also
not allowed to increase the rates, mostly due to political pressure from the year 1976.
There is decrease in collection efficiency percentage of revenue from 2003-04 to
2005-06 (Annex IV).
Figure 21: Collection Efficiency of Revenue of JS
100.00%
90.00%
80.00%
70.00%
60.00%
50.00%
40.00%
30.00%
20.00%
10.00%
0.00%
2002-03 2003-04 2004-05 2005-06
Source: Jal Sansthan
113
There is no significant increase in revenues of Jal Sansthan in recent years.
Figure 22: Trend in Collection Efficiency of JS

1,400.00
1,200.00
1,000.00
Tax Revenues
800.00
Non Tax Revenues
600.00 Non Plan Grants
Other Income
400.00
200.00
-
2001-02 2002-03 2003-04 2004-05 2005-06
Source: Jal Sansthan, 2006
The major expenditure heads of VJS are establishment and electricity charges
accounting for an average of 46% and 32% of the total expenditure in 2003-04. Due
to insufficient revenues VJS ends up with non-payment of electricity bills, which are
finally paid by the UP State Government. Up to 2003-04 for paying electricity dues
the state government has given the grant to the JS to pay off its liabilities. After that
liability for electricity expenditure is continuously standing in the books of VJS. Since
no grants have been received for paying off that liabilities it has not been reflected as
payment in those years (Annex V).
Figure 23: Trend in Revenue Receipts of JS
1800
1600
1400
1200
1000
800
600
400
200
0
2001-02 2002-03 2003-04 2004-05 2005-06
114
Figure 24: Trend in Capital Expenditure of JS

Capital Expenditure
250
200
150
Capital Expenditure
100
50
0
2001-02 2002-03 2003-04 2004-05 2005-06
Figure 25: Trend in Revenue Expenditure of JS
1800
1600
1400
1200
1000
800
600
400
200
0
2001-02 2002-03 2003-04 2004-05 2005-06
16.4 Key Issues
Financial reforms – mandatory and optional

Double entry system
Property tax collection reforms
Public private participation
115
17 Basic Services for Urban Poor
17.1 Introduction
This section deals with the general characteristics of

slums and urban poor in Varanasi and their access to Census definition of Slum
basic services drawing from secondary information Slums as defined in Census of India, is
and interactions with stakeholders. The aim is to a compact area of at least 300
identify the gaps in service delivery to poor in population or about 60-70 households
Varanasi and arrive at key issues for which strategies of poorly built congested tenements, in
will be suggested that would enable the Varanasi unhygienic environment usually with
inadequate infrastructure and lacking in
Municipal Corporation to address the issues and proper sanitary and drinking water
fulfill the mandate of provision of basic services to facilities.
urban poor.
With the increase in population of the city, housing needs of the city also grew, which
could not be met out by the formal housing market. Migrating population, which could
not avail the facilities of formal housing market, satisfied their needs by occupying
vacant land and this has resulted in formation of slums. Another factor, which
contribute in the formation of slums, is proximity to work place and low level of
income and un-affordability of pucca houses.
Some of the factors which have contributed to the development of slums in Varanasi are
as mentioned below:
Migration of people especially from Eastern State of India in search of job to the
city.
Availability of cheap living alternatives as most of the people stays outside the
temples where they get food from the offerings of the pilgrim tourists
Another major reason for migration is due to flourishing nursing colleges and
demand of health facilities in the city.
Slums in the city are a very significant problem as they put more pressure on the
existing facilities and covers large part of the city. The following sections deal with
the overview of slums in Varanasi, their characteristics and spatial distribution in the
city. Also the assessment of present infrastructure along with identification of gaps in
the slums is done for analyzing the future requirements.
17.2 Slums of Varanasi
Varanasi has 227 slums spread all over the city, either on government or private lands.
Total population in slums is about 453,222, which is about 37.69% of the total
population. These 227 slums have formulated 21 Community Development Centres
(CDC), which are responsible for the overall development of the slums along with
Slum Urban Development Authority (SUDA). Population in the slums varies from
200 to almost 9,000 people with varied densities. Rapid growth of slums in Varanasi
has put a lot of pressure on the existing land resources and infrastructure and has led
to deterioration of its physical environment.
116
Majority of slums have very poor water supply and sanitation facilities; most are either
un-sewered or partially sewered, with disposal of household wastewater and solid
wastes taking place directly into open nallas. This phenomenon has adversely affected
drainage system in these areas and led to water logging in different areas. The poor
environmental conditions within the slum areas have adversely affected the health of
the residents. Financial constraints on the part of civic authorities and un-authorized
nature of the slums have also contributed to non-delivery or partial delivery of basic
amenities.
The slum population in the city accounts for about 37.69% of the city population and
some of the factors, which are responsible for this, are:
Maximum percentage of people living in the slums is employed with the MCV as
Safai Karamcharis. Labour employed with the Handloom industry account for the
second highest concentration followed by rickshaw pullers, which account for
nearly 10 to 15% of the slum population.
The existing tourism base of the city creates opportunities for employment
generation, especially for unskilled labour
Lack of development opportunities in the hinterland
17.3 Development of Slums
Slum locations are spread all over the city but major concentrations can be found in
the old city area near the ghats, areas near small scale industries (as a high percentage
of slum dwellers are weavers working in Handloom industry) as well as in the Rajghat
area (Map11) The main factor attributing to this concentration is proximity to work
place. In case of the old city area, the employment generation due to religious and
tourist traffic and in case of Rajghat area, the availability of open land has led to
indiscriminate squatting.
But the slum concentration in these areas has not only led to poor living conditions for
the slum dwellers but is also responsible for the general deterioration of the living
environment of the city. This is primarily due to lack of proper infrastructural services
in these areas and considering the fact that most of these slums have 1000+
populations (Figure 26). This is leading to tremendous pressure on the city
infrastructure and resources.
117
118
Figure 26: Population concentration in Slums
100
90 94
Number of settlements
80
70
60
50
52
40
30
32 31
20
10 10 9 4 5
0
500-1000
<500
1000-
2000-
3000-
4000-
5000-
>6000
2000
3000
4000
5000
6000
Population
Source: DUDA Varanasi
A significant portion of the waste dumps and untreated sewage discharge in the river
comes from the slum concentration in the old city area. Annex VI gives the list of
slums in Varanasi. It can be observed that the concentration of slums is more in areas
which have small scale manufacturing units like: Madanpura, Adampura, etc. Hence,
a significant portion of the weavers working in the small scale-manufacturing units,
especially handlooms, live in slums near the workplace.
17.4 Characteristics of Slums
The total population of slums is concentrated mainly in central city and peripheral
development. 50% of total Slums are located in central city while 37% in peripheral
area. The number of BPL families comprises nearly 20% of the total slum population
while the number of EWS household is more in central city than peripheral areas. The
total number of slum households is nearly 56652 covering approximately 1372.6
hectares of land (approximately 17%) in the city. The average gross density in slum
areas is approximately 330persons/ha in the city area. The average household size in
slums is approximately 8 as compared to the city’s average of 7.3, which is
comparatively high. The average income of a slum household ranges from Rs.100-
150 per day. Table 44 shows the overview of slums in Varanasi
Table 44: Slums an Overview

Average
Area Density HH
No. of HH Population Income
(Ha) (Persons/Ha) size
(Rs./Day)
Varanasi City 151654 1202433 7979 150 7.3 NA
Slums 57055 453222 1372.6 330 8 100-150
Percentage 37.6% 37% 17% - - -
Source: DUDA, 2006
For a detailed study understanding of the characteristics of slums, the city has been
divided into three areas – Old city, the central city and the peripheral developments.
Thus a comparative scenario is developed to assess the situation of slums in the city in
the Table 45:
119
Table 45: Slum population Data

Old City Central City Peripheral development
No. of Slums 32 118 78
EWS HH 485 4078 3993
Source: DUDA Varanasi, 2006
Figure 27: Zone wise Distribution of Slums

ZONEWISE DISTRIBUTION OF SLUMS
14%
34%
52%
OLD CITY CENTRAL CITY PRERIPHERAL
17.5 Status of Community Facilities
A detailed study of slums has been conducted by DUDA in Varanasi. According to

the study, nearly 59.5% of the population in these slums belongs to the SC category.
Though attempts are being made by the government authorities to upgrade the living
environment in the slums, the general living conditions in most slums needs
improvement. The lack of formal solid waste collection facilities leads to littering and
open roadside dumping of waste and water logging due to lack of sewerage and
drainage facilities leads to health hazards. Out of the slums studied by DUDA, nearly
65% of the slums have been provided with a sewer line and individual toilets. Almost
80% of the slums have storm water drainage but these are roadside drains and are
connected with sewerage network (Figure 28, Map 12 & Annex VII)
Figure 28: Availability of Physical Infrastructure in Slums

PHYSICAL INFRASTRUCTURE
WATER SUPPLY 48 180
SADAK NALI 43 185
BARSATI SEWER 52 176
SEWER LINE 54 174
TOILET 11 217
0% 20% 40% 60% 80% 100%
0-50% 50%-100%
120
The major inferences from the data provided (by DUDA) are:
Individual household toilets are present in most of the slums. Out of 227 slums in
Varanasi, 216 slums have more than 50% coverage and the remaining 11 slums
has less than 50% coverage in terms of individual toilets.
Out of total 227 slums, 177 slums have sewerage network, Basti nallas/drainage,
which constitute 77.6% in terms of slum coverage.
Water supply is present in 192 slums, which is 82.4% in terms of coverage. Thus,
water supply network is present in most of the slums. 36 slums do not have any
proper water supply network, as these areas are not under the coverage zone.
Majority of the slums lack public conveniences in terms of community toilets.
Community toilets are present in 45 slums (20%) and the remaining slums lack
the facility. Therefore, it is required to provide public conveniences wherever
required in different slums.
Streetlight is presently lacking in most of the slums with uncovered slums to the
extent of 77.4%.
The condition of roads is worst in these areas. The roads are mainly kutcha roads
made up of bricks with no proper drainage system, and the condition gets worse in
rainy seasons. The drainage system has added to the problem of these areas and has
caused concern for public health. Slums are provided with two hours of water supply
per day, which does not fulfill the requirement of slum dwellers and slum dwellers
have to rely on other sources of water supply like hand pumps. In some cases, water
has to be transported from more than half a km. In terms of lack of facilities, most
slums in central city lack infrastructural facilities followed by peripheral city slums.
The slums located in the core city have maximum facilities owing to the relatively
well developed sewerage and water supply network in the core area.
DUDA is the primary agency responsible for provision of community toilets in

Varanasi. Till December 2003, 24 CTCs had been constructed in various slums all
over the city. Inspite of this, the demand and supply gap is huge and results in open
defecation by slum dwellers. DUDA has also provided 21 Community Centers under
Community Development Scheme (CDS) in the slum areas.
The tenure status for all the slums is from birth and the ownership status is private.
This indicates that the people living in slums have been living in unhygienic
conditions with inadequate infrastructural facilities for a long time and thus
immediate attention needs to be given to uplift their quality of life.
17.6 Housing Scenario
In the absence of detailed information regarding housing conditions in all slums,

analysis of housing scenario is done based on 109 slums, whose data was available.
Out of 109 slums 64% of slums have pucca houses, 22% have semi-pucca followed
by 14% Jhuggi Jhopri. The housing is made up of make shift material like sandstone
tiles, thatches.
121
The conditions are similar in all the three areas.
Table 46: Structural Condition of slums

Type of Structure Old City Central City Peripheral development Overall
Pucca Houses 64% 67% 61% 64%
Semi built 22% 23% 23% 22.6%
Jhuggi Jhopri 14% 10% 16% 13.3%
Source: DUDA Varanasi
Figure 29: Structural condition of Houses in Slums

Housing condition in Slums
Jhuggi
Pucca
Jhopri
Houses
13%
Semi built 64%
23%
17.7 Housing requirement for Urban Poor
EWS Housing:
Provision of housing for urban poor forms an important component of JNNURM and
since, slum population forms nearly 40% of Varanasi’s population, a major emphasis
has to be given to housing for urban poor. The slum population of Varanasi is nearly
4.5 lakh and approximately 21% of the slum population lives in below poverty line.
Out of the total slum population, 30% of the slum population would have to be
provided with EWS Group housing DUs (with adequate infrastructural facilities)
through Ex situ development (relocation) whereas, the remaining 70% would be
improved insitu. PPP can be used to cross subsidize the cost of provision of EWS
housing. These housing units can be provided along the periphery while laying
emphasis on the workplace-residence proximity to reduce transportation costs
incurred by the slum dwellers.
70% (3.2lakh or 40,041 DUs) of the slum population needs to be provided with insitu
development. Out of 40041 DUs, considering that 60% of DUs are Pucca (as per Table
46) and can be upgraded by minor repairs and up gradation, a cost of Rs. 1000/sqm has
been considered to assess the total cost of upgradation of houses. The remaining 40%
DUs (out of 40,041) would have to be rebuilt on site through construction of new DUs
(G+3 units). The number of DUs for insitu and exsitu development have been
calculated (Table 48).
122
Table 47: Population projection on decadal growth rate

Requirement
Total
Year Slum Population BPL Population for EWS
Population
DUs
2001 12,02,443 4,53,222 96,344 13,763
2006 13,70,785 5,16,648 1,09,787 15,684
2011 15,35,279 5,78,646 1,22,962 17,566
2021 19,65,157 7,40,667 1,57,391 22,485
2031 25,74,356 9,70,274 2,06,183 29,455
Table 48: Housing for Urban Poor

H o u sin g fo r U rb a n P o o r
T o tal S lum P o p ulatio n 4 5 7 ,6 1 3
A verage H o useho ld size 8
T o tal num b er o f H o useho ld s 5 7 ,2 0 2
T o tal B P L P o p ulatio n 9 6 ,3 4 4
T o tal num b er o f B P L H o useho ld s 1 2 ,0 4 3
E xsitu D ev elo p m en t In situ D ev elo p m en t
T o tal P o p ulatio n 30% 70%
T o tal P o p ulatio n 1 3 7 ,2 8 4 3 2 0 ,3 2 9
N um b er o f H o useho ld s to b e relo cated 1 7 ,1 6 0 4 0 ,0 4 1
Insitu up grad atio n o f ho uses - 60%
- 1 9 2 ,1 9 7
N um b er o f D U s - 2 4 ,0 2 5
T o tal num b er o f E W S D w elling units (D U s)req uired 100% 40%
1 7 ,1 6 0 1 2 8 ,1 3 2
1 6 ,0 1 6
M inim um area req uired p er D U 2 5 sq m 2 5 sq m
E W S H o u sin g In situ H o u sin g
M inim um P lo t size p er D U 0 .4 ha 0 .4 ha
M axim um P erm issib le F A R 133 133
T o tal num b er o f flo o rs 4 4
P erm issib le G ro und C o verage 33% 33%
N um b er o f D U s p er flo o r 4 4
A rea und er D U s p er flo o r 4 x 2 5 = 1 0 0 sq m 4 x 2 5 = 1 0 0 sq m
A rea und er serivces 2 2 sq m 2 2 sq m
A rea p er flo o r 122 122
T o tal co vered area p er b uild ing 1 2 2 x 4 = 4 8 8 sq m 1 2 2 x 4 = 4 8 8 sq m
M axim um num b er o f b uild ings p erm itted p er p lo t 11 11
T o tal b uilt up area (sq m ) 5368 5368
T o tal num b er o f D U s p er b uild ing 16 16

T o tal D U s p er p lo t 176 176
P o p ulatio n acco m o d ated p er p lo t 176 x 8 = 1408 176 x 8 = 1408
P o p u la tio n to b e a cco m o d a ted in n ew p lo ts 1 3 7 ,2 8 4 1 2 8 ,1 3 2

N um b er o f p lo ts req uired 98 91
T o tal area req uired (ha) 39 36
C o st o f up grad atio n o f ho uses - 1 0 0 0 /sq m

C o st o f co nstrcutio n o f new ho uses 3 ,5 0 0 /sq m 3 ,5 0 0 /sq m
T o tal flo o r area to b e co nstructed 5 2 3 3 9 5 .2 5 4 8 8 5 0 3 .2 5

T o tal co st o f co nstructio n 1831883375 1709761375
C o st o f u p g ra d a tio n o f H o u ses (a t 2 5 sq m p er
d w ellin g ) - 6 0 0 ,6 1 7 ,0 6 3
C o st o f co n stru ctio n o f n ew h o u ses 1831883375 1 ,7 0 9 ,7 6 1 ,3 7 5
T o ta l co st 1831883375 2 ,3 1 0 ,3 7 8 ,4 3 8
say 1 8 3 .2 cro re say 2 3 1 cro re
123
17.8 Key issues
For the reason that the lack of infrastructure facilities leads to pollution of Ganga
River and deterioration of living environment of the slums, the following issues need
to be addressed:
• In-situ up-gradation of slums, wherever possible, with provision of basic facilities
needs to be taken up
• Ex situ -Relocation and rehabilitation plan for slum dwellers
• Open defecation by the slum population due to lack of provision of CTCs and IHHLs
• Lack of piped water supply in the slum areas leading to high dependence on ground
water and other sources
• Lack of means of waste disposal leading to open dumps which lead to clogging of
drains and act as breeding grounds for mosquitoes
• Lack of sense of ownership among the residents – facilities are looked upon as
something that has been provided by the government, and it is the government's
responsibility to "run" the CTCs;
• Provision of CTCs and water supply lines to slum dwellers
124
125
18 SWOT Analysis into Service Delivery

18.1 Introduction
The. Strength, Weakness, Opportunity and Threat (SWOT) analysis is necessary to get the
complete picture of the city and forms the basis for formulation of Vision. The analysis helps
to get the clear picture of the existing situation as well as possible scenarios and potentials for
the development of the city. For Varanasi, the SWOT analysis has been carried out at two
levels, i.e. City as a whole and Institutional level.
18.1.1 City as a whole
18.1.1.1 Strengths
a) Good connectivity by air, rail and road

b) Connectivity by three National Highways (NH-2, NH-29, NH-56) and four
State highways (SH-73, SH-74, SH-87 and SH-98) passing through the city.
c) Diverse economic activities like weaving handlooms, wholesale trade.
d) Established educational centre with universities like BHU etc.
e) Strong heritage and religious tourism potential, and natural beauty.
f) Proximity to Sarnath and other tourist places like Ramnagar and Chunar.
g) Religious potential and significance
h) Large tourist influx, domestic as well as foreign tourist.
i) Architectural wealth in the form of Ghat areas and old city
j) Presence of natural water bodies and sacred kund.
Thus the strengths of the city are in form of heritage, tourism and related activities. The
city can march upon these strengths to develop in the coming future.
18.1.1.2 Weaknesses
a. Urban Chaos in old city, narrow streets-high density.

b. Poor condition of urban infrastructure in the city
c. Bad road conditions in the old and central city.
d. Only 30% of the city is covered by sewage network and lack of dedicated
sewer lines.
e. Heavy dependence on ground water depleting the water table in the city
f. Poor condition of existing water supply network, which is more than 50 years
old
g. Kuccha, unlined drains in the city leading to unhygienic conditions and ground
water contamination
h. Lack of maintenance and poor condition of water bodies and heritage
buildings.
i. Pollution load on River Ganga, Varuna and Assi
j. Traffic congestion, bottlenecks, roadside parking and traffic jams are the usual
scenes due to lack of traffic management.
k. Increased number of registered vehicles in the city has led to traffic
congestion, which creates air and noise pollution.
l. Lack of sanitary landfill site and waste management system
m. Lack of open spaces and road side plantations
126
n. Unauthorized constructions and encroachments on roads in the inner and

central city create havoc and restrict smooth movement of the traffic.
o. Nearly 37% of the population lives in slums with lack of infrastructure
facilities
p. Unplanned growth of the city, majority of residential areas are unplanned.
q. No proper lighting, absence of signals and road markings always leaves the
traffic in chaos.
Thus the city has a huge gap in present infrastructure facilities to cater to the
needs of the city. The city lacks basic infrastructure mainly in urban transport and
management. Also the city lacks in full coverage of physical infrastructure.
18.1.1.3 Opportunities
a. Potential for development of both religious and institutional tourism

b. Potential for establishment of Apparel Park
c. Potential for Industrial Development to boom the economic activities in the
city.
d. Potential for development of Freight complex to decongest the old city and
bring all the wholesale as well as trade activities at a common platform out of
the city.
e. Potential for development as a high tech city and a knowledge hub
f. Passenger terminals for better traffic management in the city.
g. Potential to develop amusement parks and water transport near the Ganges.
Thus the city has a huge potential to grow as a major tourist destination and trade
center to cater to the needs of the surrounding areas. The promotion of tourism
can help the city to generate the revenue as well as to support the city’s economic
profile.
18.1.1.4 Threats
a. The rate of increase in population being very high in past two decades.
b. High rate of population growth in Slums.
c. High floating population leading to stress on the city’s infrastructure
d. Increasing demand and supply gap in urban services
e. Depletion of ground water table in fast pace can cause scarcity of water supply
in the coming future.
f. Deterioration of heritage due to lack of maintenance can leads to the loss of
heritage areas.
g. Threat to Ghats due to changing course of River Ganga and seepage of river
water into the Ghat area
h. Unregulated developments and encroachments in the Catchment area of
Varuna and Assi
i. Intense pollution load on River Ganga and Varuna can lead to the degradation
of living environment for the water species.
j. Drying up and encroachments on ponds/water bodies.
The existing scenario establishes that there is lack of maintenance in each sector
that if not taken care off can lead to the worst of the situation.
127
18.1.2 Institution Level
A SWOT analysis of the city’s institutional framework has also been done. It aims at
analysing Strengths, Weaknesses, Opportunities and Threats of different government,
parastatal and other concerned agencies in the city regarding services delivery, operation
and maintenance etc. For the purpose of this analysis, MCV, JS and JN have been taken
into account.
18.1.2.1 Strengths
Strong technical setup and expertise with experience personnel (civil and
environmental engineers)
Water tax and water charge form the major source of revenue for JS contributing
85% of the revenue
Sewer tax and charges form the major part of the remaining revenue for JS
Ganga pollution unit to execute sewerage work – design, execution, transportation
and treatment
Existing laboratory setup
Human Resource Development cell existing to conduct periodic training to
improve technical skills and know-how on current technology
18.1.2.2 Weaknesses
There is no provision of water metering and water charges are not raised due to
political pressures which result in low revenue for the JS
Due to insufficient revenues JS ends up with non-payment of electricity bills,
which are finally paid by the state government
Insufficient manpower – technical and non-technical
Poor financial status of MCV, JS and absence of regular maintenance and high
operating costs
Lack of industrial base in the city
No distinction is made between expenditure on construction of infrastructural
facilities such as roads, JSCs, MTVs, night shelters etc. and expenditures on
routine items such as salaries, rents etc
Big resource gap for performing basic core functions like public health, sanitation,
and waste management
Finance records area maintained on single entry cash based system
Statement of assets and liabilities not prepared
Cannot assess the accountability of all the resources that MCV controls and the
deployment of those resources
Not able to assess the financial performance, financial position and cash flows of
the entity
Partial coverage of city by sewerage network
Complete dependence on government funded projects
Poor resource management
Poor personnel management
Lack of willingness
128
18.1.2.3 Opportunities
Increased role of urban governance with increase in urban population

Challenge of providing quality services to urban dwellers in order to attract
investment on a continuous basis
Challenge of switching over from cash to accrual system of accounting
Established institutional setup
18.1.2.4 Threats
MCV is not able to recover the cost of services rendered by it

Striking feature of MCV accounts is that the salary expenditures take away major
portion of the total expenditure
Stagnation and lack of growth opportunities for personnel
Loss of technical skill due to stagnation and poor utilisation
18.2 Key Issues
Development of tourism potential of the city

Provision of better infrastructure facilities, especially in slum areas
Minimizing stress on the water bodies of the city
Provision of basic services to the urban poor and ensuing delivery of other already
existing services
Urban reforms (mandatory and optional) at city and state levels for improved
governance and financial strength
Governance/ e-governance through application of GIS and MIS
Accrual based double entry system of accounting
Property tax collection reforms through use of GIS
Reforms relating to public private participation
129
19 Critical Assessment of Development Challenges & Resource

Requirements
19.1 Introduction
The main thrust of the strategy of urban renewal is to ensure improvement in urban
governance so that the ULBs and parastatal agencies become financially sound with
enhanced credit rating and ability to access market capital for undertaking new
programs and expansion of services. With this improvement, public-private partnership
(PPP) for various services would become feasible. To achieve this objective, the state
government, the ULB and parastatal agencies in the city will be required to accept
implementation of reform agenda. This section focuses on critically assessing the
development challenges faced with Varanasi.
19.2 Short-term Challenges
Pollution of River Ganga

Poor delivery of services;
Damages and leakages in the existing water supply and sewerage networks;
Low coverage of sewer network
No separate storm water drainage system available;
Poor solid waste management system in practice; lack of sanitary landfill site
Poor Operation and Maintenance of services
Subsidence of Ghats due to seepage of river water.
Chaos on Ghats;
Services to meet tourist demands
Poor management of resources;
19.3 Medium term Challenges
Inadequacy of the water supply and sanitation schemes;

Partial coverage of city by sewerage network;
Areas with poor and inadequate infrastructure;
Excessive use of ground water may cause depletion of ground water;
Inefficient use of existing water treatment plant;
Existing water bodies under threat of extinction and encroachment
Poor drainage network, also carrying sewage, may cause health hazards;
Poor solid waste management system may cause health hazards and epidemic.
No solid waste treatment system in practice;
Encroachment on Catchment area of river Varuna and Assi nallah and disposal of
untreated waste may cause a threat to their existence
Deterioration of old city fabric and Ghats due to lack of maintenance
19.4 Long term Challenges
Due to inadequate water supply and sewerage networks/ systems, tourism shall be
seriously effected
Extensive pollution of the river may lead to diversion of religious tourists to nearby
locations like: Allahabad
130
High volume of waste discharge and encroachment along Varuna and Assi may
cause serious damage to these water bodies.
Poor condition of Ghats and built fabric of the city due to lack of maintenance.
Extensive air and noise pollution
Poor O&M of water supply network may result in its failure;
Partial coverage of city by sewerage network shall cause increased uncollected and
untreated sewage which would cause more pollution of water bodies and create
increased health hazards;
Poor O&M of sewerage network may cause blockage and flood during the rainy
season and calamity;
Poor and inefficient drainage network may cause flooding and damage of the roads
and streets in the city;
Inefficient drainage network may cause stagnation of water in low-lying areas
leading to health hazards and epidemic.
Seepage from the unpaved nallas and drains may pollute the underground water
strata
19.5 Key Issues
Heritage zone comprising of Ghat area and old city to be considered as special zone
Inventory of heritage buildings in the city to be made
Provision of open spaces
Action plan for protection of rivers and water bodies
Making inventory of the existing networks/ schemes;
Verification of technicality/ adequacy of the scheme;
Identify areas with poor/ inadequate infrastructure;
Renewal/ rehabilitation of inadequate infrastructure/ network;
Optimum utilization of existing infrastructure;
Prepare/ plan schemes as per demand/ requirement;
Propose separate storm water drainage and sewerage networks;
Propose efficient collection and treatment system for sewage;
Propose efficient solid waste management scheme;
Allocation of fund/ investment plan and strategy;
Prioritized and phased implementation;
Efficient O&M mechanism;
Governance/ e-governance through application of GIS and MIS
Reforms relating to public private participation;
131
20 Stakeholder Consultations
20.1 Introduction
The process of CDP, being a multi disciplinary platform includes various stakeholders
who work towards the development of the city. As the stakeholders know the city
better and are responsible citizens, their views are important at every step, while
preparing the CDP. Consultation process for Varanasi can be divided in two stages,
(first being the stakeholder workshops and second being individual consultations) to
understand the city, and their problems at grass root level within quick time frame.
Identification of stakeholders was the most important part of stakeholder’s

consultation. In case of Varanasi the identification of stakeholders was done wisely,
so that the complete picture of the city can be assessed in terms of existing situation
and their problems. The main stakeholder comprises of the Government officials
covering all sectors, local people including academicians, local elected
representatives, NGO’s, prominent citizens, etc. The meetings were conducted with
different stakeholders to know their views and vision about the city.
The involvement of stakeholders was at two level i.e. consultation and participation.
The consultation process was basically to explain them about the Mission and to
understand the existing situation of each sector and the city as a whole. The
participation process is more than consultation and in this process the stakeholders
have been involved in taking decisions. Detailed consultations are put in Annex VIII
20.2 Stakeholder Workshops
As part of CDP preparation, five stakeholder workshops have been conducted during
the month of May and June for Varanasi city at different places. Details of these
workshops are as follows:
Table 49: Details of Workshops conducted in Varanasi

Date Venue Presided by Purpose
3rd May Varanasi Mr. S P Singh Introduction of JNNURM in Varanasi and
2006 Municipal Special discussion on exiting situation of different
Corporation, Secretary sectors in Varanasi.
8th May Divisional Mr. C N Situation analysis of different sectors
2006 Commissioners Dubey Identification of Key issues through discussions
Office, Divisional on various sectors like Traffic and
Varanasi Commissioner transportation, Water Supply, Solid waste
management, etc.
11th District Mr. Rajiv Preliminary analysis by consultants about the
May Magistrate Aggrawal city and different sectors
2006 Camp office, District Discussions on key issues identified in the
Varanasi Magistrate previous workshop
Identification of projects at broad level.
7th June Varanasi Mr. S N Presentation on Rapid Assessment done by
2006 Municipal Srivastava consultants,
Corporation, Municipal Identification and finalization of the project at
Commissioner sector level
Formulation of Vision for the city as a whole
and sectors in particular
20th Regional Mr. A K Verma Presentation on
132
June centre for Principal Rapid Assessment done by consultants,

2006 Urban & Secretary Vision and Strategies of the city as a whole and
Environmental (MoUD) sectors in specific
Studies, Projects identified under JNNURM
Lucknow
20th Varanasi Mr. S N Presentation on Vision & strategies
July Municipal Srivastava Presentation of the project at sector level
Corporation Municipal identified by consultants
Commissioner
21st Divisional Commissioners Presentation of the project at sector level
July Commissioners & DM identified by consultants
Office, Discussion with Concern Departments
Varanasi
26st Regional Mr. A K Verma Presentation on
July centre for Principal Vision and Strategies of the city as a whole and
Urban & Secretary sectors in specific
Environmental (MoUD) Projects identified at sector level by consultants
Studies,
Lucknow
Workshop 1: This workshop was basically a kick-off meeting with the VMC
officials, and officials from other organizations to make them aware of JNNURM and
CDP process. The objective of the workshop was to get the implementing agency’s
view on issues such as the areas, which need to be focused upon for the development
of Varanasi. The workshop was held on 3rd May 2006, which was chaired by Mr. S P
Singh, Special Secretary, UP government and was attended by about 40 officials
including the Municipal Commissioner, Additional Municipal Commissioner and
Head of Departments and other Officers.
The meeting started with a brief

introduction to JNNURM highlighting its
features, objectives, the reforms, which
need to be fulfilled, and the importance of
CDP. It was conveyed why JNNURM is
important and how CDP forms a crucial
part of it. After the brief introduction,
departmental heads of each sector were
asked to highlight some of the important
features of their sectors so that the existing
situation of the city is brought out. This is
the first hand information that has been received from the individual departments. The
meeting ended with a note from Special Secretary saying that all the help needed for
preparation of the CDP should be given to consultants so that the project can be
completed in short time period and sent for approval.
133
Workshop 2: This workshop was held on

8th May 2006, at Divisional Commissioners
office, which was chaired by the then
Divisional Commissioner, Mr. C N Dubey.
More than 30 officials including District
Magistrate, Municipal Commissioner,
Additional Municipal Commissioner
attended the meeting, along with some of
the well know professionals from the city.
The basic objective was to understand the

situation of each sector through discussions with different government officials.
Meeting started by presenting the process of preparation of the CDP by consultants
and explaining them the importance of JNNURM. After that some of the sectors,
which were discussed, are Water Supply, Sanitation, Traffic and Transportation, Solid
Waste Management, Decongestion of the Old city area, and also some of the reforms,
which the municipalities will have to adopt during the process of implementation of
the projects. During the discussions on each sector, key issues of these sectors were
identified.
Workshop 3: The District Magistrate, Mr. Rajiv Aggrawal, who chaired the meeting,
has called this workshop at his Camp office on 11th May 2006. Various officials
attended the meeting.
The main objective of the meeting was to present the preliminary assessment done by
the consultants about the city, discuss the key issues identified in the last meeting in
more details and identify preliminary projects that can be taken up under JNNURM.
The main projects, which were discussed, were shifting of wholesale trade from the
city to outskirts of the city, construction of flyovers at intersections, which are
congested, and provision of underground parking at various parks etc.
Workshop 4: A whole day workshop was

conducted on 7th July 2006, in Varanasi
Municipal Corporation, which was chaired
by Municipal Commissioner Mr. S N
Srivastava. Local representatives, and
government officials attended this
workshop, the basic objective of which was
to formalize the Vision for the city.
134
The meeting was divided in two sessions, first being the presentation of the
assessment done, projects identified and second session was to formulate the Vision
for the city as a whole and sectors in
particular. In the first session, meeting
started with presenting the Rapid
Assessment done by the consultants about
the city as a whole and sectors in particular.
Detailed discussions were held about each
sector regarding the gaps identified by the
consultants and identification of the projects
to fill up the gaps. In the second session,
participants were asked to suggest their
vision statement for the city as a whole.
Apart from that, vision for each sector was also formulated.
Workshop 5: Regional Centre for Urban and Environmental Studies, Lucknow,

conducted a half-day workshop on 20th July 2006. Principal Secretary, Ministry of
Urban Development, chaired the workshop and some of the participants includes,
Special Secretary, Divisional Commissioner, District Magistrate of Varanasi,
Municipal Commissioner etc.
The main objective of the meeting was to

present the city assessment, Vision and
Strategies formulated at city level and at
sectoral level, projects that will be
considered under JNNURM and those
which will not be considered under
JNNURM but will form part of the CDP.
Meeting started with the presentations from
the consultants’ side about existing
situation, followed by Vision and
Strategies. Identified projects were
presented for the detailed discussions. After detailed discussions, projects were
finalized, which will be taken under JNNURM. A comment was made to identify few
more projects of short durations, which can be taken up immediately that will make
visible impact on the city structure.
135
Workshop 6: Workshop was conducted on 20th July 2006, in Varanasi Municipal

Corporation, which was chaired by Municipal Commissioner Mr. S N Srivastava.
Local representatives, and government officials attended this workshop;
The main objective of the workshop was to present detailed projects at sector level.
Vision & strategies were also presented in the stakeholder meeting. Comments were
taken from different government officials, councilor of the municipal corporation &
representative of different non-governmental agencies, which later were included in
the reports & projects were reformulated accordingly.
Workshop 7: Regional Centre for Urban and Environmental Studies, Lucknow,

conducted a half-day workshop on 26th July 2006. Principal Secretary, Ministry of
Urban Development, chaired the workshop and some of the participants include,
Special Secretary, Divisional Commissioner, District Magistrate of Varanasi
Municipal Commissioner etc
The main objective of the meeting was to present the final proposals at different
sector levels comments, which were received in the stakeholders meeting at MCV on
20th July, were included in the presentation, reforms which were introduced at
different levels were also presented, ULB share of MCV was also presented in the
meeting
20.3 Individual Consultations
Apart from stakeholder workshops, where we got first hand information, preparation
of CDP is also based on information collected from secondary sources. Thus to collect
the information, various teams were formulated that dealt with the different sectors.
Each team has visited related institutions for collection of secondary data and in the
process interviewed key persons for better understanding of the sector and issues
pertaining to it.
Individual consultations were not restricted to the government officials but also with
individuals who are experts in their field. These consultations helped in formulating
the Vision for the city and identify some of the issues, which are directly or indirectly
related to development of the city. For example, consultation with Mr. Atiq Ansari,
who is weavers representative helped understand the problems faced by the traditional
Saree business in Varanasi and expressed the desire that he would like to see
Varanasi as a major economic base of the region.
136
21 Vision and Strategies
21.1 Introduction
Developing a vision for the city is central to the preparation of CDP. It defines the
potential of Varanasi and reflects its unique attributes in terms of comparative and
competitive advantage, values and preferences of the city’s residents. The JNNURM
has two sub missions:
Urban Infrastructure and Governance

Basic services and the Urban Poor
The city of Varanasi is the oldest living city and dates back to the period of very
existence of urban settlement. The life of residents of Varanasi revolves around the
sacred river Ganga. The life of the city starts in the early houses of the day and
continues till late in the night. It had been centre of learning from ancient times and an
authority on the entire activities of citizens. The city is now taking shape of a modern
city with various diversified activities – tourism being one of them. It is also the
economic capital of Eastern UP. It has following attributes:
Centre of hand-loom industries

Major tourist destination for national and international tourist
21.2 City Level Vision and Strategies
21.2.1 Vision at City Level
For articulating the Vision for Varanasi, various issues have been discussed and
debated during the workshops and individual consultations. It was stressed upon that
aspects such as Culture of the city, its Tourist potential and Revival of traditional
household industries along with provision of basic services to all, should be taken into
consideration. With this background “The Vision” for the city that emerged by
consensus is:
“Economically Vibrant, Culturally Rich, and Liveable Tourist City”
This vision statement will be further articulated with a large group of stakeholders to
reflect the futuristic desires of all ‘Banarasi’s’.
21.2.2 Strategies at City Level
With the above ambitious vision in mind following strategies have been evolves in
consultation with Varanasi Municipal Corporation and other agencies. These strategies
are for city level vision.
To decongest the old city area by providing suitable alternatives especially for
wholesale activities
To promote traditional Small Scale Industries to enhance the economic base
To promote Varanasi as major tourist destination – Nationally and Internationally
To provide safe, equitable and sustainable basic services
137
To provide effective transportation system for smooth traffic movement in the city
To protect water bodies to maintain environmental balance
To enhance quality of life of slum dwellers by providing accessibility to basic
services
21.3 Sector wise Vision and Strategies
As mentioned above, JNNURM has two sub missions and in case of Varanasi, the
sector vision and strategies have been given for these two sub missions separately.
21.3.1 Sub Mission I – Urban Infrastructure and Governance
21.3.1.1 Vision and Strategies for Traffic and Transportation
Developing a safe and efficient traffic and transportation system for the city of
Varanasi
To provide adequate parking facilities throughout the city

Construction of flyovers to reduce congestion and stoppage time at intersections
To improve road geometric and Implement computerized signaling for better traffic
management
To develop multi modal transport terminal to facilitate inter and intra city traffic
movement
To construct new roads to improve connectivity and accessibility of the city
To prepare a traffic management plan for the whole city
To provide Mass public transport system to reduce congestion
21.3.1.2 Vision and Strategies for Physical infrastructure
Provision of adequate, reliable and affordable physical infrastructure services to all

citizens of Varanasi
To cover 100% population by piped water supply and sanitation network

To reduce the usage of underground water sources by renovation/ rehabilitation of
existing infrastructure facilities and by providing new water works
To refurbish old distribution systems both for Water supply and Sanitation
To reduce transmission and distribution losses
To provide adequate and separate storm water drainage system
To provide Universal access to clean, affordable sanitation facilities at public
places
To provide clean and affordable Basic services to Urban poor
To provide efficient wastewater treatment facilities and safe disposal of treated
waste
To provide skilled technical manpower for Operation & Maintenance (O&M) of
both the water supply and sanitation systems
To provide proper solid waste management system, including collection,
transportation and disposal of waste
138
21.3.1.3 Vision and Strategies for Urban Renewal and Environment
Decongestion of the Old City Area and Improvement of Environmental Quality of the
city of Varanasi
To shift wholesale markets from core area for decongestion of area

To create integrated complex for common activities (such as Dying and Polishing)
for weavers
To provide space for new weavers near the integrated complex
Complete Pedestrianization
Paving of lanes in the Old city area
Provision of ‘Gaushala’ for stray animals causing nuisance and congestion in the
Old city area
Conserve natural environment of city, most importantly river and other water
bodies, by providing STPs and restrict inflow of sewage into it.
To implement more stringent norms for pollution control
To provide eco friendly fuel for vehicles like CNG and phasing out of old vehicles
To provide new and improve existing gardens, open spaces and green cover in and
around city
To create awareness among people towards pollution free environment
Restricting diesel generating sets in the city
Removal of slaughterhouse from the city area
Controlling noise pollution
21.3.1.4 Vision and Strategies for Heritage and Tourism
Preservation of Cultural Character with more encouragement of tourism in the city
To promote Varanasi as major tourist destination – Nationally and Internationally

Identification of heritage structures and integrating heritage conservation with
developmental activities
Upliftment of ghats and surrounding areas
To formulate circuit joining Sarnath, Ghats and Ramnagar fort
Development of Riverfront to attract more tourist
21.3.1.5 Vision and Strategies for Urban Governance and Finance
Development of institutions in the city to be more Proactive and Financially

Sustainable
Establish clarity of roles and responsibilities between different institutions

To provide proper training to staff for enhanced capacity building
Develop Double entry accounting system for fool-proof & better management of
accounts
Initiation of Public-Private Partnerships to fund large infrastructure projects
Provision of graded tariff/ tax system for various services offered by ULBs
Provision of GIS platform for control of theft and identification of problem areas
Rationalization of Property tax
Provision of e-governance for transparent system
139
21.3.2 Sub Mission II– Basic Services to Urban Poor
Enhanced quality of life for Urban Poor by provision of Basic Services
In-Situ and Ex-Situ development/Rehabilitation of slum dwellers

To provide adequate core amenities like water supply, street light etc
To provide community toilets for better sanitation
Reservation of 10% for development of any new housing stock for future migrants
on rental/ownership basis.
Registration and Regulation of all workers in the informal sector
140
Introduction
This section of the report will deal with identification of projects, their prioritization,
costing of each project and phasing in terms of implementation of projects; which is the
most important component of JNNURM. This forms the basis for preparation of Capital
Investment Plan (CIP) and also for suggesting Institutional Reforms required for proper
implementation of the projects. Identification of projects under each sector has been done
based on the following factors:
Rapid assessment of levels and condition of basic services,

Vision and Strategies adopted for the development of the city, which have been
evolved as “outcomes” rather than “inputs”
Future requirements in terms of normative standards, which helped understand the
gaps in the service delivery
All projects have been grouped into two categories i.e. Urban Infrastructure and
Governance, and Basic Services to Urban Poor as per JNNURM guidelines. Under
each sub mission, the projects are further classified based on Phase I (2006-2012) and
Phase II.
The Costing for the Projects under Phase I has been subdivided into two Categories:
First 2 years (Financial Year 2006 – 07 and 2007 – 08) and Rest of Phase I (2008 – 09
to 2010 – 12).
Prioritization of Projects
Sector specific key issues identified during the situation analysis have been taken forward
towards formulation of vision/ strategies and identification of projects. Various activities under
the broad head of a project have then been identified. Each project has been attached with a
weight vector by various stakeholders at the city and state levels, and the consultant himself,
which reflects intensity of requirement/ significance of a particular infrastructure project in the
city. There is another vector attached to each project, which is called as sign vector, meaning
that a project would have positive or negative impacts in terms of economic, social,
environmental and visual image/ appeal. The two vectors (sign vector and weight vector) taken
together help quantify priority of a project in a manner as follows –
1 n1 1 n2
– ∑an1 . – ∑bn2 = x
n1 a=1 n2 b=1
where,
a represents the sign vector,
b represents the weight vector, and
x is the aggregate score.
Using this equation, all projects have been valued on a ten-point scale against these
two vectors and the quantified priorities achieved. In Annex X11 are given classified
projects for each sector. Depending on the aggregate score achieved, all projects have
been put in three categories as follows:
Low priority – aggregate score of 0-3;
Medium priority – aggregate score of 4-6; and
141
High priority – aggregate score of 7 and above.
Projects that are required to be completed in Phase I and costs likely to be incurred into their
implementation have been determined. The share of contributions from the Centre and State
governments and the ULB under the heads of (i) urban infrastructure and governance (50%/
20% /30%), and (ii) basic services for urban poor (50%/ 50%), has been computed. Effort is
being made on the part of Consultants towards determining sources (revenues, grants, foreign
funding etc) to support the 30% funding to the projects from the concerned local body/
parastatal agency.
Figure 30: Graphical representation of the process of project

identification
Rapid
Assessment
Project Vision and
Identification Strategies
Future
requirements
Sub Mission I: Sub Mission II: Basic

Urban Infrastructure Services to Urban
and Governance Poor
In- Situ Ex- Situ

Upgradation Upgradation
Phase I Phase II
(2006 to 2012)
First 2 years Rest of Phase I

(2006 to 2008) (2008 to 2012)
142
22 Urban Renewal
The ultimate aim of the mission is to ease out pressure from the city by way of urban
renewal/ city regeneration. As a part of under renewal major emphasis has been given
to decongestion of old city area, by shifting industrial/commercial activities especially
wholesale activities from nonconforming to conforming areas i.e. from old city area to
outskirts of the city. Major projects identified to decongest the core area include
shifting of wholesale trade, paving the congested narrow lanes, proper traffic
management, pedestrianization of Dashasvamedh ghat, improvement of ghat areas,
etc.
Total amount estimated for Urban renewal is about Rs. 62.71 Crores. Identified
projects under Urban Renewal and Environment are given in Table 50 & Map 13.
Table 50: Projects Identified for Urban Renewal

Projects Location Benefits Sub Projects
Improvement of access Access road from Improvement of the most Hard landscaping of
to Dashashvamedh Ghat Gaudauliya to prominent axis leading to access road from
Dashashvamedh Ghat Ghats Gaudauliya to Ghat
Street lighting
Designed structures
for selective informal
sector
Street furniture
Storm water drains
Specially designed
waste bins
Provision of foot over Dashashvamedh Ghat to Smooth pedestrian -
bridge Maidagin movement
Reduced vehicular
and pedestrian traffic
conflicts
Widening of carriage Roads leading to Ghats Clearing of RoW Removal of
way of roads encroachments
Widening of carriage
ways
Provision of
designated spaces for
informal sector
Illumination and Street From Asi Ghat to Accessibility during --
lighting along Ghats Rajghat night
Safety
Enhance the tourist
attraction
Strengthening of existing Pandeypur Madi to Decongestion of Sheds
fruit Mandi and be strengthened existing Mandi Truck terminals
relocation of wholesale Relocation: Decentralization of Public utilities
Mandi Mohansarai activities and traffic Link to road network
Padav (Ramnagar) Proximity to
Wajidpur regional railway
stations
Provision of designed/ Along access roads to Provide proper --
143
synchronized signages prominent Ghats Direction to major

tourist points
Source of revenue
through advertising
Increase the urban
image of city
Gaushalas to avoid cattle Daniyalpur (Near Restriction on Shed for animals
from entering the core Cantonment) movement of Fodder House
city Old City animals on Ghats & Veterinary Clinic
bye lanes
Restricted movement
of Stray animals in
city
Traffic Management Old city Smooth traffic flow, Pedestrianization of
Plan reduced congestions stretches
Identification of one
way routes
Provision of bollards
to prevent entry of
two wheelers
Provision of
designated spaces for
informal sector
Strengthening of Ghat Ghats Safety of Pilgrims Rebuilding Ghat
steps steps
Reinforcing the
foundation of steps
to avoid further
subsidence
Provision of Jetty on the Along the major Ghats Create aesthetic look Construction of Jetty
Ghats on the Ghats with railings and
Increase in the space steps for access
for taking baths on Viewing deck
major Ghats Signages
Ease for tourists & Street furniture
pilgrimages for
taking boats
Need to be linked
with prepaid
counters.
Provision of 6 Slaughter Location to be decided Environmental Slaughter House
Houses by taking a radius of 4 Improvement with proper
km Increase cleanness of infrastructure
the area facilities
New modern shops Provision of proper
with refreeze facility bins for segregation
can be provided at of bio waste
the current site
Development of Small Between railway line and Promotion of Small Dyeing Industries
Industries Complex road to Bhadoi Scale Industries Thread finishing
Design and product industry
development center Other small scale
Handloom cluster industries related to
Development Handlooms
144
Scheme Crafts center for

weavers to display
their skills
Design and product
development center.
Railway Siding for
future development
Truck / Tempo stand
Public Facilities
CETPs
Table 51: Capital Investment and Phasing required for Urban renewal
URBAN RENEWAL
Phase I
Priority
First 2 years Rest of Phase I Total Cost
Projects Phase II (Stakeholder
2008 - (Lakh) Consultations)
2006- 07 2007- 08 2009 -10 2010 -11 2011-12
09
Improvement of access to High
Dashashvamedh Ghat 9 22.5 18.5 - - - - 50
Provision of Foot over Bridge 55 195 150 100 - - 500 High

Widening of carriage way of roads High
leading to Ghats 11 19 23 23 - - - 76
Illumination and Street lighting High
along Ghats 17 29 35 35 - - - 116
Strengthening of Existing fruit High

mandi & relocation of wholesale - - 758 1192 1181 - - 3131
mandi
Provision of designed/ Medium

synchronized signages 6 14 10 10 10 - - 50
Gaushalas to avoid cattle from High

entering the core city - 5 20 25 - - - 50
Traffic Management plan for old High
city - 18 45 37 - - - 100
Strengthening of Ghat steps 20 41 94 117 - - - 272 Medium

Provision of Jetty on the Ghats High
100 300 400 500 200 - - 1500
Provision of 6 Slaughter Houses Medium
- - 65 80 105 - - 250
Development of Small Industries High

Complex - - 26 44 90 16 - 176
Total Cost 163 503.5 1689.5 2213 1686 16 - 6271

Fund requirement for First 2 666.5
years
Fund requirement for Rest of 5604.5
Phase I
Say Rs. 62.71 Crores
145
146
23 Heritage and Tourism
Varanasi, is known for its cultural heritage, due to the presence of ghats and kunds.
A major emphasis has therefore been given on development of ghats, which includes
provision of lighting/illumination of ghats, provision of tourist information center, pre
paid stand for boat riding, etc. (Map 14) Total cost estimated is about Rs. 34 Crores,
towards the development of heritage areas. Table 52 shows the projects identified for
heritage development, their location, targets achieved, justification and facilities/sub
projects.
Table 52: Projects identified for Heritage Sector

Projects Location Benefits Facilities / Sub
Projects
Provision of Tourist Sarnath Tourist Orientation and Booking offices for:
Information Center Cantonment railway promotion of important Hotels
station destinations in Varanasi Transport
Bisheshwamesh Information office
Ghat Promotion centers
Upgradation of Kunds Ramkatora Kund Revival of Varanasi Desiltation of Kunds
and Wetlands Karna Ghanta Kund as a city of Kunds Development of
Kardhameshwar and Gardens landscaped greens
Kund Revival of around the Kunds
Kurukshetra Kund traditional water wherever possible
Pisaach Mochan bodies Plantation on access
Kund Replenishing roads to Kunds and
Pittar Kund Ground water around the Kunds
Pushkar Kund recharge (wherever possible)
Sankul Dhara Kund Tourist attraction Construction of silt
Charka Tal chamber to
Wetlands under minimize silt
threat entering the Kunds
during rains
Elevation of Kund
Boundary
Pucca steps along
Kund Boundary
Public Toilets
Street Lighting
Street Furniture
Improvement of Galis Lanes leading to Tourist attraction Painting of facades
leading to Ghats prominent Ghats Unique identity of along the lanes in
each Ghat separate colors
Traditional
paintings on
identified spots
Provision of KC
drains
Façade
improvement
Paving of lanes
Street lighting
Drainage
Street furniture
147
Pre paid stands for boat Prominent Ghats Better management -

rides Uniformity in prices
paid
Renovation and All ghats Tourist Attraction Even raiser and
Beautification of Ghats Heritage treads on Ghats
conservation instead of existing
steep risers and
narrow treads
Strengthening of
steps in areas of
subsidence
Provision of public All significant Ghats Better Hygiene Public toilets
utilities Environmental Changing rooms
Improvement
Public address system Major ghats -- --
Light and Sound Show -- Awareness regarding the --
for the Ghats and Old significance and history
city of the Ghats and the city
Development of Panch Panchkroshi road from Heritage Walkway Development of
Kosi Yatra Route Rajghat to Asi Ghat along Existing Yatra dedicated pilgrim
route avenue on
Tourist attraction Panchkroshi road
Improved facilities Provision of public
along route for amenities en-route
pilgrims Maintenance of
destinations along
the Yatra route
Better Signages
Establishment of Trans Ganga Area Tourist attraction Planned layout
tourism village Designed huts
Tourist and public
facilities
Provision of signages All significant heritage Tourist orientation -
and tourist areas Improved urban image
Night Lighting / Tulsi Manas Mandir Highlighting prominent -
Illumination Sankat Mochan Mandir heritage structures
Significant Heritage
structures
148
Table 53: Capital Investment and Phasing required for Heritage

HERITAGE & TOURISM
Phase I
Priority
2008 - 2009 - (Lakh)
2006- 07 2007 08 2010 -11 2011-12 Consultation)
09 10
Provision of Tourist Information 7 7 7 - - - - 21
Center at Cantt Rly Stn, Sarnath
& Bisheshwamesh ghat High
Upgradation of Kunds and 150 50 75 75 100 - - 450
Wetlands High
Improvement of gali leading to 130 70 70 70 60 - - 400
ghats High
Pre paid stands for boat rides 7 7 - - - - - 14 Medium
Renovation & beautification of 280 60 150 150 200 - - 840
ghats High
Provision of public conveniences 100 50 50 50 50 - - 300 High
Provision of public address 3 3 - - - - - 6
System (Sound) Medium
Provision of light and sound 300 200 100 100 - - - 700
Shows Medium
Development of Panch Kosi Yatra 148 100 102 100 - - - 450
Route Medium
Establishment of Tourism Village - 50 50 50 - - - 150 High
Signages 20 20 20 - - - 60 High
Total Cost 1145 617 624 595 410 - 3391
Fund requirement for First 2 1762
years
Fund requirement for rest of
Phase I 1629
Say Rs. 34 crores
149
150
24 Water Supply
Water supply sector shall involve an overall investment of Rs. 381.35 Cores. This
includes renovation/rehabilitation/reorganization of existing facilities and
Construction of new facilities. Renovation rehabilitation includes distribution
system in 16 zones; damaged rising mains, reservoirs, booster pumps, existing water
treatment plant etc. whereas in provision of new facilities will include construction
of intake well near Garhwa ghat, construction of new WTP of 100mld capacity at
Garhwa ghat, construction of storage reservoirs, rising mains and distribution
system. Construction of 200 MLD capacity water treatment plant for trans Varuna
area. Intake well of 225 MLD capacity has been proposed at Chaubepur at d/s of
river Ganga and water treatment plant has been proposed in the central zone of
Trans Varuna. It would include construction of rising mains, distribution system and
electromechanical items like pumps and motors, electrical panels, transformers etc.
Components other than water supply system such as institutional development

program, cost towards detail engineering and project management etc, which is
necessary for proper operation and management of the system. A detailed list of
projects with their location, targets that will be achieved by provision of these
projects, justification of each project and facilities/ sub projects that will form the
part of main project are given in the following table.
Table 54: Projects Identified under Water Supply component

Projects Location BenefitsFacilities / Sub
Projects
RENOVATION/ REHABILITATION & REORGANISATION OF FACILITIES
Reorganization and Bhadeni Intake works Increase water intake Installation of New
strengthening of intake from the perennial Pump sets
works, repairing/ source 11KV transformers
replacement of old Reduced Operation and other electro-
pumps and installation and Maintenance mechanical
of new pumps to cost of existing equipments
enhance the pumping pumps Repairs of pump
capacity up to 350 mld Increased capacity of house/intake works
(App) including intake pumps (Civil work)
Electrical maintenance Reduction in losses Misc. items
items, complete in all at extraction
respect Existing pumps are
out dated and are
running on 3 KV
Regular maintenance
of existing pumps
leading to
interrupted water
supply to the city
151
Replacement of old Bhelupur Water Works Increased water Provision of booster

pumps and motors at supply and pressure pumps motors and
Bhelupur Water works head generators
Reduced dependence
on ground water
Extract more water
from the perennial
source and reduce
ground water
abstraction
Rehabilitation of 60 MLD WTP at Improved treatment Rapid gravity Filters
existing water works Bhelupur Water Works capacity Clarifloccutators
(60MLD) WTP not in working Clear water
condition reservoirs, etc.
Provision of Settling
tanks
Replacement of filter
media
Construction of Extension areas Enhanced storage Overhead tanks under
Reservoirs capacity Ground reservoirs
With increase in
water treatment
capacity and to
improve the supply
level, storage will be
required
Conversion of old slow Bhelupur water works Enhanced storage Change of filter beds
sand filters of size 60m capacity
x 30m x 2m into clear Enhancement of Conversion of filter
water reservoir to Storage capacity bed/filter house in to
enhance storage since the slow sand storage tanks
capacity. filter is not in use
Distribution System in Entire city Adequate water Removal of old
16 zones, replacement supply to the city damaged pipes by
of old, damaged and in due to reduction in new one
adequate pipes by new losses Replacement of
one. Clean potable water small and
supply to the city inadequate pipe by
Distribution system bigger diameter
is very old and pipes
deteriorated Reorganization of
Avoid heavy losses pipe network
and contamination
of water
NEW CONSTRUCTIONS
Construction of Raw Garhwa ghat Enhanced raw Setup of new water
water intake works of water intake intake works
110 MLD Required for the Pump sets
future population Electromechanical
and reduction of equipments etc
ground water usage
152
Provision of new 100 Garhwa Ghat Enhanced treatment Construction of

MLD Water Treatment capacity to meet treatment plant
Plant the additional & Clear water storage
future demands reservoir cover
Future requirement head & under
of the city ground
Reduced Rising Main
dependance on
ground water
Construction of Raw Chaubeypur Enhanced raw Setup of new water
water intake works of water intake intake works
225 MLD Required for the Pump sets
future population Electromechanical
and reduction of equipments etc
ground water usage
Provision of new 200 Trans Varuna Enhanced treatment Construction of
MLD Water Treatment capacity to meet treatment plant
Plant the additional & Clear water storage
future demands reservoir cover
Future requirement head & under
of the city ground
Reduced Rising Main
dependance on
ground water
Provision of Unserved areas Access to clean Laying of new
distribution lines in potable water to all Distribution System
unserved areas Lack of water Interconnection with
supply network existing system
Upcoming
peripheral
developments
Rising Mains for raw Intake wells to Pumping of raw Rising mains
water and clear water treatment plants water from intake
supply Treatment plant/ works to water
clear water storage works
tanks to overhead Pumping of treated
tanks clear water to
overhead storage
tanks and pipes.
Enhanced treatment
capacity will
require adequate
facilities
Storage/ Service Extension areas and Enhanced storage Construction of OHTs
reservoirs at different unserved areas capacity and underground
required locations With increase in storage reservoirs
water treatment and
supply level more
storage will be
required
153
Phasing out of existing -- Reduction in the --

deep tube wells after extraction of
completion of their ground water
useful life To reduce the
dependency on
ground water
Table 55: Capital Investment required for Water Supply Projects
RENOVATION/ REHABILITATION & REORGANISATION OF FACILITIES

Phase I
Priority
2006- 2007- 2008 - 2009 - 2010 - (Lakh)
2011-12 Consultation)
07 08 09 10 11
Existing Raw water pumping plants - - - - -
reorganization and strengthening of
intake works, repairing,
replacement of old pumps and
installation of new pumps to
enhance the pumping capacity up to
350 mld (App) including E/M
items, complete in all respect 250 250 500 High
Replacement of old pumps and - - - - -
motor at Bhadeni Intake works 50 50 100 High
- - -
Water treatment plant (Settling
tanks/, clariflocculators etc.) Rapid
gravity filter of existing plant, this
includes repairing of system and the
replacement of filter media 100 150 150 100 500 High
Storage Reservoirs - 50 100 - - - - 150 High
- - - -
Conversion of old slow sand filters
of size 60m x 30m x 2m into clear
water reservoir to enhance storage
capacity of Bhelupur water works
by 36 mld, 10 nos 150 250 350 750 High
-
Distribution System in 11 zones,
replacement of old, damaged and in
adequate pipes by new one. Good
conditioned, old pipe to be provided
at the required places including
civil works. 500 1000 1000 1000 300 3800 High
Rising mains, replacement of old, - - - -
damaged and in adequate pipes by
new one 50 50 50 150 High
Tube Wells 450 350 - - - - - 800 High
Booster pumps, pipes and - - - - -
accessories for clear water as per
design requirement. 100 100 200 High
O&M of Existing water works 450 450 500 500 500 - - 2400
Sub Total 1 2000 2600 2150 1,700 900 0 0 9350
154
CONSTRUCTION OF NEW FACILITIES

Phase I
Total Priority
Projects First 2 years Rest of Phase I Phase II Cost (Stakeholder
2008 - (Lakh) Consultation)
2006- 07 2007 08 2009 -10 2010 -11 2011-12
09
Construction of Intake well near - - -
Garhwa Ghat of 115 mld capacities -
with all required E/M works
including power sub station as per
design 200 500 500 1200 High
Construction of 100.00 mld water - - - -
treatment plant at as per the detailed -
design. 500 900 1400 High
Construction of 200MLD water -
treatment plant including intake -
works, treatment units of 200MLD,
rising main and distribution systems,
etc. as per detailed design for trans
Varuna area including staff quarters
in Varuna area 800 1600 3000 2400 200 8000 High
- - - -
Rising main, for raw water and clear -
water as per the detailed design 250 400 650 High
Rising mains to pump raw water from - - -
intake works to treatment plant and -
treated clear water to OHTs at
different locations in the city as per
the detailed designfor Cis Varuna
Areas 500 1500 1500 3500 High
-
-
Distribution system including all the
accessories, Public Connections,
water meters and staff quarters etc. 1000 1500 1500 1500 500 6000 High
Replacement of old pumps and other - - - -
mechanical equipments of water -
supply system 50 100 150 High
- - - -
Installation of Booster Pumps as per -
the requirements and detailed design
including electro-mechanical items,
complete in all respect 100 150 250 High
- - -
Storage reservoirs and pump houses
-
as per the detailed design. 500 1500 1000 3000 High
Sub Total 2 1800 3100 5700 8300 5250 0 0 24150
155
OTHER FACILITIES
Phase I
Total Priority
Projects Phase II Cost (Stakeholder
2006- 07 2007 08 2008 -09 2009 -10 2010 -11 2011-12 (Lakh) Consultation)
Rain water harvesting arrangement - -

(L.S.) 500 250 250 500 - 1500 High
- - -
Power Connection Charges 300 400 300 - 1000 Medium
Inventory of the existing scheme @ - - -
Rs. 2000.00 per km 200 500 500 - 1200 Low
Layout planning, designing, and - - - - -
preparation of DPR (Lump Sum). 35 - 35 Low
Generator set to provide supply - - - -
during the no supply Hours of the -
electricity 150 150 300 Medium
-
Unforeseen items 20 20 20 20 20 - 100 Low
- - - -
Construction super vision 100 100 - 200 High
Training & Capacity building, asset -
creation, and Information, -
Education & Awareness 50 100 50 50 50 300 Medium
Sub Total 3 955 1320 1220 970 170 0 0 4635
GRAND TOTAL (1+2+3) 38135
Fund requirement for First 2
years 11775
Fund requirement for Rest of
Phase I 26360
156
25 Sewerage and Sanitation
Projects identified under sewerage are categorized as renovation/rehabilitation and

provision of new facilities. The sewerage network covers only 30%of the city, an
emphasis has been given for the provision of branch and trunk sewers to cover the
entire city by underground sewerage system.
As part of proposals, short-term and long-term measures are given, which includes
renovation and rehabilitation of existing facilities and construction of new facilities.
Total investment required for sewerage system is estimated at about Rs. 864.40
crores. A detailed list of projects are given in Table 56:
Table 56: Projects Identified for Sewerage Sector
Projects Location Benefits Facilities / Sub Projects

Renovation, Where there is a need, Adequate, Improved Rehabilitation,
rehabilitation and through out the city and sustainable renovation and
reorganization of sewer infrastructure. reorganization of
existing sewerage system Improved collection branch and lateral
of the city and transportation of sewers
sludge. Cleaning of existing
Improved and clean sewers
environment Renewal and up
Avoid water logging gradation of existing
in the city. community latrines
Reduced seepage to and bathrooms.
ground. Trunk sewers,
Facilities needed for Pumping stations,
enhancement of treatment plants,
existing as well as Rising mains,
proposed sewerage Electro-Mechanical
facilities works etc. that has
To stop pollution of not been taken in
Rivers Ganga and JICA. (Cost is based
Varuna. on the preliminary
Avoid seepage of calculations)
sewage into ground
water
Enhancement of life
standards
157
Construction of new For the extension areas Complete coverage Construction of

facilities of the city by branch and lateral
Present areas of the city, underground sewer sewer only, which is
wherever there is network not considered in
necessity Effective collection JICA Master Plan.
and transportation Interconnection of
and disposal of proposed sewer with
sewage to treatment existing system
plant Extension of relief
Less pollution of trunk sewers
rivers like Ganga and Provision of rising
Varuna mains, main
Upliftment of pumping stations,
standard of livening wherever required as
in slum areas of the per the design
city
Avoid water logging Construction of
in the city community toilets
Facilities will be and bathrooms for
needed for slum dwellers in
enhancement of existing areas as well
existing as well as as for the new areas
proposed sewerage Provision of Diesel
facilities generators to operate
To stop pollution of the system during
Rivers Ganga and non supply hours
Varuna by avoiding Construction of new
disposal of sewage in 200 MLD STP Rising
the river Mains and trunk
Prevent ground water Sewers proposed under
contamination due to JBIC
seepage of sewage
water
Complete coverage
of the city by
underground sewer
network
Development/ For the entire city Central monitoring Complete package of
introduction of GIS and management of GIS system
system system including including inventory,
leakage detection digitization of
Make system more network, creation of
Transparent and different maps etc.
accessible to every Proper training to
citizen of Varanasi staff of Jal Nigam for
Present system will better operation and
be enhanced and maintenance of the
better facilities will system
be provided to the
citizens of
Varanasi
158
Inventory of the existing For the entire city Complete database Inventorisation of the
scheme, Layout of the assets created system / collection,
planning, designing, and till date and also for transportation network
preparation of DPR the assets of the and treatment system.
future
Implementation of Recording and analysis
project will create a of existing infrastructure
complete database of of sewerage and
the system and maps sanitation system
can also be prepared
Training & Capacity For the entire city Proper knowledge Training programs
building, Information, about the operation for the staff on
Education & Awareness and maintenance of different aspects of
creation program the system operation and
Awareness among maintenance
people, towards Roadside plays and
pollution free future distribution of
Need to educate pamphlets towards
people towards awareness program
pollution prevention Conducting
of Rivers like Ganga workshops in schools
and Varuna to create awareness
among young
children
Procurement of
required equipments
Plays to spread
awareness amongst
the community
159
Table 57: Capital Investment and Phasing required for Sewerage projects
RENOVATION/ REHABILITATION AND REORGANIZATION WORKS
Phase I
Total Priority
Branch sewers and laterals 1000 2000 2000 - - - - 5000 High

- - - - -
Trunk sewers, Pumping stations,
treatment plants, Rising mains,
E/M works etc. that has not been
taken in JICA.(Cost is based on
the preliminary calculations) 500 1000 1500 High
Existing sanitation facilities like - - - - - -
community latrines, and
bathrooms, etc. 50 50 High
Sub Total 1 1550 3000 2000 0 0 0 0 6550 High
NEW CONSTRUCTION OF FACILITIES
Phase I Total Priority
-
Branch sewers and laterals,
pumping plant wherever required,
E/M items complete in all for the
complete city 2000 5000 5000 5000 10000 27000 High
Staff quarters @ 3%of total - - - - -
works. 500 500 1000 High
Construction of 200MLD STP - -
Rising Mains and trunk Sewers
proposed under JBIC 2000 10385 10385 10385 10385 43540
Sub Total 2 4500 15885 15385 15385 20385 - 71540 High
OTHER FACILITIES
Phase I Total Priority
Mechanical equipment needed for - - - - High
the cleaning of Sewers (L.S.) 150 150 100 - - - - 400
Inventory of the existing scheme, - - - - -
Layout planning, designing, and
preparation of DPR 20 20 40 High
Training & Capacity building, - -
asset creation, and Information,
Education & Awareness @1.5%. 80 80 80 160 160 560 High
Misc. items, contingencies, T&P, - -
OH &CP @ 20% complete in all. 1050 1050 1050 2100 2100 7350 Medium
Sub Total 3 1300 1300 1230 2260 2260 - - 8350
TOTAL COST (1+2+3) 7350 20185 18615 17645 22645 - - 86440
years 27535
Phase I 58905 86440
GRAND TOTAL Say Rs. 864.40 Crore
160
26 Storm Water Drainage
Presently there is no separate system for storm water drainage, which creates havoc
during the rainy season. Planning designing of drainage system calls for prepreaing
an inventory of existing drains, provision of new drainage network, mechanical
equipments required for cleaning drains, etc. Total estimated cost for Drainage
system is about Rs. 305 Crores. A detailed list of projects are given in Table 58:
Table 58: Projects Identified for Drainage Sector

Rehabilitation/ renovation • Old city Proper drainage Augmentation and
of existing drains and • Central city network will be improvement of all
separation from sewerage • Other areas with placed in the city the existing
system unlined drains Avoid water secondary drains.
logging
Separate water
supply and
sewerage network
Reduced ground
water
contamination
Construction of new Entire city, wherever Proper drainage Lining of the
drains in unserved areas there is a need of drains network unlined/kacha
and areas wherever there Separate system will secondary drains
are no drains be in place (along the road and
Reduction in seepage street sides)
of drain water in to Lining of the unlined
the ground primary Drains/Nalas
Reduction in ground Construction of new
water contamination secondary drains
Reduction of pressure along the road and
on existing water street sides
treatment plants Construction of
Reduced water pumping stations to
logging pump water from
low lying areas
Augmentation and
improvement of all
the existing primary
Drains / Nalas and
realignment
wherever required.
Reduced burden on
sewage network
161
Table 59: Capital Investment and Phasing required for Drainage projects
STORM WATER DRAINAGE

Phase I
Total Priority
First 2 years Rest of Phasse I
Total cost of complete -

drainage network including
rehabilitation, renovation of
existing drainage, construction
of new drains, pumping
system etc (complete in all
respect) 1500 5500 5500 6000 6000 5500 30000 High
Mechanical equipment needed - - - - -
for the cleaning of Drains
(L.S.) 50 50 100 Medium
Inventory of the existing - - - - - -
drains, Layout planning,
designing, And preparation of
DPR (Lump Sum) 50 50 Medium
Total 1600 5550 5500 6000 6000 5500 - 30150
Construction super vision @ - -
1.00% 45 45 45 90 90 315 High
Training & Capacity building, - -
asset creation (L.S.) 7 7 7 14 15 50 Low
Total Cost 1652 5602 5552 6104 6105 5500 0 30515
years 7254
Fund requirement for Rest
of Phase I 23261
162
27 Solid Waste Management
Major component of investment in solid waste management are primary and

secondary collection infrastructure (dustbins and vehicles), transportation and
sanitary disposal facilities. Estimation of various components is based on CPHEEO
manual for Municipal solid waste management. Presently per capita solid waste
generated is 425gm and the total waste generated is about 600MT. Taking into
account the annual growth rate in per capita solid waste generation as 1.33% (as per
Planning Commission), per capita waste generation in 2031 would be about
591gm/capita/day. As per the population projections made in chapter 3, total
population of the city would be 25,74,365 in the year 2031 and total waste generated
would be about 1522MT.
Capital investment required is estimated for infrastructure requirement to collect and

transport waste generated in future i.e. 1522MT. In addition, investment required for
setting up sanitary engineered waste disposal facility is also estimated. Total
estimated cost for solid waste management is about Rs. 43.08 Crores. A list of
identified projects under Solid waste management is given in Table 60. Details for
solid waste management equipment, etc. are given in Annex IX.
Table 60: Projects Identified for Solid Waste Management Sector

Projects
Provision of collection On major roads, Minimization of Small collection bins
bins markets, intersections litter on streets Platform for dustbins
and throughout the city Proper collection of
waste
Presently there are
Dustbins in the city
and the litter is
thrown everywhere
Incinerator for hospital Near Bharthara Treatment facility -
waste, complete with for biomedical
chimney and civil waste
works etc. (100kg/hr. Segregation and
capacity) proper treatment of
biomedical waste
Provision of sanitary Baniyapur (On Sanitary waste Segregation facility
landfill site Azamgarh Road) disposal
Ramna (Near Reduced ground
Byepass) water pollution
Proximity to ring
road
Out of planning
area boundary
Proposed landfill
site as per Master
Plan
163
Provision of Baniyapur (On Reduced burden on Vermi composting

composting site for Azamgarh Road) landfill pits
decomposition of waste Ramna (Near Byepass) Composting of Concrete plinth to
through wind rows and waste from avoid leaching
vermi composting vegetable, fruit and
grain markets
Near proposed
landfill site
Manure can be sold
at subsidized rates
to farmers in the
vicinity
Covered trucks for -- Hygienic waste --
waste collection transportation and
management
Palletization of waste As decided by MCV Reduced pressure --
for use as industrial on Landfill site
fuel Minimal
involvement
required from
MCV
Site identified by
MCV
Segregation and -- Better solid waste IEC and mass
storage of waste management awareness
--
164
Table 61: Capital Investment and Phasing required for Solid Waste Management
SOLID WASTE MANAGEMENT

Phase I
Total Priority
First 2 Years Rest of Phase I
2010 - (Lakh) Consultation)
2006- 07 2007 08 2008 -09 2009 -10 2011-12
11
Dumper Placer Containers of 4.5 -
cubic meter capacity each 20 40 40 60 40 200 High
Incinerator for hospital waste, - - - - -
complete with chimney and civil
works etc. (100kg/hr. capacity) 50 50 100 High
Development of landfill sites 50 100 50 - - - - 200 High
Compost plant with all - -
accessories 0 100 200 250 150 700 High
Mechanical Equipments like - -
Dumper Placer - -
with handle
Tractors - -
Hydraulic - -
tractor tipping trolley
Platforms and - -
ramping for tipping
trolleys
Skip Lifter for 50 250 250 250 200 - - 1000
construction debris
Skips of 7 cubic - -
meter capacity
Hand Carts, - -
JCV, Tipper, Hopper,
Loaders
Medical waste - -
collection vehicle with
fully equipped. etc High
Depot for the vehicle - 25 25 25 - - - 75 Medium
Misc. and unforeseen items 5 5 6 5 7 - - 28 Medium
Peletisation 50 450 550 550 300 - - 1900 High
Total 225 1020 1121 1140 697 0 0 4,203
Capacity building and awareness - -
programs, @ 2.50% 5.625 25.5 28.025 28.5 17.425 105.08 Medium
Grand Total
231 1,046 1,149 1,169 714 0 0 4,308
years 1,276.13
Phase I 3031.95
165
28 Urban Transport
The projects identified under urban transport are estimated to cost Rs 838.61 Crores.
The identified projects include provision of underground parking at identified parks,
construction of flyovers, improvement of road geometrics and signalization of
intersections, etc. (Map 15). Proper implementation of the projects will lead to
availability of parking spaces throughout the city, specifically core area, along with
decongestion of core area, improved traffic movement, creation of pedestrian friendly
environment (especially in core area), reduction in traffic jams and accidents, increased
capacity of roads, and overall better management of traffic throughout the city.
A detailed list of projects with their location, targets that will be achieved by provision
of these projects, justification of each project and facilities/ sub projects that will form
the part of main project are given in the Table 62.
Table 62: Projects identified for Urban Transport

Construction of Ring Road
Construction of Ring Provision of outer ring Reduction of Provision of flyovers
Road road connecting NH2, through traffic over railway lines and
NH56 & NH29 Reduced traffic on arterial roads (NH&SH)
NH2
Direct access to
traffic of Trans
Varuna area
(without entering
central city)
Construction of new roads
30 m wide road Panchkosi road Use of existing Construction of
(extension of Towards Mughal Sarai Urban resource in bridge over Ganga
Panchkosi road) congested area downstream of
existing Malviya
(railway) bridge
Widening of roads
Widening and The roads, which are Increased capacity Resurfacing of
improvement of the maintained by MCV of roads. roads.
roads (100 nos.) Improved urban Widening
aesthetics
Flyovers
Construction of 7 1. Pandeypur Increased capacity of --
Flyovers at 3 Intersection intersection and
intersections and 4 2. Lahartara to smooth traffic flow
railway crossings Chauka Ghat.
3. RathYatra
ROB/RUB
4. Hassanpur Rly
Crossing
5. Kazakpura Rly
Crossing
6. Shivpur Rly
166
crossing
7. Ashapur Rly
Crossing
Construction of Subways
Construction of sub-way At GT Road between Smooth vehicular and -
at GT Road Cantt Railway Station pedestrian movement
and Cantt Bus terminal and safety
Multilevel parking
Provision of 9 multilevel 1. Beniya Park Decongestion of old Provision of
parking with integrated 2. Maidagin/Town and central city underground parking
Parking for Rickshaws Hall below parks
and Mini buses 3. Machodri Park Proper maintenance of
4. Shaheed Park parks and parking areas
(Sigra) through PPP
5. Commissionaire /
Collectorate
6. Chitranjan Aprk
near
Dashashvamedh
Ghat
7. Railway Station
8. Cantt. Bus
Terminal
9. Saraswati Cinema
Traffic Management
Traffic Management Core city Decongestion of old Traffic management
Plan for Old City area. city schemes (one-
way.etc)
Only cycle
rickshaws to be
permitted
Intersection improvement
Geometric 48 intersections (Annex Smooth flow of traffic --
improvement of 48 X) and reduction of
identified intersection accidents.
Signalization of 6 intersections Improved Traffic --
Junctions management
Bus terminals
Capacity augmentation On G.T Road infront Integrated facility of Efficient traffic
of the existing Cantt of Railway station. bus and railway for the management plan of the
Bus Terminal passengers. entire area with proper
integration with railway
station.
Two New bus terminal 1. Towards NH-56 Shifting the load from Development and
2. On the Sarnath the cantt Bus terminal construction of the
Road decentralization terminal.
concept
Truck terminals
Capacity augmentation Pahadia fruit market Better management Extension of existing
and improved facility.
167
efficiency.
Relocation of the On NH-2 towards For better traffic Construction of new
temporary truck Mugalsarai side. management and facility integrated with
terminal from decongestion of the wholesale market.
Visheshwar ganj core area. Reduction in
accidents.
Provision of new On NH-56 To decentralize the Construction of new
Truck terminal wholesale market facility integrated with
activities and better wholesale market
traffic management.
Provision of new At the intersection of To decentralize the Construction of new
Truck terminal Mugalsarai bypass and wholesale market facility integrated with
old G.T Road. activities and better wholesale market
traffic management.
Provision for Public Transport
Bus terminals for Routes already Provision of efficient Provision of bus Stops
public transport to be identified. (Annex XI) and cheap transport Street Furniture at Bus
provided at 4 locations 1. Mughal Sarai system for city stops
2. Babatpur Kiosks
3. Chaubepur and
4. MohanSarai
One workshop for At Mohan Sarai or Better maintenance of --
Public Transport Babatpur vehicles
Street Lightning
Provision for street Lighting at Ghats Reduction in accidents High mast light
Lightning Lighting of and improved
approach lanes aesthetics
Lighting on main
roads
High mast and
semi high mast at
different crossings
Hydraulic ladder
and jeep ladder for
maintenance work
Street line wire
with automatic
switch.
Construction of Bridges
Construction of 2 Samne Ghat Improved access to -
bridges Balua Ghat Ramnagar area
168
Table 63: Capital Investment required for Urban Transport projects
Transport
Phase I
Total Priority
Construction of Ring Road 0 500 1000 2000 6500 - - 10000 High

Widening and improvement of - -
Nagar Nigam Roads 500 1000 1500 1500 1500 6000 High
Construction of 7 Flyovers at 3 - -
intersections and 4 Railway
Crossings 100 1000 3000 5506 5394 15000 High
Construction of sub-way at GT - - - -
Road between Cantt Rly Stn and
Cantt Bus terminal 10 190 200 400 High
Provision of 11 multilevel parking - -
with integrated Parking for
Rickshaws and Mini buses 300 3300 4300 4300 4300 16500 High
Traffic Management Plan for Old - - - - -
City area. 10 15 25 Medium
Geometric improvement of 48 - - - - -
identified intersection 378 422 800 High
Signalization of 6 intersections - 36 - - - - - 36 Medium
Capacity augmentation of the - -
existing Cantt Bus Terminal, Two
New bus terminal 154 558 550 672 566 2500 High
Capacity augmentation of Pahadia - -
Truck terminal & Provision of 3
new Truck terminal.
216 836 855 893 700 3500 Medium
Bus terminals for public transport - -
to be provided at 4 locations.
425 1187 1288 250 250 3400 High
Provision for street Lightning 202 767 731 200 100 - - 2000 Medium
30.Mts wide Road (Extension of - -
Panchkoshi Road including bridge
on Ganga) 988 3082 5425 4505 1000 15000 High
Two Bridges on Ganga at Samne - -
Ghat & Balua Ghat 500 1500 2000 3000 1700 8700 High
Total 3395 14344 21286 22826 22010 0 83861
years 17739
Phase I 66122
Say Rs. 838.61 crores
169
170
29 Environment & Beautification:
The river eco-system is facing pressure from the increasing population in the
riverfront heritage zone and also from other parts of the city from where sewage flows
directly into the river. It is also facing pressure from the pollutant agricultural run-offs
from villages around the city. However, approximately 80% of the pollution in River
Ganga at Varanasi is urban waste. Around 60% of the total overall pollution
concentrates in the Riverfront and nearby Old City heritage zone of Varanasi. Due to
contamination of water, water borne diseases are common in this area. Increasing
population is over burdening the carrying capacity of urban environment; the river
ecosystem and unplanned mass tourism could potentially have a disastrous impact on
the cultural carrying capacity of the old city center and the river ecosystem.
Ultimately there is an urgent need to re-vitalize the city with re-establishing the
ecological ordering by promoting civic sense and active public participation.
Total amount estimated for Environment and beautification is about Rs. 12.22
Crores. Identified projects under Environment and Beautification are given in Table
64 and Map 16.
Table 64: Projects Identified for Environment & Beautification

Environmental Flood Plains of River Improved condition Use of bio fertilizers
Improvement of Varuna of water body and pesticides in
Varuna Protection of agricultural lands on
catchment area to the the banks of Varuna to
river reduce eutrophication
levels in the river
Creation of green
buffer along Varuna for
better soil retention (to
reduce soil erosion)
and reduced siltation of
the river bed
Afforestation along
banks with deep-rooted
trees, wherever
possible.
Provision of waste
water treatment with
promotion of
Vermiculture & Reed
bed technology
Protection and
conservation of
tributaries to Varuna
Environmental Flood Plains and Improved health of Plantation along banks
Improvement of Asi Catchment area of Asi water body of Asi, wherever
possible
Diversion of waste
water drains entering
Asi
Provision of waste
171
water treatment with

promotion of
Vermiculture & Reed
bed technology
Protection and
conservation of
tributaries to Asi
Tree Plantations / Along major roads Green buffer Roadside tree
noise buffers and in Trans Varuna Reduced air and plantation (wherever
area (wherever noise pollution possible)
Possible) Improved Plantation on medians
Passenger Terminal environmental
Truck Terminal quality of roads
Ring road
Byepass
Water harvesting Water logging points at Environmental Recharge pits
pits at major water city level incl. BHU improvement Sedimentation tank
logging points Campus Sieving to avoid entry
of solid waste
Beautification and City level parks Improved Quality of Awareness
Upgradation of Open spaces in the core life programmes for school
existing parks city & along Ghats children and women.
Lighting
Street Furniture
Landscaping
Kiosks in major parks
Underground parking
below major parks.
Awareness -- -- Mass Awareness
Programmes campaigns
Awareness
programmes for slum
dwellers, school
children
172
Table 65: Capital Investment and Phasing required for Environment & Beautification
ENVIRONMENT & BEAUTIFICATION

Phase I
Total Priority
- -
Environmental
Improvement of Varuna 108 108 138 246 177 777 High
- -
Environmental
Improvement of Asi 16 16 21 38 27 118 High
Tree Plantations/ noise
buffers 15 30 30 30 30 15 150 High
- - - -
Water harvesting pits at
major water logging points 14 17 15 46 High
Beautification and - -
Upgradation of existing
parks 14 16 20 20 30 100 High
Awareness programs @ - - -
2.5% 5 6 10 10 31 High
Total Cost 158 190 236 359 264 15 0
Fund requirement for First
2 years 348
Fund requirement for Rest
of Phase I 874 1222
Say 12.22Crores
173
174
30 Basic Services to Urban Poor
In the following section, focus has been made on integrated development of slums
through projects for providing shelter, basic services, and other related civic amenities
and utilities. It includes slum improvement and rehabilitation projects, provision of
water supply, sewerage, drainage, community toilets/baths and identification of areas
for sites and services schemes at affordable costs for slum dwellers/urban
poor/EWS/LIG categories. Efforts have also been made towards improving
environmental conditions and solid waste management in slums.
Total cost estimated for basic services to urban poor is about Rs. 516.47 Crores. A
detailed list of identified projects, their location, targets achieved, justification and
facilities/sub projects is as shown in Table 66:
Table 66: Projects Identified for Basic Services to Urban Poor
IN-SITU UPGRADATION
Projects
Provision of Housing Slums identified by Improved quality of life Upgradation of
DUDA existing housing
stock
Provision of new
and Pucca DUs
Area
Redevelopment
Provision of
subsidized building
material
Upgradation
through PPP
Paving of roads/ paths in Slums identified by Better quality of life --

slums DUDA in slums
Provision of Water Improved Provision of stand
supply environmental posts
conditions Provision of water
supply lines and
connections
Sewerage Provision of sewer lines
and connections in
slums
Provision of proper Provision of Pucca
drainage drains
Provision of street Slums without street Better quality of life -
lighting lighting (identified by in slums
DUDA) Safety
175
Construction of Identified slums (by Enhanced Educational

Community Centres DUDA) with no community facilities
Community Centres interaction Health facilities
Access to health and Space for social
education facilities gatherings
Augmentation of Existing Community Educational
existing Community Centers in slums facilities
Centres Sunderpur Health facilities
Baduapura
Tulsipura
Panchpedwa
Kadauri
Ghasiyari Tola
Durga Kund
Shukulpura
Nagwa
Badi Gaibi
Sarang Talab
Benipur
Saraiya Uttari
Suarbadwa
Pulkohna
Ruppanpur
Bahgatpur
Nakki Ghat
Mirapur Behsi
Ruppanpur
Chotti Maldahiya
Provision of CTCs Wherever presently not Improved standard Separate toilets for
in Slums provided of living in slums males and females
Provision of collection All slums Better health and --
bins environmental
Solid waste -- conditions --
Management
EX-SITU UPGRADATION
Identification and -- Improved quality of Identification of sites for
prioritization of slums life relocation
for relocation Near work place
176
Relocation of slums To Nazul lands Relocation of Through PPP

and Provision of available in: slums near work Relocation of slum
Housing o Ranipur areas clusters w.r.t. proximity
o Dilwariya Proximity to work to work place and skill
Sweeper Basti place level of slum dwellers
o Newada Centers generating Provision of Pucca
Mushayar basti employment for Houses
Relocation of skilled, semi
slums to MCV skilled and
lands in: unskilled labour
o Senpura
o Choti
Maldahiya
o Nakki Ghat
Near wholesale
trade complexes
Near Passenger
Terminal
Near small
industries’
complex
Transport Resettlement areas Enhanced quality Provision of Pucca roads
of life linked to major city level
Improved roads
Waster supply environmental Provision of water
conditions supply lines and
connections
Sewerage Provision of sewer lines
and connections
Drainage Provision of Pucca
drains
Street lighting -
Parks Provision of street
furniture
Kiosks
Play areas
Landscaping
Street lighting
Community centres Identified slums (by Enhanced Educational facilities
DUDA) with no community Health facilities
Community Centres interaction Space for social
Access to health gatherings
and education
facilities
Collection bins At regular intervals Improved environment -
along the roads and health
Solid waste - -
management
177
Table 67: Capital Investment and Phasing for Basic Services to Urban Poor
BASIC SERVICES TO URBAN POOR
Phase I
Total Priority
IN-SITU DEVELOPMENT
Housing 2310 5775 5775 5775 3468 - - 23103 Medium
Provision of roads/lanes 200 300 310 320 320 - - 1450 High
Water Supply 126 252 252 315.25 315.25 - - 1261 Medium
Sewerage 100 300 200 200 - - - 800 Medium
Drainage 100 150 155 160 160 - - 725 High
Street lighting 60 90 93 96 96 - - 435 High
Construction of Community - - - -
Centres 50 60 100 210 High
Augmentation of existing - - - - -
Community Centres (21) 16 16 32 High
Provision of CTCs in Slums 380 380 380 380 380 - - 1900 High
Provision of collection bins 10 10 - - - - - 20 Medium
Solid waste Management No separate costs for this component - - High
Sub Total 3352 7333 7265 7246.25 4739.3 0 0 29936
10685 19250.5
EX-SITU DEVELOPMENT
Identification and prioritization - - - - -

of slums for relocation 25 25 50 High
Housing 1832 4579.5 4579.5 4579.5 2747.7 - - 18318 High
Transportation Network 150 250 250 250 250 - - 1150 High
Water Supply 108 108 108 108 108 - - 540 High
Sewerage 125 125 125 125 - - - 500 High
Drainage 90 150 150 150 150 - - 690 High
Street lighting 45 75 75 75 75 - - 345 High
Parks 7 13 - - - - - 20 Medium
Construction of Community - - - -
Centres 30 30 30 90 High
Provision of collection bins 4 4 - - - - - 8 Medium
Solid Waste Management No separate costs for this component - - Medium
Sub Total 2416 5359.5 5317.5 5287.5 3330.7 0 0 21711
7775.5 13935.7
Grand Total 18460.5 33186.7 51647
Say Rs. 516.47 Crore
178
31 Institutional and Financial Reforms
31.1 Institutional Reforms
31.1.1 Introduction
The implementation of urban governance reforms is a difficult and long drawn process.
The experience of institutional reforms at various levels has shown that it is necessary
to identify a ‘mix’ of activities – (i) some short-term interventions that yield noticeable
results and serve to keep up the interest in the reform process, and (ii) long-term
interventions.
For effective urban governance, reforms will be necessary at the state as well as
municipal levels. Even at these two levels, the identified reforms can be further
classified into mandatory and optional reforms. In implementing mandatory reforms,
the focus is on the state creating the necessary enabling framework for the next lower
tiers of government to enact the necessary mandatory reforms. While creating this
enabling framework at the state and municipal levels will be time consuming given the
fact there shall be heavy political influence, certain smaller interventions will become
necessary in preparation for the larger interventions. These smaller interventions will
need to be designed and implemented in a manner that results are apparent in a
relatively short time period and maintain interest in the process. Figures 31-32 show a
conceptual framework of institution building and accounting for better revenue
collection, asset management, grievances addressal and service delivery etc based on
public interactions with the ULBs.
Figure 31: Public Interactions with ULBs for Various Reasons of Life
Birth Health Job Propert Society Politics Death
Education Transport Marriag Tax Water Waste
Figure 32: Public Interactions with ULBs for Various Business Reasons
Registrat Fundin Vehicle Tax Purchas Politics Liquidati

i
Finance Licenses Busines Sales Admin Others
179
31.2 Mandatory Reforms
31.2.1 At State Level
The majority of state level reforms can be classified as mandatory and are equally
applicable to all the cities in the state that are preparing CDPs. These are fundamental
reforms and necessary for the enabling framework for the municipal level reforms to take
place. While all the reforms are necessary, their phasing will differ from city to city. In
the case of Varanasi, the mandatory reforms identified to be undertaken at state level
shall be as follows:
i. Effective implementation of 74th CAA by way of –
Constitution of Ward Committees and DPCs;
Complete transfer of funds, functions and functionaries to MCV;
ii. Reform of rent control laws –
New development areas exempt from this law for next 10 years;
Repeal of law across all areas;
iii. Rationalisation of stamp duty by bringing it down;
iv. Enactment of public disclosure law –
Effective implementation of Right to Information (RTI) Act;
State level public disclosure law;
Effective implementation of law empowering citizens to legal recourse;
v. Institutionalising community participation in decision making –
Effective functioning of Ward Committees and DPCs through process of
public consultations;
Formulation of Citizens Charters that define time bound responses to
community needs;
Institutionalizing system of undertaking ‘Report Cards’ across Wards;
Enactment of Community Participation Law;
vi. Better coordination between cities –
City level coordination committee;
Starting process of clear demarcation of roles & responsibilities across city
level institutions;
Clarity in roles & responsibilities across city level institutions thus eliminating
functional overlaps;
Effective participatory planning for city development through Ward
Committees, District Planning Committees;
Regular elections to local government institutions and creation of committees
for effective decentralisation;
Establishment of ‘Association of Municipalities’ at state level; and
Identification of common agenda that focuses on defining strategies for better
city level planning.
31.2.2 At City Level
Mandatory reforms identified to be undertaken at City level in ULB/ parastatal

agencies are as follows:
i. Adoption of modern, accrual-based double entry system of accounting in Urban
Local Bodies/ parastatals;
ii. Introduction of system of e-governance using IT applications like, GIS and MIS
for various services provided by ULBs/ parastatals;
180
iii. Reform of property tax with GIS, so that it becomes major source of revenue for
ULBs and arrangements for its effective implementation so that collection
efficiency reaches at least 85% within next seven years;
iv. Levy of reasonable user charges by ULBs/ parastatals with the objective that full
cost of operation and maintenance of recurring cost is collected within next seven
years;
v. Internal earmarking within local body, budgets for basic services to the urban
poor; and
vi. Provision of basic services to urban poor including security of tenure at affordable
prices, improved housing, water supply, sanitation and ensuing delivery of other
already existing universal services of the Government for education, health and
social security.
31.3 Optional Reforms Common to State and City
Any two optional reforms to be implemented together by State and ULBs/ parastatals in
each year are as under –
i. Revision of byelaws to streamline the approval process for construction of
buildings, development of sites etc;
ii. Simplification of legal and procedural frameworks for conversion of agricultural
land for non-agricultural purposes;
iii. Introduction of Property Title Certification System in ULBs;
iv. Earmarking at least 20-25% of developed land in all housing projects (both public
and private agencies) for EWS/ LIG category with a system of cross subsidization;
v. Introduction of computerized process of registration of land and property;
vi. Revision of byelaws to make rainwater harvesting mandatory in all buildings and
adoption of water conservation measures;
vii. Bye-laws for reuse of recycled water;
viii. Administrative reforms i.e. reduction in establishment by bringing out voluntary
retirement schemes, non-filling up of posts falling vacant due to retirement etc.,
and achieving specified milestones in this regard;
ix. Structural reforms; and
x. Encouraging Public Private Partnership.
31.4 Proposed Urban Governance Reforms
31.4.1 Reforms at State Level

For bringing in mandatory reforms at the State government level, the following activities
are identified to be performed:
i. The State Government should establish and continuously update a body of
guidelines, policies and processes for decision making, procurement and related
issues for urban infrastructure projects;
ii. The State Government should assist in the creation of legislative framework to
guide political and bureaucratic decision making for projects; and
iii. The government should provide training to government functionaries (ULBs) to
improve understanding of optimum risk allocation and develop credible project
structures.
181
31.4.2 Reforms at Municipal Level
For the citizen of the city, the urban government is the ‘Government’, because all the
basic urban services are provided by these agencies only. In the fast world of today, a
normal citizen cannot spare too much time for deposit of taxes by inefficient means
and for obtaining the simplest services he is not able to bear the unnecessary delays in
execution. Under the present situation, a person has to visit the ULB so many times
for calculation of property tax to be paid by him on his property. It is also not easy for
him to obtain a birth or a death certificate effectively.
For improving the livability conditions of the city, there should be increased emphasis
on the good urban governance and management. Good governance implies the
accountability, integrity and transparency in Government actions for defining and
pursuing the its desired objectives. Vision of MCV can be visualized as capable urban
governance fulfilling all the public responsibilities.
Few interventions towards improved urban governance can be implemented by the

MCV at city level by way of adapting to some advanced technologies in information
and communication. These interventions are –
Creation/ construction of ten ‘Citizen Service Centres’ (CSC)/ ‘Lok-Vani Centres’
(LVC) at different/ convenient locations in the city over the next seven years;
One CSC/ LVC may contain five computers and infrastructure set up of an office;
Consultancy/ design services for so doing;
System development costs including development of Website of MCV having all
types of information related to each function and/ or services performed by it
including LAN/ WAN networking;
Citizen centre should be outsourced and each employee be taken on contract
employment; and
Training/ capacity building programs for various staff.
31.4.2.1 Functions of LVC
Service provision and complaint redressal system of the following functions can be
handled through these centers
Birth and death certificate issues;
Dangerous and offensive trade license issue;
Water connection;
Assessment of property tax;
Transfer of property title;
Grant of building permission;
Advertisement tax;
Complaint redressal etc
31.4.2.2 Benefits of LVC
The CSC/ LVC is proposed to serve functions as follows:

Information source to the citizens for adequate addressing of their problems;
Simplified and standardized application forms;
Simplified and standardized note files for easy and effective retrieval;
Removal of non value adding steps in daily procedures; and
182
Source of citizen feedback for improved and efficient functioning/ service

delivery.
Most of the staff, including the technical one, spends its time in public dealing. Set up
and effective functioning of LVC shall help safe time on the part of technical staff for
better and dedicated service delivery to the citizens.
31.5 Project Phasing & Costing
Development activities together with costing relating to e-governance have been done
in a phased manner (Table 68) depending upon the sequence of activities and priorities
as per the priority technique. The set up of e-governance is expected to take a
timeframe of three years starting from 2007-08 and involving a total cost of Rs. 10.50
crores.
Table 68: Phasing of E-Governance Projects and Costs

E-GOVERNANCE
Phase I
Total Priority
2006- 2008 - 2009 - 2010 - (Lakh) Consultation)
2007 08 2011-12
07 09 10 11
Construction of LVC 50 150 100 - - - - 300 High
Infrastructure Setup 25 75 50 - - - - 150 High
Consultancy service and 25 50 25 - - - - 100
design High
System development 50 100 150 - - - - 300 High
Total cost 150 375 325 0 0 0 0 850
Capacity Building & 50 50 50 50 - - -
Awareness & O &M 200 High
Sub Total 200 425 375 50 0 0 1050
Fund requirement for First 2 625
years
Fund requirement for Rest 425
of Phase I
Say 10.50 crores
31.6 Finance and Accounting Reforms
31.6.1 Introduction
MCV maintains records on single entry cash based system of accounting. The output
of this cash basis of accounting is a Statement of Receipts and Payments that
classifies cash receipts and cash payments under different heads. A statement of assets
and liabilities is not prepared.
Due to single entry based cash records, MCV is faced with the following drawbacks:
Not able to assess the accountability of all the resources that MCV controls and
the deployment of those resources;
Not able to assess the financial performance, financial position and cash flows of
the entity;
183
Cannot make decisions about providing resources for further capital projects to be
undertaken by the MCV;
Cannot evaluate MCV’s ongoing ability to finance its activities and to meet its
liability and commitment;
Plan for future funding requirements of assets maintenance and replacement;
Plan for the repayment of or satisfaction of existing liabilities;
Manage its cash position and funding requirement;
Demonstrate its performance in terms of service costs, efficiency and
accomplishments;
Assess whether current revenues are sufficient to cover the costs of current
programs and services;
Record the total costs, including depreciation of physical assets and amortization
of intangible assets, of carrying out specific activities;
Assess whether it can provide and the extent to which it can afford new programs
and services;
31.6.2 Accounting Reforms

Several activities, as discussed in the ongoing section, have been proposed for
implementation of finance and accounting reforms in MCV.
31.6.2.1 Double Entry Based Accounting

The objectives and scope of double-entry accrual based system of accounting is to
maintain the accounts on generally accepted accounting principles along with the
preparation of income and expenditure accounts to know the financial operation
during a year and a balance sheet to know the true financial status of ULBs for a
given period of time.
31.6.2.2 Asset Accounting & Creation of Fixed Asset Register

This shall mean identification and valuation of all assets and all ongoing works with
the MCV. Development of a system is required to this effect so as to have the fixed
asset register in place that would show the details of all the classified assets owned
and maintained by MCV with due valuations incorporated to the assets.
31.6.2.3 Chart of Accounts

Standardization of a chart of accounts of MCV that would show all the accrual
accounting heads is proposed.
31.6.2.4 Accounting Manual

In order to switch over to the new proposed system of accounting, the system itself
would be required to be designed with a set of new accounting rules, principles, and
policies to be called as Accounting Manual.
31.6.2.5 Capacity Building

Switch over to the new system also calls for training and capacity building of
accounting staff so as to adapt to the change effectively and perform efficiently.
31.6.2.6 Computerisation of Procedures

All accounting procedure, old and new, together with data entry of all past records
shall take place once the system is in place and the concerned finance and accounts
personnel is trained. This is aimed at achieving efficiency in procedures and
performance.
184
31.6.2.7 Benefits
The system of accrual accounting as recommended by the Twelfth Finance
Commission when fully applied will allow better price calculations, record capital use
properly, distinguish between capital and revenue expenditure, present a complete
picture of debts and liabilities and present financial position of MCV and not just the
cash flows and debts.
31.6.3 Increasing the Revenue Base
Property tax is the product of collection efficiency, tax rate, rateable value and
number of assessed properties. The main source of revenue for the MCV is the
revenue from property tax. But the capacity to charge property tax is not properly and
fully utilized by the MCV due to the element of subjectivity in assessment and
collection of these taxes. There is tendency among the public either to evade the taxes
or to get it reduced from what it ought to be. The 74th CAA has given more powers
and autonomy to the ULB in fixation of user charges, rates etc. The system of
assessment and collections has to be improved. It is believed that the property tax of
MCV can be more than doubled by introduction of serious tax collection efficiency
measures. There is great-untapped potential of property tax available for the MCV.
Tax rates have been revised by MCV from time to time including revision (minor
increase) in 2001. Surveys conducted by some neutral independent agencies have
identified that although there remains huge potential of tax collection, the current tax
base is very depleted; as many as 60% properties remain un-assessed till date for
property taxes. Several activities have been proposed in the foregoing section for the
introduction of property tax reforms in MCV.
31.6.4 GIS Mapping

Property tax collections can be improved by using GIS based property mapping
through city sketches and ground surveys. Street naming, property numbering and
photographs of the property need to be carried out for each property in the city.
31.6.4.1 Comprehensive Database

MCV has a system of computerized billing and collection. This needs be strengthened
for accurate and comprehensive record and listing of all properties under assessment
correctly.
31.6.4.2 Self Assessment of Taxes

Under this program, it is proposed that the general citizen is encouraged so that he
assesses and deposits his own taxes on time.
31.6.5 Water Supply Management
The total water supply from all resources is 240 mld which is above the current
estimated demand. Of the total, 30% is lost in transmission and distribution through
leaks and not accounted for which cannot be billed. There are a total of 80,000
metered water connections (flat rate) – domestic, commercial and industrial
connections. The main revenue for JS comes from water charges received from the
customers. Water tax and water charges revenues constitute 79.03% of the total
revenue.
185
31.6.6 Non Performance
There are several reasons for non-performance. These, inter alia, include –
Weak system operations: Inappropriate handling of pumping lead to high energy
bills, inappropriate system management and failure to attend queries and
complaints about water quality pressure and damaged water supply resulting in
inequitable water supply;
Lack of energy audits: Failure to reduce energy consumption through regulation
of pumping operations and inability to carry out comprehensive maintenance of
the pumps and/or install efficient pumping equipment to reduce electricity
consumption increased expenditures; and
Lack of water audits: Failure to detect and rectify leaks and failure to conduct
audits to detect illegal use of water, unauthorized connections, and faulty meters
led to loss of water and potential revenue.
31.6.7 Proposed Activities
Following specific activities are proposed for improving the efficiency of operations
of water supply –
Maximize the billed portion of water provided to the transmission system to
striving to reach 100%;
Reduce overtime, losses and leakages in the system;
Detect illegal use of water by the customers; and
Minimize the consumption of electrical powers.
31.6.8 Project Phasing & Costing
Certain activities have been identified that would help lead towards optimized
property tax collection. These activities shall be implemented in the first year itself
except for the annual updation of the software/ database. An estimated expenditure of
Rs. 3.00 crores is envisaged for this (Table 69). Reforms towards efficient water
supply management have been estimated to cost Rs. 0.44 crores and the activities
towards this, shall be spread over the next 6-7 years as given in Table 70.
186
Table 69: Towards Property Tax Reforms

PROPERTY TAX REFORMS
Phase I
Priority
(Lakh)
2006- 07 2007 08 2008 -09 2009 -10 2010 -11 2011-12 Consultaiton)
Satellite Imagery 10 - - - - - - 10 High

Topographical Survey 12 36 32 - - - - 80
Cadastral Survey 20 - - - - - - 20 High
Hardware & Software costs 20 60 20 - - - - 100
Data Coding & GIS 20 20 - - - - - 40 High
Web Base Development 10 10 - - - - - 20 High
Data updation (every year) - 5 5 10 10 - - 30 High
Total cost 92 131 57 10 10 0 0 300
Fund requirement for 223
First 2 years
Fund requirement for Rest 77
of Phase I
Say 3.00 Crores
Table 70: Activities for Effective Water Supply Management

WATER SUPPLY MANAGEMENT
Phase I
Total Priority
System operations for - 5 2 1 2 - - 10

equitable water
distribution and
management High
Operations relating to new - 5 5 - - - - 10
connections and sale of
potable water High
Water auditing to 2 3 3 3 1 - - 12
minimize water losses and
increase revenues High
Energy audit to minimize - 3 3 3 3 - - 12
power consumption at
pumping stations High
Total Cost 2 16 13 7 6 0 0 44 High
First 2 years
Rest of Phase I
Say 0.44 crores
187
32 Financial Strategy and Capital Investment Plan (CIP)
32.1 Analysis of Existing Situation
The current financial situation of MCV has been analyzed in terms of revenue and
expenditure trends observed in the previous five years. The total financial profile of
MCV is presented in the table. The table in the last year shows a sufficient surplus at
the end of each year. The reason behind this surplus is not that the MCV is able to
provide services sufficiently to citizens; it is essentially due to the government grants
received at the yearend by the MCV. From 2001-02 to 2004-05 mainly operating deficit
is revealed in these years, which means that the expenses incurred are more than the
total receipts of the financial year (Table 71). There is no increase perceived in the last
five years in the revenue receipts except in the previous financial year.
Table 71: Summary of Financial Profile of MCV 2001-02 to 2005-06

%
Particulars 2001-02 2002-03 2003-04 2004-05 2005-06 Average Contribution
Revenue Receipts 3,857.54 3,877.22 4,151.18 3,859.55 5,587.45 4,266.59 93.85
Capital Receipts 0.68 73.25 239.00 135.55 100.32 - -
Deposits, Loans &
31.40 21.56 32.39 31.00 48.87 33.04 0.73
Advances
Government Loans 130.00 133.00 30.00 182.50 207.90 136.68 3.01
Total Receipts 4,019.62 4,105.03 4,452.57 4,208.60 5,944.54 4,546.07 100.00
Salary Expenditure 2,794.74 2,405.65 3,063.10 2,832.19 2,992.02 2,817.54 63.92
Non Salary Expenditure 1,477.66 1,378.15 1,543.56 1,519.42 1,574.79 1,498.72 34.00
Repayment of Loans - - - - - - -
Capital Expenditure 87.62 48.08 66.54 90.27 60.12 70.53 1.60
Deposits, Loans &
21.65 12.69 26.77 22.54 23.05 21.34 0.48
Advances
Total Expenditure 4,381.67 3,844.57 4,699.97 4,464.42 4,649.98 4,408.12 100.00
Surplus/Deficit (362.05) 260.46 (247.40) (255.82) 1,294.56 137.95
The revenues of MCV comprise of revenues from own resources in the form of tax
and non-tax revenues, and the government grants. Tax revenues contribute almost
15% of the total revenues of the MCV. This share has decreased during the last five
years. MCV is mainly dependent on the government grants as almost 69% of the
revenues come from the State Government (Table 72).
Table 72: Summary of Revenues of MCV by Source

Particulars 2001-02 2002-03 2003-04 2004-05 2005-06 Average %
Own Resources-Tax Revenues 567.58 609.67 692.16 672.09 690.81 646.46 15.15
Own Resources-Assigned Revenues 124.31 309.61 0.01 274.17 966.67 334.95 7.85
Own Resources- Non Tax Revenues 396.51 429.00 395.27 -111.46 533.22 328.51 7.70
Government Grants 2769.14 2528.94 3063.74 3024.75 3396.75 2,956.66 69.30
Total Revenue Receipts 3857.54 3877.22 4151.18 3859.55 5587.45 4266.59 100.00
188
32.2 Financial Performance Indicators
All financial performance indicators exhibiting the performance and efficiency of the
MCV are calculated for the last five financial years. The revenue balance is negative in
the initial four years but becomes positive in the last year. This is also due to non-
utilization of funds received at the year-end. Capital account balance is positive due to
non-segregation of expenditure into revenue and capital.
The operating ratio which is the ratio of revenue expenditure over revenue income is
greater than one in the initial four years of information and 0.81 in the last year
showing that the MCV is able to meet out its revenue obligations from its revenue
resources.
MCV’s revenue growth and expenditure management has not been very good in the last
five years. Moreover the share of establishment costs to the total revenue expenditure is
very high i.e almost 64% of the total revenue expenditure. Share of House Tax to the
total income of MCV is also very low as compared to the other cities of India.
Debt Service Ratio is nil in MCV. Currently MCV takes non-interest bearing loan from
the state government. Due to weak financial position of MCV, they are not able to
repay any installments in the last financial years (Table 73).
Table 73: Financial Health Indicators of MCV

Particulars 2001-02 2002-03 2003-04 2004-05 2005-06
Share of own resources to the total income 0.15 0.16 0.17 0.17 0.12
Growth in Revenue Income - 0.01 0.07 (0.07) 0.45
Growth of own sources in the revenue income - 0.07 0.06 0.04 (0.29)
Share of non taxes to the total income 0.10 0.11 0.10 (0.03) 0.10
Share of House Tax in the revenue income 0.12 0.13 0.14 0.15 0.11
Expenditure Management
Share of Establishment costs in the revenue
0.64 0.63 0.65 0.63 0.64
expenditure
Percentage of salary costs to the total revenue
0.72 0.62 0.74 0.73 0.54
income
Performance Assessment
Revenue Account Balance (405.11) 102.29 (449.86) (483.60) 1,046.46
Capital Account Balance 43.06 158.17 202.46 227.78 248.10
Operating Ratio 1.10 0.97 1.11 1.12 0.81
Establishment Costs/Revenue Receipts 0.72 0.62 0.74 0.73 0.54
32.2.1 Municipal Corporation Varanasi-Critical finance Issues
The current financial position of MCV is quite unhappy situation. Performance of this
organization has to go under continuous revival by first implementation all urban
governance reforms. Currently there is lack of accountability and transparency in the
operations of MCV. Double Entry Accrual system of accounting has to be introduced.
Continuous training to the staff is required to given to ensure the sustainability in
operations. The Tax collection efficiency has to be improved by adoption of
modernized techniques. There are no powers with the MCV for improving the finance
and taxation rates. The Surprising fact is that the revenue rates of MCV have not been
189
revised from the year 1978. The other main problem lies in inadequate information
and database related to its existing revenues and expenditure
32.2.2 Review of Financials of VDA
VDA maintains its accounts on double entry accrual based system of accounting.
Finances of VDA have been analyzed from the Income and Expenditure Accounts and
Balance Sheets of last three financial years. Income of VDA comprises interest income
on fixed deposits and the interest on installments received from allotees and the receipts
received on sanction of maps of properties of Varanasi. Expenditure consists of revenue
expenditure in terms of establishment costs and administrative costs and Capital
Expenditure in terms of addition to fixed assets of the VDA in each financial year.
Revenue Expenditure includes the financial expenses in the form heavy interest costs
accrued to VDA on the loans taken by the agency. Loans from the World Bank has
been taken by VDA through state Government, which is not efficiently repaid by this
organization. The net loss as per financial performance of VDA has been decreasing in
the last three years, but there is insignificant increase in the revenues of VDA. Revenue
collection efficiency have to improved in VDA as there is big amount of outstanding
receivables standing in the balance sheet of VDA as at the end of each financial year.
32.3 Financial Operating plan
The investment strategy for various projects identified for coverage under the
JNNURM has been prepared by way of Financial Operating Plan (FOP) which mainly
focuses on capital investments in infrastructure over the next 7 years with a vision of
benefits realized by the turn of the horizon year, 2031, and particularly during the
course of implementation of these projects. The CIP presented herein represents the
investments made with effect from financial year 2006-07 to financial year 2011-12.
The FOP makes projection of the revenue and expenditure of the MCV in the next 25
years, i.e. the horizon year. It predicts the ability of MCV to pay and provide for the
services with the given set of policies and assumptions put forward in the CDP in line
with the guidelines for so doing under the Mission.
The FOP is designed taking into account the sustainability of new identified projects
under Mission. It also gives the idea about the alternate source of financing along with
the investment pattern in the next six years. The Existing financial information of MCV
has been taken into account and future planning of resources and expenditure made
accordingly.
32.3.1 Scenario Building
Two alternate scenarios have been considered while preparing the FOP, as follows:
1. Base Line Investment Scenario – where the forecasts of finances have been
prepared without considering new investments and the static growth in revenue
and expenditure of MCV is projected for the next 7 years; and
190
2. Sustainable Investment Scenario – where growth in revenue and reduction in

expenditure is considered to reach to the ultimate goal of achieving financial
sustainability after consideration of total investments projected in CIP.
The main assumption in forecasting the revenue and expenditure of MCV has been
the average growth trend for the previous five years, historic financial data before
working on the projections in both scenarios.
32.4 Forecast of Revenues
The revenues of MCV comprise of revenues from own resources in the form of tax and
non-tax revenues and the grants from the Government. The main source of revenue for
the MCV happens to be the property taxation. Some financing improvement initiatives
have been put forward as part of Urban Governance reforms (Section 32: Institutional
Reforms). The likely impacts of these reforms have been taken into account under the
sustainable investment scenario and proposed in the foregoing section.
32.4.1 Property Tax Assessments
There is high probability of increase in property tax considering the fact that the
number of cases for property tax assessment will increase tremendously consequent
upon introduction and implementation of GIS system in the city.
The total number of properties currently under assessment in Varanasi is around

125,000 and the total property tax collected from these in 2005-06 financial year has
been Rs. 598.26 lakh. Assuming the present population of the city as 15.53 lakh, and
there are 5 persons per property, the total number of properties should be around
310,000. It could otherwise be assumed that currently 50% of properties are under tax
net; assuming a target of 90% coverage of properties with introduction of GIS, the
estimated number of properties shall be around 225,000. Sufficient growth rate in
property tax can be assumed once these reforms are in place. Currently MCV is
conducting the door to door physical survey of properties through the employees of
the corporation. Self assessment unit area method is in place from April 2003 and
these forms are filled up at each door step of the property. Tax calculations are based
on the area value of the property instead of rental value. Due to this in the current year
the property tax collections will be more than double of the previous year. After this
annual increase of 30% is presumed in the property taxes each year.
32.4.2 Property Tax Demand
The annual demand against property taxes for the financial year 2005-06 is expected
to grow at the rate of 10% annually.
32.4.3 Tax Collection Efficiency
Tax collection efficiency is also projected to increase from 62% to 85% of the total
demand of properties as predicted in the reform agenda of the JNNURM.
Advertisement tax will be more streamlined to identify the new avenues of
advertisement with the establishment of LVC in the city. It is presumed to grow at the
rate of 15% per annum over the next seven years.
191
Inconsistent trend is observed in the growth of assigned revenues and compensations.

Based on the analysis of growth mainly over the last two years, it is expected to grow
at the rate of 20% per annum.
Octroi is abolished in the state in the last years. State Government is supposed to
provide the Government grant in lieu of octroi to Urban local bodies of U.P. This
grant should have an annual increment of 10 percent each year, which is not currently
done. Future projections are made taking into account the annual increase of 10% to
that government contribution.
The non-tax revenues are also based on the average growth trend of all non-tax
revenues as one source. Rent on buildings can be increased sufficiently by revision in
rent agreements made by MCV and by computerization of the properties on rent.
Registration fees from death and birth certificates will be expected to grow with the
establishment of CSCs/ LVCs at 12% per annum.
Varanasi is religious tourism city. MCV is involved in the construction of roads,

making street lighting arrangements and sanitary services in the city, These factors are
taken into consideration while planning for financial projections of the MCV.
A proper survey needs be carried out towards identifying the regular license holders
and the potential license holders. Revenue from license fees can double up the
average growth trend of the historic data after the implementation of the improved
measures. Also where the user of the services of MCV is directly linked with the
provision of services by MCV. It can levy the appropriate user fees for the usage of
services by the payee.
Water charges have not been increased in varansi by VJS from last 5 years inspite of
State Govrnment orders. That may be due to pressure of elected members to the body.
There is sufficient scope of increase in water tax and water charges revenues after that
increase is affected and water supply management reforms by VJS
Government grants are currently received on the basis of 1991 CoI population data. It
is assumed that the grants in 2006-07 shall be received on the basis of 2001 CoI, and
2012-2013 onwards, these shall be based on 2011 CoI.
32.4.4 Forecast of Revenue Expenditure
Under the baseline scenario discussed above, all the expenditure is expected to go up
by a static growth. But as a result of growth in infrastructure, the O&M costs of
capital investments towards these, will further add on the current growth of revenue
expenditure in a sustainable investment scenario.
32.5 Capital Investment Plan
Toolkit 1 of JNNURM explains the funding pattern, sanction and disbursement to

funds to ULBs. Having a population of 12.02 lakh, Varanasi stands in Category C for
funding17.
17
JNNURM Toolkit 1, op cit, pp 8-9.
192
Table 74 below gives costs of all projects identified for coverage under the Mission
with sectoral break-ups and classified as per the two sub-missions. The total estimated
cost for Sub Mission I (Urban Infrastructure and Governance) is around 2556 Crore
and for Sub Mission II (Basic Services for Urban Poor) is 516 Crore. Costs for Urban
Renewal account for nearly 99% (Rs. 2541.43 lakh) of the cost of Sub Mission I with
costs for Urban Governance Reforms accounts for 1% approximately (Rs. 14.69
Crores). In case of Sub Mission II, nearly 58% of the funds (Rs. 299.36 Crore) would
go towards In-situ development of slums and remaining 42% (Rs. 217.11 Crore)
would be utilized for Ex-situ development of slums.
Figures 33 illustrate break-up of costs under the various sectors of infrastructure.

Figure 34 is about the costs to be incurred with regards institutional and financial
reforms. Figure 35 shows costs of infrastructure etc towards in-situ development of
slums. Figure 36 outlines costs for integrated development of slums for ex-situ
development.
Table 74: Total Costs of Projects for JNNURM

TOTAL COSTS OF PROJECTS IDENTIFIED FOR CDP-VARANASI UNDER JNURM MISSION
S.NO. ACTIVITIES TOTAL COSTS (Lacs)
A. URBAN INFRASTRUCTURE AND GOVERNANCE
a) Urban Renewal & Infrastructure
1Urban Renewal 6271
2Heritage 3391
2Water Supply 38135
3Sewerage & Sanitation 86440
4Storm Water Drainage 30515
5Solid Waste Management 4308.075
6Urban Transport 83861
7Environmental Aspects 1222
Total (a) 254143.075
b) Urban Governance Reforms
1E-Governance 1050
3Property Tax Reforms 300
4Water Supply Management Reforms 44
5Public Awareness Program 75
Total (b) 1469
Total A 255612.075
S.NO. ACTIVITIES TOTAL COSTS (Lacs)
B. BASIC SERVICES FOR THE URBAN POOR
1In-situ Development of Slums
Housing 23103
Provision of roads/lanes 1450
Water Supply 1261
Sewerage 800
Drainage 725
Street lighting 435
Construction of Community Centres 210
Augmentation of existing Community Centres (21) 32
Provision of CTCs in Slums 1900
Provision of collection bins 20
193
Solid waste Management 0

Total cost 29,936.00
2Ex-situ development of slums
Identification and prioritization of slums for relocation 50
Housing 18318
Transportation Network 1150
Water Supply 540
Sewerage 500
Drainage 690
Street lighting 345
Parks 20
Construction of Community Centres 90
Provision of collection bins 8
Solid Waste Management 0
Total Cost 21711
Total cost of slum development (Insitu+Exsitu) = B 51,647.00
Total Cost of Investment (A+B) 307,259.08
Figure 33: Breakdown of Costs of Various Infrastructure Projects
0% 2%
1%
15%
33%
2% 35%
12%
Urban Renewal Heritage

Water Supply Sewerage & Sanitation
Storm Water Drainage Solid Waste Management
Urban Transport Environmental Aspects
Figure 34: Costs for Institutional and Financial Reforms
E-Governance
3% 5%
20% Property Tax Reforms
Water Supply
72% Management Reforms
Public Awareness
Program
194
Figure 35: Costs for In-situ Development of Slums

Housing
0.70% 0.11%
1.45% Provision of roads/lanes
2.42% Water Supply

0.07%
6.35%
2.67% 0.00% Sewerage
4.21% Drainage
4.84%
Street lighting
Construction of Community
Centres
Augmentation of existing
77.17% Community Centres (21)
Provision of CTCs in Slums
Provision of collection bins
Figure 36: Costs for Ex-situ Development of Slums

Identification and prioritization
3.18% 0.09% 0.41% of slums for relocation
2.30% 0.04% Housing
1.59% 0.23%
2.49%
Transportation Network
0.00%
5.30%
Water Supply
Sewerage
Drainage
Street lighting
84.37% Parks
Construction of Community
Centres
Provision of collection bins
32.6 Funding of Priority Projects
Costs of all priority projects to be taken up during Phase I of JNNURM have been grouped
into two parts: costs for the first two years (2006-07 and 2007-08), and costs for the
remaining part of Phase I (2008-09 up to 2010-11). Table 75 puts together all costs as per this
grouping. Of the total fund requirement for infrastructure development, urban governance
and slum development under the Mission (Rs. 307259lakh), the requirement during the first
two years is estimated at Rs. 877.22 Crore while it is Rs. 2195.37 Crore for rest of Phase I.
195
Table 75: Costs of Priority Projects

Release of Funds (Lakhs)
Phase I Total phase
I
First 2 years Rest of Phase Total
S.no. Sector I Phase II Cost
1 Urban Renewal 666.5 5604.5 6271 - 6271
2 Heritage 1762 1629 3391 - 3391
3 Water Supply 11775 26360 38135 - 38135
4 Sewerage and Sanitation 27535 58905 86440 - 86440
5 Storm Water Drainage 7254 23261 30515 - 30515
6 Solid Waste Management 1276 3032 4308 - 4308
7 Urban Transport 17739 66122 83861 - 83861
8 Environment 348 874 1222 - 1222
9 Basic Services to Urban Poor 18460.5 33186.7 51647.2 - 51647
10 Institutional Reforms 625 425 1050 - 1050
11 Property Tax Reforms 223 77 300 - 300
12 Water Supply Management 44
Reforms 18 26 44
-
13 Public Awareness 75
40 35 75
Programmes -
Total Release of Funds 87722 219537.2 - 307259.2
Figure37: Release of funds for projects for First 2 years
0.02% 0.00% 0.05%

0.25% 0.76%
0.71%
2.01%
21.04%
13.42%
0.40%
20.22% 31.39%
1.45%
8.27%
Water Supply Sewerage and Sanitation
Urban Transport Environment
Basic Services to Urban Poor Institutional Reforms
Property Tax Reforms Water Supply Management Reform
196
Figure 38: Release of funds for projects for rest of Phase I
0.00%
0.01% 2.55%
0.04% 0.74%
0.19%
15.12% 12.01%
0.40%
30.12% 26.83%
1.38% 10.60%

Water Supply Sewerage and Sanitation
Urban Transport Environment
Basic Services to Urban Poor Institutional Reforms
Property Tax Reforms Water Supply Management Reforms
Following is the break-down of fund requirement of priority projects relating to Urban

Infrastructure and Governance:
i. Requirement of funds for Urban Renewal of the old city for the first two years shall
be Rs. 666.5 lakh (Rs. 6.65 crore) whereas costs for the rest of Phase I shall be Rs.
56045 lakh (Rs. 560.45 crore);
ii. Heritage projects shall cost Rs. 1762 lakh (Rs. 17.62 crore) and Rs. 1629 Lakh
(Rs.16.29 crore) respectively;
iii. Total cost of Water Supply projects for the first two years is estimated at Rs. 11775
lakh (Rs. 117.75 crore). The cost for the rest of Phase I shall be Rs. 26360 Lakh (Rs.
263.60 crore);
iv. Sewerage and Sanitation projects shall, in the first two years cost Rs. 27535 lakh (Rs.
275.35 crore), and Rs. 58905 lakh (Rs. 589.05 crore) for the rest of Phase I;
v. Cost of Storm Water Drainage projects for initial two years shall be Rs. 7254 lakh
(Rs. 72.54 crore), while for the rest of Phase I, it shall be Rs. 23261 (Rs. 232.61
crore);
vi. SWM projects shall for the two stages cost Rs. 1276 lakh (Rs. 12.76 crore), and Rs.
3032 Lakh (Rs. 30.32 crore) respectively;
vii. Urban Transportation shall involve Rs. 17739 lakh (Rs. 177.39 crore) in the initial 2
years, and Rs. 66122 lakh (Rs. 661.22 crore) over the next 3 years in Phase I;
viii. A total of Rs. 348.00 lakh (Rs. 3.48 crore) and Rs. 874.00 (Rs. 8.74 crore) has been
identified for Environmental Aspects over the 2 stages of Phase I;
ix. E-Governance Reforms are estimated to cost Rs. 625.00 lakh (Rs. 6.25 crore) and Rs.
425 Lakh (Rs. 4.25 crore) for the two stages respectively;
x. Costs of Property Tax Reform projects shall be Rs. 223 lakh (Rs. 2.23 crore) and and
Rs. 77 (Rs. 0.77 crore); and
xi. Water Supply Management Reforms shall cost Rs. 18.00 lakh (Rs. 0.18 crore) in the
initial 2 years, and Rs. 26.00 (Rs. 0.26 crore) in the rest of Phase I.
197
Following is the break-down of fund requirement of priority projects relating to Provision of

Basic Services to Urban Poor:
i. Total costs of projects under In-situ slum development over the first two years is kept
at Rs. 9810 lakh (Rs. 98.1 crore). The cost for the rest of Phase I shall be Rs. 17540
lakh (Rs. 175.4 crore); and
ii. Costs of projects for Ex-situ slum development shall be Rs. 7026.5 lakh (Rs. 70.26
crore) over the first two years and 12511 lakh or 125.11 crore for the rest of Phase I.
32.7 Financing Strategies
The funding share of ULBs in the city has to be decided on the basis of functions
performed by the respective agency, e.g. JN for all water supply and sewerage related
works. Projects relating to roads and transportation are decided on the basis of
jurisdiction of the ULB (MCV/ VDA) where these would fall (Tables 76-77).
Based on expected distribution of funds its drawn that MCV is mainly responsible for
requirements from Urban renewal components of the city development along with the
Department of Irrigation and Bandi Parkhand. MCV is responsible for storm water
drainage, solid waste management with PPP.
For the total sewerage and Drainage works in the City MCV and VJS and JICA are
agencies for execution of the project. Since partly sewerage is funded by the external
aid and that can be managed as ULB’s share for sewerage and drainage work in the
city.
Other parastatal like P.W.D.,UPRCTC, Uttar Pardesh Jal Nigam, Railways will be
responsible for the balance project works. VDA will be mainly responsible
construction of intersections of roads and flyovers aand for development of multilevel
parking sites for the city.
A detailed exercise, Table 76, towards contribution of government at different levels –

centre, state and local – has been carried out to determine the fund requirement for
each sector/ project. Further, the shares for Phase I have been split into two: (i) First 2
years, and (ii) Rest of Phase I. From the total share required from ULB/parastatal
agencies the share of MCV, VJS, VDA and other parastatals will be as follows: -
198
Table 76: Requirement of funds for Priority Projects
First 2 years
Rest of
Phase I
Jawaharlal Nehru National Urban Renewal Mission (JNNURM)
Varanasi
199
Table 77: Sectoral Funding Pattern

Funding Pattern
Total Costs
S. GOI GOUP ULB/PS
Sector Phase I (Rs
No.
Lakh)
1 Urban Renewal 6271 3135.5 1254.2 1881.3

2 Heritage 3391 1695.5 678.2 1017.3
3 Water Supply 38135 19067.5 7627 11440.5
4 Sewerage and Sanitation 86440 43220 17288 25932
5 Storm Water Drainage 30515 15257.5 6103 9154.5
6 Solid Waste Management 4308.075 2154.0375 861.615 1292.4225
7 Urban Transport 83861 41930.5 16772.2 25158.3
8 Environment 1222 611 244.4 366.6
9 E-Governance Reforms 1050 525 210 315
10 Property Tax Reforms 300 150 60 90
Water Supply Management
11 Reforms 44 22 8.8 13.2
Public Awareness
12 Programs 75 37.5 15 22.5
Basic Services to Urban
13 Poor 51646.7 25823.35 25823.35
Total Requirement of Funds 307258.775 153629.388 76945.765 76683.6225
Figure 39: Funding Pattern
Public Awareness Programs

Water Supply Management Reforms
100% Property Tax Reforms
90%
E-Governance Reforms
80%
Basic Services to Urban Poor
70%
60% Environment
50% Urban Transport
40% Solid Waste Management
30% Storm Water Drainage
20% Sewerage and Sanitation
10%
Water Supply
0%
1 2 3 Heritage
GoI GoUP ULB
Urban Renewal
Share of ULB/PS in each of financial Year for Phase I of the Projects under JNURM is given
in Annex XIII
32.8 Stakeholder Identification for implementation of sectoral projects
On the basis of discussions held with various stakeholders including central and state
authorities, stakeholders have been identified for the implementation of sectoral
projects (Table 78)
200
Table 78: Sector wise identification of stakeholder for implementation of projects
Total Costs
A URBAN RENEWAL Stakeholder
of Project
Improvement of access to Dashashvamedh

1 Ghat 50 MCV DEPT. OF TOURISM -
2 Provision of Foot over Bridge 500 MCV PWD -
3 Widening of carriage way of roads leading to 76 MCV - -
Illumination and Street lighting along Ghats D/o Irrigation (Bandhi
4 116 MCV Prakhand) -
Strengthening of Existing fruit mandi &
5 relocation of wholesale mandi 3131 MCV Mandi Samiti -
Provision of designed/ synchronized signages
6 50 MCV Private party -
Gaushalas to avoid cattle from entering the
7 core city 50 MCV - -
8 Traffic Management plan for old city 100 MCV Traffic police -
Strengthening of Ghat steps D/o Irrigation (Bandhi
Provision of Jetty on the Ghats D/o Irrigation (Bandhi
11 Provision of 6 Slaughter Houses 250 MCV - -
12 Development of Small Industries Complex 176 MCV UPSIDC -
6271
Total Costs
B Heritage & Tourism Stakeholder
of Project
Provision of Tourist Information Center at

Cantt Rly Stn, Sarnath & Bisheshwamesh
2 ghat 21 D/o Tourism - -
3 Upgradation of Kunds and Wetlands 450 D/o Tourism - -
4 Improvement of gali leading to ghats 400 Private party - -
5 Pre paid stands for boat rides 14 D/o Tourism Traffic police -
7 Renovation & beautification of ghat 840 D/o Tourism - -
D/o Irrigation (Bandhi
8 Provision of public conveniences 300 D/o Tourism Prakhand)
9 Provision of public address System (Sound) 6 D/o Tourism MCV -

10 Provision of light and sound Shows 700 D/o Tourism Traffic police -
11 Development of Panch Kosi Route 450 D/o Tourism PWD -
12 Establishment of Tourism Village 150 D/o Tourism Private party -
13 Signages 60 D/o Tourism Private party -
3391
201
Total Costs
C W ater Supply Stakeholder
of Project
Existing Raw water pumping plants

reorganization and strengthening of intake
works, repairing, replacement of old pumps
and installation of new pumps to enhance the
pumping capacity up to 350 mld (App)
including E/M items, complete in all respect 500 UPJN VJS -
Replacement of old pumps and motor at
Bhadeni Intake works 100 UPJN VJS -
W ater treatment plant (Settling tanks/,
clariflocculators etc.) Rapid gravity filter of
existing plant, this includes repairing of
system and the replacement of filter media 500 UPJN VJS -
1250 Storage Reservoirs 150 UPJN VJS -
Conversion of old slow sand filters of size
60m x 30m x 2m into clear water reservoir to
enhance storage capacity of Bhelupur water
works by 36 mld, 10 nos 750 UPJN VJS -
Distribution System in 11 zones, replacement
of old, damaged and in adequate pipes by new
one. Good conditioned, old pipe to be
provided at the required places including civil
works. 3800 UPJN VJS -
Rising mains, replacement of old, damaged

and in adequate pipes by new one 150 UPJN VJS -
Tube W ells 800 UPJN VJS -
Booster pumps, pipes and accessories for
clear water as per design requirement. 200 UPJN VJS -
O&M of Existing water works 2400 UPJN VJS -
9350
Construction of Intake well near Garhwa Ghat
of 115 mld capacities with all required E/M
works including power sub station as per
design 1200 UPJN VJS -
Construction of 100.00 mld water treatment

plant at as per the detailed design. 1400 UPJN VJS -
Construction of 200MLD water treatment
plant including intake works, treatment units,
rising main and distribution systems, etc. as
per detailed design 8000 UPJN VJS -
Rising main, for raw water and clear water as
per the detailed design 650 UPJN VJS -
Rising mains to pump raw water from intake

works to treatment plant and treated clear
water to OHTs at different locations in the
city as per the detailed design 3500 UPJN VJS -
Distribution system including all the
accessories, Public Connections and water
meters, etc. 6000 UPJN VJS -
Replacement of old pumps and other
mechanical equipments of water supply
system 150 UPJN VJS -
Installation of Booster Pumps as per the
requirements and detailed design including
electro-mechanical items, complete in all
respect 250 UPJN VJS -
Storage reservoirs and pump houses as per the
detailed design. 3000 UPJN VJS -
24150
61550 Rain water harvesting arrangement (L.S.) 1500 UPJN VJS -

Power Connection Charges 1000 UPJN VJS -
Inventory of the existing scheme @ Rs.
2000.00 per km 1200 UPJN VJS -
Layout planning, designing, and preparation
of DPR (Lump Sum). 35 UPJN VJS -
Generator set to provide supply during the no
supply Hours of the electricity 300 UPJN VJS -
Unforeseen items 100 UPJN VJS -
Construction super vision 200 UPJN VJS -
202
Total Costs
D Sewerage & Sanitation Stakeholder
of Project
Branch sewers and laterals 5000 UPJN VJS -
Trunk sewers, Pumping stations, treatment
plants, Rising mains, E/M works etc. that has
not been taken in JICA.(Cost is based on the
preliminary calculations) 1500 UPJN VJS -
Existing sanitation facilities like community
latrines, and bathrooms, etc. 50 UPJN VJS MCA
Branch sewers and laterals 27000 UPJN VJS -
Trunk sewers, Pumping stations, treatment
plants, Rising mains, E/M works etc. that has
not been taken in JICA.(Cost is based on the
preliminary calculations) 1000 UPJN VJS -
Existing sanitation facilities like community
latrines, and bathrooms, etc. 43540 UPJN VJS MCA
Mechanical equipment needed for the 400 UPJN VJS MCA
Staff quarters @ 3%of total works. 40 UPJN VJS MCA
Construction of 200MLD STP Rising Mains

and trunk Sewers proposed under JBIC 560 JICA UPJN VJS
Misc. items, contingencies, T&P, OH &CP @
20% complete in all. 7350 VJS MCA UPJN
86440
Total Costs
E Storm Water Drainage Stakeholder
of Project
Total cost of complete drainage network
including rehabilitation, renovation of
existing drainage, construction of new drains,
pumping system etc (complete in all respect) 30000 MCV UPJN -
Mechanical equipment needed for the
cleaning of Drains (L.S.) 100 MCV UPJN -
Inventory of the existing drains, Layout
planning, designing, And preparation of DPR
(Lump Sum) 50 MCV UPJN -
Construction super vision @ 1.00% 315 MCV UPJN -
Training & Capacity building, asset creation
(L.S.) 50 MCV UPJN -
30515
203
Total Costs
F Solid Waste Management Stakeholder
of Project
Dumper Placer Containers of 4.5 cubic meter
capacity each 200 MCV Private party -
Incinerator for hospital waste, complete with
chimney and civil works etc. (100kg/hr.
capacity) 100 MCV Private party -
Development of landfill sites 200 MCV Private party -
Compost plant with all accessories 700 -
Mechanical Equipments like 1000 MCV Private party -
Dumper Placer with handle 0 MCV Private party -
Tractors 0 MCV Private party -
Hydraulic tractor tipping trolley 0 MCV Private party -
Platforms and ramping for tipping
trolleys 0 MCV Private party -
Skip Lifter for construction debris 0 MCV Private party -
Skips of 7 cubic meter capacity 0 MCV Private party -
Hand Carts, JCV, Tipper, Hopper,
Loaders 0 MCV Private party -
Medical waste collection vehicle with
fully equipped. etc 0 MCV Private party -
Depot for the vehicle 75 MCV Private party -
Misc. and unforeseen items 28 MCV Private party -
Peletisation 1900 MCV Private party -
Capacity building and awareness programs,
@ 2.50% 105.075
4308.075
204
Total Costs
G Urban Transport Stakeholder
of Project
Construction of Ring Road 10000 PWD NHAI -
Widening and improvement of the roads
(MCV& PWD) 6000 MCV PWD -
Construction of 7 Flyovers at 3 intersections PWD&BRIDGE
and 4 Railway Crossings 15000 VDA CORPORATION RAILWAY
Construction of sub-way between Cantt Rly
Stn and Cantt Bus terminal 400 MCV PWD UPSRTC
Provision of 11 multilevel parking with
integrated Parking for Rickshaws and Mini
buses 16500 VDA Private Party -
Traffic Management Plan for Old City area.
25 PWD Traffic Police MCV
Geometric improvement of 48 identified
intersection 800 MCV PWD -
Signalization of 6 intersections 36 VDA PWD -
Capacity augmentation of the existing Cantt
Bus Terminal, Two New bus terminal 2500 UPSRTC PWD -

Capacity augmentation of Pahadia Truck
terminal & Provision of 3 new Truck
terminal. 3500 MCV PWD Private Party
Bus terminals for public transport to be
provided at 4 locations. 3400 MCV PWD Private Party
Provision for street Lightning 2000 MCV VDA -
30.Mts wide Road (Extension of Panchkoshi
Road including bridge on Ganga) 15000 MCV PWD -

Two Bridges on Ganga at Samne Ghat &
Balua Ghat 8700 MCV PWD Dept. of Irrigation
83861
Total Costs
H Environment & Beautification Stakeholder
of Project
Environmental Improvement of Varuna
777 MCV VDA UPPCB
Environmental Improvement of Asi 118 MCV VDA UPPCB
Tree Plantations/ noise buffers 150 MCV VDA UPPCB
Water harvesting pits at major water
logging points 46 MCV VDA UPPCB
Beautification and Upgradation of
existing parks 100 MCV VDA UPPCB
Awareness programs @ 2.5% 31 MCV VDA UPPCB
1222
32.9 Projects identified for Public Private Partnership (PPP)
A PPP is a partnership between the public and complementary sector for the purpose of
delivering a project or service , which was traditionally provided by the public sector.
The response of stakeholders in the City to PPP initiatives has shown that the MCV can
now choose between various cost effective models involving PPP to upgrade the
quality of basic services and other urban amenities in the City of Varanasi. PPP is a
strategic alternative following the principles of Best Sourcing. On the basis of
discussions held with the stakeholders, including the State and Local Authorities, the
following projects have been identified for PPP:
205
Table 79: Projects identified for PPP
Projects identified for PPP

S.No. Sector Projects
1 Urban Renewal Illumination and Street lighting along Ghats
Prepaid boat stands
Provision of designed/ synchronized signages
Development of Small Industries Complex
2 Heritage Night Lighting / Illumination of Ghat area
Sound and light show
Conservation and renovation of Heritage sites
(PPP with Mathas / owners of structures)
Provision of Tourist Information Center at
Ghats and old city
Provision of public utilities
3 Water Supply -
4 Sanitation and Sewerage -
5 Storm water drainage -
6 Solid waste management Solid Waste management of the city
Street cleaning and sweeping
7 Urban Transport Provision of Multi level parking
Truck Terminals
Ring road and bridges
8 Environment Beautification and Upgradation of existing
parks
Water harvesting pits at major water logging
points
9 Basic Services to urban poor CTCs in slums
Insitu redevelopment of houses
10 Institutional Reforms E Governance
11 Finance and Accounting -
Reforms
12 Property Tax Reforms -
13 Water -
Supply Management reforms
14 Public Awareness Awareness Programmes
Programmes
32.10 Impact of FOP under Sustainable Investment Scenario
The FOP has been prepared on the assumption that the inflation rate will be 0% per
year over the next seven years of investment. The 12th Finance Commission has also
reflected in the report that the State should help the ULBs achieve financial
sustainability. Assumptions made towards preparation of FOP under sustainable
206
investment scenario, in addition to those already discussed above, are stated in Table
80.
Tables 81-82 give elaborate analysis with regard to the two financial scenarios
discussed in the beginning of this section.
207

PART 1 Final Report

Uploaded by

Copyright:

Available Formats

PART 1 Final Report

Uploaded by

Document Information

Original Description:

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

PART 1 Final Report

Uploaded by

Copyright:

Available Formats

Jawaharlal Nehru National Urban Renewal Mission (JNNURM) Varanasi

STAGE I: CITY ASSESSMENT

6.2 Housing ....................................................................................................................41

PART B: URBAN INFRASTRUCTURE AND GOVERNANCE

9 Sewerage and Sanitation ...............................................................................................71

15 Urban Governance and Institutional Framework ....................................................101

15.3.1 Municipal Corporation of Varanasi ...............................................................102

PART D: BASIC SERVICES FOR URBAN POOR

17 Basic Services for Urban Poor ....................................................................................116

STAGE II: FUTURE PERSPECTIVE AND VISION

18 SWOT Analysis into Service Delivery........................................................................126

19.4 Long term Challenges ............................................................................................130

STAGE III: DEVELOPMENT PROJECTS AND REFORMS

PART A: URBAN INFRASTRUCTURE AND GOVERNANCE

30 Basic Services to Urban Poor......................................................................................175

PART C: INSTITUTIONAL FRAMEWORK AND FINANCE

31 Institutional and Financial Reforms ..........................................................................179

31.4.1 Reforms at State Level...................................................................................181

STAGE IV: FINANCIAL OPERATING PLAN AND FINANCIAL STRATEGY

32 Financial Strategy and Capital Investment Plan (CIP)............................................188

Table 48: Housing for Urban Poor .....................................................................................123

Annex 1: Employment, Investment and increase in Industries ………………… 220

Urbanization is an inevitable process due to high pressure on land, low agriculture

Private Sector Release &

Formulate a medium-term City Development Plan (CDP) to align with citizen’s

1.2 Objectives, Process and Permissible Activities

1.2.1 Mission objectives

Focused attention to integrate development of infrastructure services in the cities

1.2.2 The Process

Anchored on the Mission goal of creating economically productive, efficient,

poor, strengthening of municipal governments and their financial accounting and

Figure 2: Process of Preparation of CDP

Process to formulation of City Development Plan

City Future Strategies City

Step 1: City Assessment

Step 2: Future Perspective and Vision

Step 3: Strategies for Development

Step 4: City Investment Plan

1.2.3 Permissible Activities

1.3 Stakeholders Consultation

will be prepared for betterment of People of Varanasi. Consultations in Varanasi are

2.1 About Varanasi

Since ancient times the natural and cultural

2.3 Linkages and Connectivity

i. NH 2- G.T. Road from Mughal Sarai to Allahabad;

Varanasi is well connected by railways with

Topography, Geology and Climate

3.1 Population Growth & Composition

3.1.1 Population Growth

Table 1: Population of Varanasi

Figure 3: Population Growth Trend

Population Growth Trend

Table 2: Population Growth in KAVAL Cities

3.1.2 Population Density

Table 3: Population Density of Varanasi

Table 4: Ward wise population densities

War Ward Density Ward Density

3.1.5 Literacy Rate

3.1.6 SC/ ST Population