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Roadmap for the Panchayats in West Bengal A Vision Document
Roadmap for the Panchayats in West Bengal
Panchayat & Rural Development Department, Government of West Bengal
ROADMAP FOR THE PANCHAYATS IN WEST BENGAL
Foreword and Introduction........(to be added later) A brief outline of this White Paper.............(executive summary – to be added later ).
TABLE OF CONTENTS
THE NEED FOR A ROADMAP....................................................................................................5 Evolution of Rural Local Governance in West Bengal...............................................................5 Major Activities of the PRIs of the State Since 1978..................................................................6 The Need for Change.................................................................................................................11 Bringing About Change.............................................................................................................15 Approaches for the Roadmap.....................................................................................................17 STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS.............20 Introduction................................................................................................................................20 Participation at the Village Level ............................................................................................20 Organizing the Poor for Their Participation in Panchayats.......................................................22 Strengthening Functioning of the Upa-Samitis and Standing Committees...............................24 Defining the Roles of Members Who Are Not Office Bearers..................................................27 Increasing Participation of the Political Parties in Opposition .................................................28 Functioning of the District Council...........................................................................................28 Improving Accountability..........................................................................................................28 Other Ethical Steps for Good Governance.................................................................................29 Interface between Panchayat and Civil Society ........................................................................29 IMPROVING CORE CIVIC SERVICES.....................................................................................30 Providing Civic Services to the Citizen.....................................................................................30 Drinking Water Supply and Sanitation......................................................................................30 Services Related to Public Health..............................................................................................32 Services Related to Universal Literacy and Elementary Education .........................................39 Road Connectivity.....................................................................................................................42 Irrigation, Drainage and Flood Protection.................................................................................45 Housing and Development of Habitat........................................................................................45 Sanctioning Building Plan and Enforcing Other Regulations for Community Living .............46
Roadmap for the Panchayats in West Bengal Marketing and other facilities for Promotion of Economic Activities......................................47 Issuing Trade Registration Certificates and Licenses................................................................47 Special Requirements of the Urbanised Gram Panchayats........................................................48 Management of Disaster............................................................................................................48 DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC DEVELOPMENT AND SOCIAL JUSTICE................................................................................49 Introduction................................................................................................................................49 Land Reforms ............................................................................................................................49 Better management of Natural Resources and Improved Land Use..........................................50 Promotion of Livelihood Opportunities in Non-Farm Sectors..................................................55 Alleviation of Poverty & Social Equity.....................................................................................56 Measures for Social Security.....................................................................................................61 Planning from Below for Economic Development and Social Justice......................................63 Developing Panchayat-Private Partnership................................................................................65 AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT...........................................................................................................................65 Introduction................................................................................................................................65 Current Status of Mobilisation of OSR......................................................................................65 Improving Collection of OSR....................................................................................................67 Improvement of Budgetary Control and Financial Management..............................................68 Improvement of Accounting Practices and Computerisation of Accounts................................68 Internal Audit of Panchayat Accounts.......................................................................................69 Social Audit...............................................................................................................................70 Scrutiny of Panchayat Accounts by the Legislature..................................................................70 Capacity Building for Better Management of Fund..................................................................72 FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES..........72 Introduction................................................................................................................................72 Employees of the Panchayats.....................................................................................................72 Capacity Building of Employees & Other Functionaries of Panchayats...................................74 Strengthening SIPRD, the ETCs ............................................................................................76 Use of Information and Communication Technology for Efficient Functioning......................76 Strengthening the Directorate Office.........................................................................................76 HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE PANCHAYATS.............................................................................................................................77 Introduction................................................................................................................................77 Acts for which Amendments are proposed................................................................................78 Amendment of Panchayat Act / Rules.......................................................................................93 ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS.............................................96 Introduction................................................................................................................................96 Sharing the vision in terms of human outcomes and setting goals locally .............................96 Strengthening the Panchayat institutions .................................................................................98 Delivery of services for social justice & economic growth.....................................................100 Acquiring capacities by the Panchayat institutions ...............................................................101 Monitoring and Evaluation......................................................................................................102 The citizen and the Panchayat..................................................................................................102 1.THE APPENDICES.................................................................................................................104
Roadmap for the Panchayats in West Bengal Benchmark for Implementation Strategy of Roadmap ...........................................................104 9.1Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the Constitution..............................................................................................................................139 9.2Self Evaluation Format for GPs..........................................................................................159
Roadmap for the Panchayats in West Bengal THE NEED FOR A ROADMAP Evolution of Rural Local Governance in West Bengal Conceptualization of the present role of Panchayats in the rural polity has charted a historical course from time immemorial. Panchayats in the village in ancient India was a looselyformed body of the village elders, who used to resolve disputes among the villagers, looked after the common interests and tried to contend, often ineffectually, with external onslaughts. Since the life, especially the rural life was simple in those days; the Panchayat also had simple roles. In pre-independence era, the colonial rulers constituted Panchayats with acquiescent people assigning certain functions of palliative nature. Those Panchayats often acted as buffer walls against various grievances of the village people. Post-independence first generation of Panchayats, which came up in late fifties and early sixties of the last century, were constituted in the wake of the report of the Balwant Rai Mehta committee. Those were envisaged to be institutions that would reflect aims and aspirations of the people they represent and would help in steering the development programmes for their benefit. These Panchayats ultimately failed to deliver because of certain basic flaws in their composition and ideological approach and lack of political will for devolution. The major flaws in these institutions were (i) the Panchayats constituted particularly at the higher tiers consisted of a large number of members indirectly elected and therefore were not truly representative in character, (ii) the functional mandates for these institutions were neither clear nor coherent, (iii) they were on various issues, controlled and regulated by the appointed executives of the state government and (iv) the institutions were almost entirely dependent on contributions and grants from the government, which was too little and they were endowed with very limited opportunity for building up their own financial resources. Besides, the mandate for holding regular elections had no compulsive force since it was not backed by any legal sanction. Socio-politico environment of the period also did not lend support to these institutions and did not care for regular elections for their reconstitution.
Roadmap for the Panchayats in West Bengal The second generation of Panchayats constituted in 1978 under the aegis of a new Act, viz., The West Bengal Panchayat Act, 1973 (West Bengal Act XLI of 1973), brought some fresh air in the Panchayat system. The members in all three tiers are elected through universal adult franchise. Elections at regular intervals have been made mandatory without any discretionary power of any authority to postpone such elections indefinitely [sections 7, 96 & 141]. Powers to collect tax and non-tax revenue are clearly defined. Functional domain of the Panchayats is more clearly delineated as compared to earlier Panchayats. The new legislation empowers the Panchayats to spread its wings in various fields of activities encompassing rural life. On this issue, provisions relating to the functional ambits of Gram Panchayat may be examined. Its roles in the education and mass education extension [section 20(1)(a) and 21(o)], health support, curative, preventive and environmental [sections 19(a), (b), (g), 20(1)(b), 21(h)], supply of drinking water [19(c) and 21(c)], agriculture [20(e), (j), (l), (m), 21(d)], irrigation [20(d)], animal resources development [20(h)], village plantation [20(k), 21(b)], cottage industry [21(i)], social welfare [20(f) and (g)] has been delineated. In fact, the provisions under section 19 to section 28 lay down various powers and functions of the Gram Panchayat with the objective of uplift of rural life. Although on some issues, the provisions are inadequate or ambivalent or not sustainable without supportive order or opportunity, powers and functions assigned to the Panchayats cover almost the entire spectrum of rural life and livelihood and these institutions have been very clearly recognized as the most dependable vehicle for rural development. In course of a little more than another decade, the role of Panchayat has been further expanded and its functional area has been increasingly extended to include additional activities. All poverty alleviation programmes sponsored by the Government of India or otherwise, have been assigned to the Panchayat institutions (major portion to the Gram Panchayat). In any programme or scheme for extending any benefit to the weaker section including Schedule Castes and Schedule Tribes, the Panchayats even when it is not implementing the scheme, has been assigned the definite role of selection of sites and of beneficiaries relating to such schemes. In public distribution system, Panchayat institutions have been assigned the powers to intervene by way of supervision and monitoring. The Panchayats have been given a space for taking initiative in the field of raising nutrition level of the poorer people. However, through a recent amendment of the W.B. Panchayat Act, the Panchayats have been given more clearer functional responsibilities for taking up various works as provided under Eleventh Schedule of the Constitution. It is however a fact that despite larger powers and responsibilities of the Panchayats, the major role of the Panchayat during the eighties and early nineties, remained largely confined to acting as the delivery mechanism of the programmes of the Central and the State Governments and their own initiatives were not of very high order. Major Activities of the PRIs of the State Since 1978
Roadmap for the Panchayats in West Bengal The panchayat election in 1978 was a trendsetter, as it broke new grounds in two areas. First, for the first time in the country the political parties were allowed to contest elections openly with their party symbols. Secondly, direct elections were held to all the three tiers. Previously, the practice followed in all the states was to hold direct election to only the lowest tier and indirect election to the other tiers. In another way also the panchayats set up in 1978 were different from those of the rest of the country. Those who came to the leadership of these bodies through elections did not belong to the traditional upper stratum of the rural society, namely the landed gentry, who lost their economic and social power substantially due to massive vesting of ceiling surplus lands in the late 1960s and early 1970s. The new leadership came largely from the class of middle peasantry and professional groups like schoolteachers. It is the only state in the country where Panchayat elections have been held with clock-like regularity since 1978. No constitutional support was needed for this. The state was self-motivated to ensure continuity of the institution. Immediately after the new panchayat bodies took position, the state experienced one of the worst floods in 1978 that rendered thousands of people homeless and caused enormous loss of food crops, livestock and other moveable property. The entire work of flood relief and post-flood reconstruction work was entrusted to the newly elected panchayat bodies. They shouldered this responsibility in exemplary manner demonstrating unmistakably the strength of these representative institutions in providing services that require intimate knowledge of the grassroots and responsiveness to the local needs. Thereafter the state government entrusted implementation of the ‘food-for-work’ scheme – a wage employment generation scheme sponsored by the central government. At that time it was certainly a bold step. For, there was hardly any precedence either within the state or, for that matter in any other part of the country, to entrust the Panchayats with the responsibility of implementing very important development programmes practically without the control and supervision of the district bureaucracy. The programme relating to rural water supply was also handed over to them. Panchayat and Land Reforms – West Bengal had a very high level of rural poverty as compared to many other states and the all India average. In 1973-76, when the all India rural poverty was at 56 per cent, as much as 73 per cent of West Bengal’s rural people lived below the poverty line. The wide difference however has narrowed down, more so after 1987-88. During the period from 1983-84 and 1987-88, rural poverty in West Bengal registered a fall of 15 percentage points from 63 to 48 per cent. The declining trend continued and as a result, rural poverty in West Bengal in 1999-2000 came down to 32 per cent, which is much closer to the national average of 27 per cent. In fact, in terms of the rate of reduction in rural poverty, West Bengal came next only to the state of Kerala. While agricultural growth seems to be the most proximate reason for the sharp decline in rural poverty various scholars have identified land reform and institutionalization of panchayats as the most crucial factors that could account for both accelerated agricultural growth and poverty reduction. (Dasgupta 1995, Saha and Swaminathan 1994, Rawal and Swaminathan 1998, Lieten 1992, Mukharji and Mukhopadhyay 1996). The measures taken up in the land reform programme of West Bengal consist of the following
Roadmap for the Panchayats in West Bengal • Vesting of ceiling surplus lands in the state, the ceiling of agricultural lands one can hold being fixed by the West Bengal Estate Acquisition Act and the Land Reform Act (as amended from time to time) of the state. (There are separate ceilings for irrigated and non-irrigated areas). Taking possession of vested lands by the state and distribution of the same to the landless and the land-poor households. Registration of bargadars (sharecroppers) to ensure security of their tenure and fair share of the produce, as per the provisions of the Land Reform Act. (Previously, the contracts between the landowners and the sharecroppers were invariably oral, as a result of which they used to receive disproportionately less share of the produce of the land and were subjected to arbitrary eviction and other extra legal extortions.) Distribution of homestead lands to the poor who had no title over the lands of their shelters.
Roadmap for the Panchayats in West Bengal Beyond its direct effects, which are measurable, the land reform did have many other beneficial effects upon production and productivity, such as, bringing ‘peace to the countryside’ (though that happened after the initial disturbances, which led to many law and order situations, for establishing the new order) and creating an investment-friendly ambience, transformation of a rentier class into productive agents and the rise of the middle peasantry as enterprising cultivators. Land reform could provide substantial relief from the clutches of acute income-poverty to a large section of rural people. Removal of an important element of dependence and vulnerability of the land owner by the land-poor or the sharecroppers must have made a profound impact upon various aspects of the rural society, including dignity of the sharecroppers and the assignees of the vested land, and the rural economy. Panchayat’s most important role in land reform has been in respect of selection of the beneficiaries for distribution of vested lands, and helping the beneficiaries to exercise their rights against the powerful land owning class. The Panchayat Samiti – the intermediate level panchayat – has been given the authority to select the beneficiaries. Identification of so many beneficiaries spread over innumerable villages was not an easy task for the bureaucracy. Panchayat & Alleviation of Rural Poverty – The Panchayats of the State has been entrusted with the responsibilities for implementation of all programmes directly aimed at alleviation of rural poverty. After 1978 all the centrally sponsored poverty alleviation programmes beginning with the Food for Work programmes and IRDP have been gradually entrusted with the Panchayats. There are several studies and concurrent evaluations by the GOI showing better targeting of both the employment generation and self-employment programmes, which have contributed in faster decline of poverty in the State as mentioned above. In fact alleviating poverty has been a core activity of the Panchayats of the State right from the beginning. Apart from economic gains of the poorer sections the major contribution of the Panchayats has been providing dignity to all of them and enhancing their freedom to participate in various development programmes. The Panchayats are also associated with various social security programmes and are instrumental in reaching those benefits to the poorest sections. Availability of all those services from the Gram Panchayats have helped the people to access the same and ventilate their grievances in case of failure, which keeps a check on the quality of those services.
Roadmap for the Panchayats in West Bengal Panchayats and Agricultural Growth – In spite of being endowed with rich natural resources and favourable climatic conditions including large areas of alluvial soil, abundant surface and ground water resources and good amount of rainfall, West Bengal was characterized by agricultural stagnation from the time of independence to the 1970s. For many decades, the state lagged behind the national average in terms of the growth of agricultural production. James Boyce (1987) estimated that between 1949 and 1980, the annual growth rate of agricultural output in West Bengal was only 1.74 percent. But the scenario started changing since the early 1980s. Between 1981 and 1991, the food grain production of West Bengal grew at an annual growth rate of 6.5 percent, which was highest among the 17 major states of the country. Taking 1981- 82 as the base year, it is observed that with the exception of 1982 – 83, when the state suffered from severe drought, agricultural production increased more or less constantly up to 2000 – 2001 and since 1996 – 97 the state has been producing double the amount produced in 1981 – 82. The increase in agricultural output of West Bengal has been mainly driven by an increase in productivity rather than increase in agricultural area. 81 percent of the growth in agricultural output can be attributed to the growth in productivity. (Saha and Swaminathan, 1994). This trend has continued even in the 1990s. While agricultural area of the state increased by only 10 percent during the last two decades (from 1981-82 to 2000-2001), there has been 90 percent increase in productivity during the same period. Land Reforms for which the Panchayats played a crucial supportive role and helping the marginal producers with inputs including minor irrigation by the Panchayats played an important role in achieving the growth in production. Along with the agricultural growth since early 1980s, agricultural wages have also increased. The most proximate reason for this is the higher demand for labour because of higher productivity and cropping intensity of agricultural lands. While in 1981 – 82, the average daily wage rate was not even Rs. 10, it increased to more than Rs. 55 during the last two decades. It is also observed that the wages have increased at higher rate during 1990s than that in the 1980s.
Roadmap for the Panchayats in West Bengal Many scholars have noted close relationship between agricultural growth and the institutional reform of Panchayats.1 One of the reasons for this is that apart from the services provided directly by the Panchayats for facilitating the growth process, this linkage has to be discerned from the intangible, but valuable, contributions made by them in creating a production-friendly environment in the countryside. One of the areas where the Panchayats made important contributions relates to the creation of local public assets. Creation of infrastructure for improving communication or for irrigation facilities has facilitated the growth process. The involvement of Panchayats in creating and maintaining local public assets has made a qualitative difference. First, fixation of priorities and ‘location decisions [of Panchayats] for various facilities correspond relatively more closely to the felt needs of rural population’. Second, being relatively more transparent than a bureaucratic institution, chances of funding on ‘bogus schemes’ are much less in Panchayats. Thirdly, the individual schemes undertaken by the Panchayats are small, but the schemes executed every year by them are large in number. No centralized bureaucracy could handle the planning and implementation activities of such large number of small schemes spread over numerous villages. A recent survey shows that among the recipients of the ‘mini kits’, the share of small and marginal cultivators is noticeably high, amounting to approximately 87 per cent of the total kits distributed (Bardhan and Mookherjee 2004). The Need for Change Although iconic shift in the role and relevance of the Panchayat in the development matrix has been gradually taking place for some time, the amendment of the State Panchayat Act in 1994 following the 73rd Constitutional amendment has brought in the major change in policy and programme relating to the Panchayat.
The wages have increased at higher rate during 1990s than that in the 1980s. (BAES, Economic Review). Between 1979 – 80 and 1992 – 93, West Bengal showed the highest rate of growth of wages among all states (Rawal and Swaminathan, 1998). According to another calculation as quoted by Rawal and Swaminathan (1998), the daily wage rate for male agricultural labourers in terms of rice increased from 2.56 kilograms in 1983 to 5.07 kilograms in 1990. Though the information on wage rate of female agricultural labourers of West Bengal is not available in any government report since 1980s, some studies reveal that male-female wage differential is either non-existent or insignificant in rural Bengal (Rawal and Swaminathan, 1998, Sengupta and Gazdar 1997).
Roadmap for the Panchayats in West Bengal In order to make the Panchayat institution an effective tool for socio-economic development of the rural population, it is not enough to leave the entire initiative to the people’s representatives elected through regular elections. The elected functionaries are representatives but not substitute of the people. Therefore, there is need for further deepening and strengthening the process of decentralisation for wider and more effective participation of the people. The Panchayat bodies particularly those at the lowest levels must have continuous interaction with the people and must be responsive to their needs and aspirations. The higher tiers of Panchayats should interact continuously with the lower tiers. Such interaction with the people is deemed to be achieved not only through frequent meetings of the Gram Sansads, and institutions at the lower level, proper functioning of the Gram Unnayan Samiti, and regular meetings of the Block Sansads and Zilla Sansads, but also through dissemination of information to the people and collection and collation of their reactions for improvement of the planning and implementation process. Organinsing the poorer section and raising their voice for placing their felt needs only can make the planned interventions meaningful to their lives in contrast with the top down plans which by and large are not so well integrated and effective to their needs.
Roadmap for the Panchayats in West Bengal The Panchayats have now been empowered under the State Act as also under the Constitutional mandate to prepare development plan – perspective plan for five-year span and annual plans on its basis – with regard to resources available and also implement schemes for economic development and social justice as may be drawn up or entrusted upon them [section 19(1)]. An initiative has recently been taken to amend section 19 of the State Panchayat Act accentuating the role of the Gram Panchayat as a unit of self-government for achieving the goal of human development including social and economic development and securing social justice for all. It has further been laid down that in order to achieve the aforesaid goal, the Gram Panchayat shall prepare a development plan for five years, an annual plan based on Gram Sansad plan for each year and shall implement schemes under such annual plans as also schemes entrusted upon, transferred to or devolved upon it. Sub-section (2) of the said section has been amended to delineate the major thrust areas of the Gram Panchayat which have been enumerated as promotive and preventive health care including improvement of nutritional standard and community health management, pre-school and primary education as also parallel and mass education, development of women and children with empowerment of women and formation and facilitation of self-help groups, social welfare including welfare of the weaker sections, development of livestock, promotion of agriculture including irrigation facilities, development of fisheries, promotion of cottage-village-mini industries with welfare of artisans, improvement of the scope and quality of public distribution system, construction of minor irrigation system including water management and watershed development as also their maintenance and equitable distribution of benefits, construction and maintenance of various sources of safe drinking water, construction, maintenance and protection of public roads, promotion of social forestry and similar initiatives for development of plantation and environmental sanitation including management of polluted water and social waste. The amendment proposal has since been passed by the State Legislature and is likely to come in force in no time. The provision clearly indicate that the development effort should have a multi-faceted approach for improvement of quality of life of the people including its weaker groups so as to enable them to identify themselves as active partners in the process. By inference, such plans should have a holistic approach embracing all aspects of rural life. They should also be prepared in such a manner so that they have sustainable effects. In other words, each annual plan shall be built upon the progress made through the preceding annual plan. In all cases, such plan should have realistic approach based on the financial, human and other resources available. It has been mentioned earlier that the Panchayat should have continuous interaction with the people since they are source of their power and authority and since their active participation shall ensure the success of the planning process. Transparency in all stages of functions is a sine qua non for achieving the desired goal of improving the quality of life of the weaker section of the community as also community as a whole. Besides, it is necessary to bear in mind that the human nature is intrinsically acquisitive and tend to occupy the central position in the process of decision-making and implementation. This phenomenon should be curbed by making all decision-making processes collective and participatory.
Roadmap for the Panchayats in West Bengal In order to make the functions of the Panchayats more responsive, decentralized, transparent and accountable, certain legislative initiatives as shown below, has since been taken:(a) Sthayee Samitis (Standing Committees) at the Zilla Parishad and the Panchayat Samiti level were constituted earlier, such organs remaining responsible to the main body; they function as the executive arm for implementing programmes and schemes in various fields of activities. (b) In the year 2003, five Upa-Samitis have been constituted at the Gram Panchayat level; their functions are similar to that of the Sthayee Samitis. (c) In the year 2003, provisions have been made so that opposition members are represented in each Sthayee Samiti. (d) Also in 2003, Block Sansad and Zilla Sansad has been constituted as accountability forums for Panchayat Samiti and Zilla Parishad (e) Gram Unnayan Samitis constituted by the Gram Sansad, shall be the executive wing of the Gram Sansad and act as an extension arm of the Gram Panchayat. (f) It has been emphasized that all major initiatives of the Gram Panchayat shall be validated by the Gram Sansad; on certain issues, initiatives shall begin at the Gram Sansad level. (g) District Council for Panchayats have been constituted with the leader of the major opposition party in the Zilla Parishad as its Chairperson, with effect from 1994; the Council is empowered to examine whether financial norms and propriety is observed in the functional ambience of all Panchayat bodies within the district. It is proposed that the composition of the Council may be made a little more representative by bringing in larger number of members of different political colours so that impartial and balanced approach in all matters may be ensured. Besides, at present, the Council has an advisory role. Without prejudice to this role, the advices and recommendations of the Council may be given more importance and it may be enjoined upon the Zilla Parishad and the District Magistrate (when necessary, the State Government) to issue specific directions on the basis of its advices and recommendations. It may also be provided that the advices and recommendations of the Council should be placed before the auditors at the time of their inspections for their consultation. It is felt that these measures are yielding good results in functioning of the Panchayats. There is, however, scope for considering further initiative through legislative as also executive route for making the Panchayats more functional and responsive. In order to make the Panchayat a successful vehicle for socio-economic development, the following strategic approaches are necessary: • In all development initiatives, participation of the people should be ensured. They should be sensitized and made to feel about their ownership in the process. • Plan should be prepared on the basis of resources available – local resources, human and material and external resources from the government, non-government or financial institutions. Productive aspect of all such resources should be explored and dovetailed suitably with different programmes and schemes. • Plan should address the immediate felt-needs of the people and should aim at improving their quality of life. Plan should be prepared and implemented in a
Roadmap for the Panchayats in West Bengal manner to bring some beneficial impact in the livelihood of the poorer section. This will help them to identify themselves with the planning process. For this purpose, bottom-up planning should be resorted to. In other words, planning process should start from the Gram Sansad level. Apart from the schemes for economic development of the marginalized families, planning process should cover the areas (i) education, (ii) nutrition, (iii) health and sanitation and (iv) social security of such people. Apart from building up additional facilities in these areas, it is necessary to ensure that the families living in the peripheral area of the society should get equal opportunity from such facilities. In order to make such programmes successful, promotional and motivational initiatives should be taken up by making them a part of the planning process. In order to enable the Gram Panchayat to formulate and implement such plan, capacity building of the Gram Panchayat is an imperative necessary. A sustained programme should be drawn up for a major thrust to enable all functionaries at the Gram Panchayat and sub-Gram Panchayat level to function and discharge their responsibilities at the desired level.
The Government will provide opportunities and incentives for a fundamental shift of culture by putting in place a renewed framework in which Panchayat bodies in West Bengal will operate. That will not only include aspects of planning and implementation for faster and more equitable economic development and social justice, there will be more focus on better delivery of quality citizen services for ensuring better quality of life for all. This will address the weaknesses and shortcomings in the existing framework, and allow and encourage the Panchayat bodies to be more participatory, transparent, accountable and responsive. It will open the door to more effective local political leadership, to reinvigorated local democracy, and to improve quality and expansion of local services. Only if Panchayats whole-heartedly embrace this agenda for change will they be able to meet the needs of local people, businesses and the voluntary sector in their area, and fulfill their potential to lead their communities. It is local government, not state government, which has that vital local day to day relationship with people. Government programme is setting out an agenda for central and local government to work together. Within the conceptual framework designed, local government too needs to change and modernise, so that people everywhere can have the quality of life they have the right to expect. Bringing About Change Since 2003 the Government in the P&RD Department has been trying to accelerate the pace of rural decentralisation through various changes in the legal and administrative systems supporting the Panchayat bodies. A wide range of consultation was also initiated subsequently as a part of an initiative for “Strengthening Rural Decentralisation”. The main areas for the changes are: • Amending the W.B.Panchayat Act and Rules framed under it to enable the Panchayat bodies to function in a more effective manner
Roadmap for the Panchayats in West Bengal • • • • • Defining the functional domain of the Panchayat bodies more specifically to enable them to focus their activities in improving the quality of services delivered by them and respond to citizens demand for diversifying the areas of service Improving capacities of the Panchayats including providing additional manpower support to the Panchayat bodies Putting in place a structured system for preparing and implementing participatory plans at the village level and their integration with the plans prepared by the Panchayat bodies Taking up in depth studies of various management practices of the Panchayat bodies for business process re-engineering. Taking various steps for improving the ethical and functional framework for good governance and better delivery of citizen services.
This Roadmap is about the proposed roles and responsibilities of the Panchayats and how to reach the goals including the steps the Government should take for affecting the changes. It charts the future path of the decentralisation agenda for Panchayat bodies of West Bengal. The Roadmap will set out a strategy to give a bigger say for local people by • activating the new political structures and widening democratic functioning of the PRIs, • strengthening financial and administrative accountability, • establishing a new ethical framework projecting dignity for every citizen irrespective of their socio-economic status to encourage participation for all in affairs of the community, • improving local services to be judged by the citizen, • promoting the well-being of every one and achieving greater equity and will focus on outcomes concerning various components of human development.
Roadmap for the Panchayats in West Bengal Approaches for the Roadmap
Roadmap for the Panchayats in West Bengal The Roadmap for the PRIs of West Bengal has been prepared based on the evolution of the system that has taken place so far and capacities acquired in delivering various services. The process of evolution has been guided by both the top down and the bottom up factors. The former relates to the steps taken from above by the State Government in assigning responsibilities and resources for delivering various services, which has been mostly structured in the lines of various schemes. The later relates to the demand from the people below, which impelled the Panchayats to deliver certain services sometimes without any mandate from above. The former is the supply driven and the later is the demand driven progresses in the process of evolution of the Panchayats in the State. Panchayats in West Bengal may be characterized by existence of a strong demand driven process of evolution in owning responsibilities and in future also the process should be facilitated through building up of capacities to enable the Panchayats to take on new responsibilities of their own. This also reaffirms that Roadmap for the Panchayats of the State will not be merely the Roadmap for devolution of responsibilities by the various departments of the State Government through the conventional exercise of activity mapping and assigning responsibilities from above but also the Roadmap for developing various capacities within the PRIs so as to respond to the need-based demands of the people and acquire more responsibilities of their own for realization of such demands, depending on local needs and aspirations. This process should be guided by setting milestones in various fields related to socio-economic development of the people so that the PRIs may work on their own, irrespective of formal devolution to reach those goals. In fact devolution through activity mapping provides certain space to the Panchayat bodies, which were so far occupied by the Government, but the experience shows that much space is available beyond that occupied by the Government and a pro-active Panchayat may tread on such spaces uncharted so far provided they have the capacity to do so. To provide due authority to the Gram Panchayats for taking activities related to those functions the W.B. Panchayat Act has been proposed to be amended shortly through which specific responsibilities shall be assigned to the those bodies by the State legislature. This assignment shall not reduce the responsibility of the state government in any way but shall also encourage the Panchayats to be more proactive in many areas, sometimes independently and sometimes in collaboration with the State Government. One can argue that those are not exclusive functions but concurrent jurisdiction of the Panchayats in taking up those activities. The considered views of the State Government is that in the present context it is more logical, pragmatic and productive to provide concurrent jurisdictions, which will help the Panchayats to acquire adequate capacities in voluntarily taking up those activities or utilizing the infrastructure and expertise of the government machinery on suitable occasions; the State Government may in due course provide exclusive responsibilities as and when the same will be necessary and appropriate. It is envisaged that the Panchayats of the State will be engaged broadly in three types of activities. The first one is the regulatory functions of the Gram Panchayats and it has been decided that section 21 of the State Panchayat Act shall be suitably amended to enunciate such regulatory functions of the Gram Panchayat. The proposed section 21 encompassing such regulatory functions, shall enlist, inter alia, functions relating to according permission for erection of new structure/building, assessment and collection of taxes, rates and fees under the Act, registration of trades, registration of vehicles not registered under the Motor Vehicles Act, 1988, registration of shallow or
Roadmap for the Panchayats in West Bengal deep tubewells with motor-driven pump-sets installed for commercial purpose, registration of birth and death in the area, management of Gram Panchayat Fund, relief of distressed persons, drainage of rain water or accumulated water, preventive measures on epidemic, establishment and control of ferries, establishment and control of burning ghats, control of eating places enforcing hygienic practices and maintaining street lights where deemed necessary. This provision shall empower the Gram Panchayat to control and regulate private activities to ensure planned growth, to generate and maintain certain data for making future plans and to run its own administrative machinery. The envisaged amendment shall also identify some of the complementary functions of the GPs for improving the quality of life of the people. Another section 21A shall be provisioned in the proposed Amendment Act referred to in this paragraph, indicating complementary activities which should be undertaken by the Gram Panchayat for good governance and for frequent interaction with the people to sensitise them about their rights as also responsibilities and to make them conscious about their stake in the development process. Such activities are, inter alia, generation of awareness among the people on their role in the development process ensuring their participation in all stages of development beginning from preparation of development plan, enhancement of livelihood opportunities of the people, organizing voluntary labour for collective activities, organizing campaign against social evils, creating legal awareness among disadvantaged sections about their rights, maintenance of community assets, awareness building on civic responsibilities, promotion of co-operative movement, prevention of food adulteration, encouragement for consumption of bio-gas, providing bathing and washing ghats and construction of waiting sheds for travelers. The provision shall emphasize the need for building awareness among the people about their rights as also responsibilities and also the need for better life of the people. The second types of activities are those which will be assigned on the Panchayats to perform tasks on behalf of the State as an agent of the Government. The Functions assigned to the different tiers of the Panchayat bodies at different levels are detailed in the table at Appendix II. Implementation of many of the poverty alleviation schemes come under this category. In implementation of these programmes, the role of Panchayats is not actually limited to agency function only. Because of nearness to the people, they can select the right nature of schemes that will not only generate employment but create durable assets of the society for sustained development and for improvement of quality of life of the people. Besides, the Panchayats are best placed to select the proper group of beneficiaries for the related schemes and programmes with special emphasis on the disadvantaged groups of the community. Third types of activities, which are gradually gaining strength, are those which are taken up by the Panchayats neither as a devolved function nor as an agency function but those are taken up concurrently by the Panchayats for economic development and social justice for the people residing within its area and the proposed amendment of the W.B. Panchayat Act shall give legal authority to the Panchayats to do most of those activities. The Panchayats are required to keep the broad objectives of development of the state and existing interventions of the Government in mind to plan and implement schemes to strengthen the effort of the Government and execution of such activities depends on availability of fund and acquiring capabilities by the Panchayat bodies. The State Government should facilitate both building up capacities as well as augmenting resource of the Panchayats for strengthening local interventions by the
Roadmap for the Panchayats in West Bengal Panchayats. The sector specific Roadmap presented below takes into account all those types of activities and try to spell out the goals and the processes through which the same will be achieved and what will be the role of the State Government in that process. STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS Introduction Panchayats as democratic institution are to function with the active leadership of the elected functionaries. However, the elected functionaries are mere representatives of the people and not their substitutes. Though this is true for all elected bodies but the same is more significant, particularly at the lowest tier of the Panchayat, because they function with local issues requiring more active participation of the people. This chapter describes how the democratic functioning of the Panchayats will be strengthened and expanded for more widely and effective participation of the people, particularly the weaker section of the community and how to build capacities at all levels for achieving the same. Participation at the Village Level
Roadmap for the Panchayats in West Bengal Several changes have already been made in the W.B. Panchayat Act and Rules framed under the Act for expansion of democracy through more participation of the people in planning and implementation of various developmental activities at the village level. Though there is mandatory provision for calling meeting of the Gram Sansads for discussion and approval of local plans, the participation is still low. Legal changes have been made to entrust more responsibility including execution of schemes involving less fund and simple technology by the villagers themselves through constitution of the Gram Unnayan Samiti (GUS). The GUS is not a new tier of Panchayat but an integral part of the GP. GUS will be the representative body of the villagers at the village level to continuously interact with the people and maintain liaison with the GP. Proper functioning of the GUS will ensure more active involvement of the people in designing and ensuring their own development. However, to make it happen more than 45,000 GUS are to be formed and enough capacities to be built up to make them functional. The goal will be to form all the GUS, building capacities of their members and involving them in low cost or even nocost activities for their own development as well as implementing some of the Sansad level plans to be assigned to them by the GPs within the next five years. The outcome will be measured by participation of at least 20% of the citizen in the Gram Sansad meetings and ability of the GUS to help in preparation and implementation of Gram Panchayat plans showing Sansad-wise break up. Experience shows that the activities, which can be planned and taken up at the Sansad level, though small in size yielding limited benefit in isolation, have considerable impact when multiplied and are very important in the local context. For this purpose, there is no need for devolution of functions by the State Government as no such micro-level activities are planned or implemented by the State Government. The main challenge is to improve the social capital at the village level and organizing the GUS involving all political parties and various sections of the community including the women and the poorer sections as provided under the rules and improving their capacities to be able to plan and implement micro-level interventions with whatever resources they may get hold of.
Roadmap for the Panchayats in West Bengal Organizing the Poor for Their Participation in Panchayats
Roadmap for the Panchayats in West Bengal Making legal provision and providing structural framework is not enough for the poorer section of the community and the women to participate in the process of development. In order to have their voice heard they are to be organized in groups and their capacities are to be increased for being able to voice their demands and influence functioning of the Panchayats in their favour. This will be done by organizing the poor, particularly the women in Self Help Groups (SHGs). SHG movement, especially of women, in the State has gained a lot of momentum and more than four lakh SHGs have been formed out of which majority are women. Organizing the poor in groups will be strengthened further through the initiatives of the Gram Unnayan Samiti, Nari, Sishu Unnayan O Samajkalyan Upa-Samiti of the Gram Panchayat and Sishu O Nari Unnayan, Janakalyan O Tran Sthayee Samiti of the Panchayat Samiti so that every poor rural family has at least one member included in an SHG. Under the guidance of PRDD, special drive will be taken up by the Block level officials with active support from the DRDC to improve their understanding of the socio-economic situations in their own context and services available for its improvement so as to enable them to avail of those services and participate in social and economic development of the area including augmenting their own income. All of them will be provided, with facilitation from the State Government machinery and the Bankers Committees like SLBC and DLBC, access to credit from banks/financial institutions within the Eleventh Five Year Plan period. Office bearers of the Panchayats particularly at the Gram Panchayat shall render their support in the negotiations with the Banks for extending credit facilities to these poor groups. Their achieving minimum level of income will be crucial for being able to participate freely, which is essential for expansion of democracy. Legal provision has been made for their representation in the GUS. Also, the SHGs are being organized further in Clusters within the GPs and the Clusters are being federated in bigger bodies known as Federations in each Block. Those are being formed by the women SHGs in general and men are also involved in certain areas. Orders have been issued for representation of the Clusters and the Federations in the Upa-Samitis and Standing Committees of the GP and the PS respectively, as invited members, so that the they can give their feedback for decision making in their favour and whatever decision is taken can be communicated to their members for wider knowledge and participation. The task is to form Clusters and Federations in all the GPs and PSs respectively within the Eleventh Five Year Plan period so that every Upa-Samiti and Standing Committees has representations of the poor group of women to act as a pressure group. Though they will not have voting rights, they will function as the watch dog of the poorer section and the women as well as to influence those bodies to protect and promote their interests. The process will also strengthen the civil society to build up healthy pressure on the Panchayats to remain pro-poor in their functioning and to pay enough attention to the issues relevant for the women. The Government proposes to take up a time bound programme for federating the SHGs within the year 2012 as mentioned. In order that the Clusters and the Federations can function and work for the development of their own members they need to function in close association with the PRIs. Within the period mentioned every Cluster and every Federation will have their office within the premises of the GP or the PS, as the case may be, or will have their own offices in the immediate vicinity of the Panchayat offices. The Gram Panchayats and the Panchayat Samitis shall extend active co-operation to this process. Building capacities of the Panchayats to utilize the Clusters and Federations as
Roadmap for the Panchayats in West Bengal their agents for poverty alleviation and making social changes for upliftment of the women will be an important task to be achieved within the said period. Respective roles of the Panchayats as also the State Government along with a time frame for different functions have been captured in the Matrix showing implementation strategy in item No. 2 of the key issues under the heading ‘Organising the poor for their participation in Panchayats’. Strengthening Functioning of the Upa-Samitis and Standing Committees
Roadmap for the Panchayats in West Bengal The process described in sections 2.2 and 2.3 will strengthen vertical decentralization for active involvement of the people at the village level and those, particularly the women belonging to the poor community, in the affairs of the Panchayats. There is also need for horizontal sharing of power and responsibilities in functioning of the Panchayats. All the three tiers of Panchayats now have standing committees (the committees at the GP level are known as Upa-Samitis), whose roles have been broadly specified. Guidelines have also been laid down for their functioning. This is the forum for developing appropriate coordination and convergence of activities of the Panchayats and the State Government through its line departments. While some of the functions of the State Government have been devolved on the Panchayats there are other district sector activities, which will be implemented by the respective departments. In such cases also all the decisions related to planning should be taken in consultation with the Panchayats in general and the Standing Committees in particular, which is in consonance with the guidelines for formulation of the Eleventh Five Year Plan. In respect of district sector schemes of the line departments the Panchayats will be required to play a stewardship role in reaching full benefit of the programmes to the people and ensure convergence with its own activities either as a part of the devolved function or as per their own initiatives beyond the periphery of such devolution. In respect of the District sector activities which are to be devolved on the Panchayats, the Standing Committee will formulate its own plan keeping the broad policy of the State and the local needs in mind. The Development and Planning Department of the State Government has laid down the policy and principles of the Government in this respect. In its communication to all departments of this Government, it envisaged that all schemes shall be split up into two groups – one for implementation by the departmental machinery and the other for implementation by the local bodies i.e. the Zilla Parishad, Panchayat Samiti, Gram Panchayat and urban local bodies. Such schemes will be assigned, inter alia, to the Zilla Parishad, Panchayat Samiti or Gram Panchayats in consideration of their territorial jurisdictions as also the administrative, technical and financial requirement of any of these schemes. Such assignments will be coupled with flow of fund and technical support where necessary. Such schemes shall be drawn up with their focus on human development with special emphasis on concerns of women and children. Besides, Scheduled Castes, Scheduled Tribes and backward areas should get their due shares of such schemes. This methodology is in process and is expected to begin its course on and from 2007-08. Both in case of implementation by the departmental officials or by the Panchayat body itself, there is need for regular interactions between the Standing Committee and functionaries of the concerned departments at the appropriate levels. The Standing Committees have representation of officials of the line departments of the appropriate levels and there is need for more convergence of activities related to the own district sector programme of any department as well as devolved functions related to the department for which decisions are primarily taken by the Standing Committees.
Roadmap for the Panchayats in West Bengal At present the functioning of the Standing Committees are still weak and there is need for both development of capacities of the elected members of the Standing Committees as well as changing the attitude of the official members for their better participation in functioning of the Standing Committees. The linkage between the State level functionaries and the Standing Committees of the Zilla Parishads are also weak and varies widely for different departments. The State Government will ensure interactions between the State level functionaries, including ministers in charge of departments and the elected members of the Standing Committees of the Zilla Parishads at least once in a quarter for guiding and apprising them of the State policy and development programmes. The district level officials will interact with the members of the Standing Committees at the Block level. There will be similar integration of activities between the Block level standing Committees and the GP level Upa-Samitis. The proposed system may be accommodated well within the existing legal framework. At present, the district-level officers of different departments are appointed members of one or other Sthayee Samiti of the Zilla Parishad. Likewise, Block level and sub-Block level officers are members of the Sthayee Samitis of Panchayat Samiti and Upa-Samitis of the Gram Panchayat. In some cases, higher level officers have also been made members of a lower tier Panchayat. Besides, a Sthayee Samiti may invite an officer/functionary for facilitation/discussion. It may also be mentioned that the policy of linkage and interaction is pronounced in the Act by making the MPs and MLAs ex-officio members of the Zilla Parishads and the Panchayat Samitis and by making Zilla Parishad members and Panchayat Samiti members ex-officio members of the Panchayat Samitis and Gram Panchayats from where they are elected. Based on this analysis, there is no legal obstruction if a higher level officer or functionary attends any meeting of a Sthayee Samiti for discussion or deliberation. In fact, it will strengthen the process of interaction and collaboration envisioned in the Act. The Sthayee Samiti may invite such persons suo motu in consideration of the issue involved or at the suggestion of an officer-member. This will ensure convergence of activities of the State and the Panchayats and will help taking up various concurrent activities for promoting the same goals without duplicating each other’s effort. For example if the Agriculture Department feels that growing of oilseeds will be promoted in certain area they may take up distribution of mini-kits for oil seeds in consultation with Standing Committees concerned and at the same time the Panchayat may also decide to increase the coverage by distributing additional mini-kits out of their own fund and may also provide other local supports like extension of irrigation. This is in fact happening in a very small scale and the strategy will be to develop capacities at all levels so that the Panchayats join hands with the State Government to intensify development activities with its own resources. Since the programmes with umpteen number of sub-programmes are varied and divergent, it is not possible to suggest a rigid line of action in this regard. The Sthayee Samitis / Upa-Samitis or the Panchayat bodies shall be required to shape their decisions on the basis of the local needs and available resources to meet that need. This will also help better implementation of the State plans because of convergence of activities at the lower level.
Roadmap for the Panchayats in West Bengal One essential requirement for proper functioning of the Standing Committees is to have their own budgets. The process is to start with allocation of budget Standing Committee wise before starting the planning exercise for the next year. Provisions have been made for taking all those steps and financial power of each Standing Committee has been prescribed for all the three tiers. For decisions involving higher amounts approval of the Standing Committee on Finance or the General body is to be taken, as the case may be. Steps were taken for preparing budget Standing Committee wise from the year 2006-07. It seems that there is need for tremendous capacity building and sustained monitoring for achieving the desired goals. The same will be achieved for all the Standing Committees of the Zilla Parishads and the Panchayat Samitis by the year 2007-08 and 2008-09 respectively. In respect of the Gram Panchayat preparation of prior allocation and working out budget for all the Upa Samitis will be achieved by the year 2009-10. Training and capacity building exercises including improvement of the manuals for functioning of various Standing Committees will be organized for that purpose. Defining the Roles of Members Who Are Not Office Bearers The role of ordinary members would be to represent their constituents, participate in the policy and budget decisions of the general body, suggest policy improvements, and scrutinise the executive's policy proposals and their implementation. The precise balance between the roles of the office bearers and other members in initiating policies will depend on the detail of the arrangements in place. Each member will become a champion of his/her constituency defending public interest in the Panchayat body and channelising the grievances, needs and aspirations of their electorate into the scrutiny process. They will get feedback from the GUS of which they are the chairpersons and will take up those issues in the general Body meetings of the GPs. Regular meetings of the General Body and participation of all the members is a salient part of what they own to their constituents and will be an important indicator of democratic functioning of those bodies. The members would also continue to have other important responsibilities vital to the effective functioning of their constituency. These would include: • reviewing and questioning decisions taken by the office bearers. • advising them on decisions and policy on local issues; • reviewing policy, formulating policy proposals and submitting proposals to the standing committees; • suggesting plan proposals and contributing in final preparation of annual action plan; • considering the budget proposed, proposing amendments and voting on the final budget; and The Government will take steps for defining their roles and set up mechanism for their capacity building and monitoring of the process.
Roadmap for the Panchayats in West Bengal Increasing Participation of the Political Parties in Opposition In order to make the development initiatives more inclusive there is need for consensus building among all the political parties, who have representation in the Panchayat. Provision has been made for representation of one member from the opposition political parties in each of the Standing Committees and the Finance Upa-Samiti of the GP. Provision of law provides the framework only and effective participation of all political stake-holders will require imbibing democratic spirit by all the members and the majority will have to create conditions for participation of the members from the political parties in opposition with freedom, mutual respect and dignity. There is need for change in attitude of the members of the majority to listen to the voice of the minority and place all facts before them to justify decisions, if taken with disregard to the suggestions of the minority opinion. The minority on the other hand, should also not feel discouraged and frustrated just because one or two proposals mooted by them, have not been accepted by the majority. The State Government will plan for providing more training and capacity building inputs for effective participation of members from the political parties in opposition. Since all the political parties are in opposition in some of the Panchayat bodies there is need for active involvement of political parties in consensus building for the development process. Many of the social and economic objectives, some of which are even covered by legislation, are beyond any political debate and all the parties support the same in public. The capacity building initiatives will attempt to unite all of them behind those issues for maximizing benefit. Functioning of the District Council One very important aspect of involvement of the political parties in opposition is to work as the watch dog for monitoring activities of the majority. An institutional structure for the same has been provided by creating the District Council in all the Zilla Parishads, which are supposed to go through records and physically inspect all schemes being taken up by any tier of the Panchayat. The District Council is still weak as an institution and the same will be strengthened for its more effective functioning. The approach towards strengthening of the District Council has been focused in the preceding paragraph 1.3.5, sub-paragraph (g). It is expected that the appropriate statutory provision shall come into place by the end of 2007. Steps will also be taken to strengthen its staff support for augmenting its delivery mechanism. Improving Accountability
Roadmap for the Panchayats in West Bengal Improving accountability is one key pre-requisite for better functioning of the Panchayat. At the village level such accountability is attempted by calling all the voters in Gram Sansad meetings once in six months for sharing information and receiving suggestions of the people. In higher tiers such method of direct accountability to the citizens cannot be worked out. As an alternative, forum known as Block Sansads and Zilla Sansads have been created for the intermediate and the district level. Those Sansads are constituted by all the elected members of the concerned body and the representatives from the lower tiers as well. The system is still evolving and the State Government will take up measures for strengthening the system by improving upon the institutional mechanism for organizing those Sansads as well as the quality of transactions that will take place in such forum. The institutional mechanism will include working out the essential disclosures to be made in those meetings, format for disclosures and standardization of some of the essential items to be included in the discussions. Improvement in functioning of those institutions will be continuous in nature. However, it is expected that some minimum standards will be achieved in the next three years. Other Ethical Steps for Good Governance Strict observance of rule of law, following financial disciplines and maintaining objectivity and integrity are essential ethics on which the Panchayat system has to be built upon. Maintaining transparency in all transactions and providing access to information to the citizen will be given due importance. Apart from scrutiny by the District Council, the auditors and administrative inspections, emphasis will be given on development of citizen’s report card to judge the ethics being followed in the affairs of the Panchayat with simultaneous development of the capacity of the citizen to collate, sift and evaluate available information within the precincts of the rules and procedures and the ground realities. It is difficult to work out a Roadmap on those items. However, the State Government will take up appropriate advocacy programmes for the people to demand highest standards of honesty, integrity and objectivity. Also in order that any person can judge the same there should be access to all information upholding the spirit of the Right to Information Act. Experience shows that individual person, who is from the marginalized section and have apprehension of loosing patronage of such bodies are not in a position to come forward for demanding transparency and information, particularly if the same has been taken against their interest until and unless the persons coming from the same stratum and having similar stakes, can form well-knit groups, maintain solidarity and place their demand in a unified voice. There is need for engagement of civil societies for taking up the cause of such persons to facilitate formation of groups of such persons and to work as pressure groups for maintaining objectivity and integrity in functioning of the Panchayats. Subject to certain conditionalities involved, a timeframe to achieve this goal has been indicated in the Matrix showing Implementation Strategy in item No. 2 against the issue captioned ‘Other ethical steps for good governance’. Interface between Panchayat and Civil Society
Roadmap for the Panchayats in West Bengal Development of social capital by encouraging civil society to get engaged with the functioning of the Panchayats will be an important aspect of institutional strengthening of the Panchayat system. To promote that the Government wishes to see consultation and participation embedded into the culture of all Panchayat bodies. The Government proposes to ensure that all statutory obligations for consultation at all levels are followed up in letter and spirit to ensure grater transparency of functioning. This would imply a more focused set of interventions for improving the quality and regularity of the consultation process in which the participation of the civil society will be very much desirable. However, this will be an evolving process and it is difficult to chart a Roadmap for the same except that all possible steps will be taken for promotion of civil societies and for creation of an ambience so that they may mutually reinforce each other in better understanding of the issues and strengthening the processes of good governance. A Civil Society Support Programme (CSSP) is also being launched in the state shortly primarily with the purpose of supporting a more accountable civil society influencing government policy and practice to ensure better access to services by the poor. The goal is effective implementation of pro-poor policy in West Bengal. IMPROVING CORE CIVIC SERVICES Providing Civic Services to the Citizen Most of the civic services are best provided by the Gram Panchayats (GPs), being the closest to the people. The upper tiers may also remain associated with directly providing certain services requiring higher engineering skill and organizational capacities or having impact over a wider geographical area and may also bear the responsibility of providing necessary supports in delivering services by the GPs. Therefore, the general approach should be to provide as much services as possible by the lowest tier, that is the GP, and the upper tiers working for providing support to the GPs in realizing that goal. The services that the PRIs should provide in various sectors are described mostly in this chapter and some of the other services have been described in subsequent chapters. Drinking Water Supply and Sanitation
Roadmap for the Panchayats in West Bengal Let us first discuss the issue of conservation of water for sustainability of drinking water sources and regulation of use of ground water for use in industry/agriculture. At present there are a few programmes running in this field. Watershed Development Programme to capture and store rain water is implemented by the Panchayat Samiti under the guidance of the Zilla Parishad in the drought prone area. Gram Panchayat may also implement such programmes of smaller dimensions. Newly introduced Hariyali programme for conservation and utilization of surface water also has a place in this scenario. Swajaldhara programme is again an initiative for piped water supply in rural areas especially where sub-soil water cannot be extracted. Besides, the Bengal Tanks Improvement Act, 1939 (Bengal Act XV of 1939) and the West Bengal Tanks (Acquisition of Irrigation Rights) Act, 1974 (West Bengal Act XXIII of 1974) have provisions for acquisition and improvement of tanks for irrigation and other purposes. Although Gram Panchayat has no authority under these Acts, it may initiate proposals and facilitate utilization of available water. In all such cases, Gram Panchayat may take the initial steps to identify the location of the schemes and to select the beneficiaries for specific actions at the higher level. The State Government may disseminate information relating to these programmes and statutory provisions among the Gram Panchayats in particular and may facilitate implementation of these programmes initiated by the Gram Panchayat or any other Panchayat body. Initiatives in this respect by both the GP and the higher tiers may be taken depending on the geographical area and the technology involved. Water supply to all the habitations needs to be ensured. To do this it is necessary to develop database for habitations with seasonal shortage of supplies and those having water quality problems. This will be best done by the Panchayat Samiti with full support from the Zilla Parishad with access to the database of SWID and similar other organisations linked with local knowledge and experience. Source based committees will be promoted for maintenance of installations through regular collection of user charges and acquisition of skills by selected (women) users. Maintenance of these installations is entrusted upon either the Panchayat Samiti or the Gram Panchayat. Formation of users’ group is the responsibility of the Panchayat body concerned although the Panchayat Samiti may take the help of the Gram Panchayat in formation of such users’ group and in monitoring and supervising its functions. Users’ group may be given the responsibility of running the installation, equitable distribution of available water, collection of charges and minor repairs. Such joint ownership of the users’ group is very likely to result in better utilization of water. Promotion of habitation based small piped water supply schemes has been targeted under Swajaldhara with connection to every household in the locality and group stand post in certain cases with recovery of at least 50% of the running cost from the user group and having maintenance liabilities. Capacities of the Rural Sanitary Marts (RSM) will be built up by the Panchayat Samitis to also deliver water supply engineering related services and monitoring quality of water by establishment of laboratories or using existing laboratories.
Roadmap for the Panchayats in West Bengal Surveillance of water qualities in each Block by the RSMs on payment will also be targeted. Special drive will be taken in areas with arsenic contamination/salinity. This will be the primary responsibility of the PSs but the part of the implementation related to collection of samples etc will be the responsibility of the GP. The water quality testing arrangements are to be financially sustainable. Attempts will also be taken for promotion of surface water based water supply arrangements in areas with arsenic contamination/salinity or exhibiting seasonal problem because of excess drawal of ground water. This will be the responsibility of the Zilla Parishads (ZPs) to take up with the State Government for actual implementation by the State Government (PHED). The PRIs may be associated with distribution of water to the household level after receiving water in bulk from the PHED. 100% access to safe sanitary toilets in all the habitations have to be ensured. GP/Block wise plan for such 100% coverage is needed in each district depending on the present progress and keeping the area free from open defecation. It has also been targeted to provide sanitation facilities at all public places and the responsibility will lie on the GP, PS or ZP depending on the place. Major initiatives in this respect shall be taken by the Janaswasthya O Paribesh Sthayee Samiti of the Panchayat Samiti and Siksha O Janaswasthya Upa-Samiti of the Gram Panchayat. They will take actions in regard to public places under their respective control and management. Janaswasthya O Paribesh Sthayee Samiti of Zilla Parishad shall monitor the progress in this respect. This has been indicated in the Matrix showing Implementation Strategy in activity (j) under the issue ‘Drinking water supply and sanitation’ in item No. 3. Sewerage and solid waste management plan in each habitation for proper environmental sanitation have also been targeted. It is also targeted to provide conservancy services in urbanized or other GPs where such services are necessary. Services Related to Public Health
Roadmap for the Panchayats in West Bengal Improvement of public health is associated with a large number of activities and responsibilities by the local bodies, besides those related to water and sanitation as described above. Responsibility for improving public health lie with all tiers from the central government to the GPs and the same also demands informed and active participation of the people for desirable outcome. There are many national level programmes, including the National Rural Health Mission (NRHM) as well as separate state government initiated measures for improving various aspects of preventive and promotive healthcare. The Panchayats will be responsible for organizing IEC activities and mobilizing the community for their active participation in those programmes and will attempt to reach the targeted objectives in respect of their areas by utilizing the available services. The National Rural Health Mission envisages that a) The District Health Mission will be led by the Zila Parishad, b) The DHM will control, guide and manage all public health institutions in the district, Sub-centres, PHCs and CHCs, c) ASHAs would be selected by and be accountable to the Village Panchayat, d) The Village Health Committee (A functional committee of the GUS) of the Panchayat would prepare the Village Health Plan, and promote intersectoral integration, they will also be provided with sectoral untied fund of Rs. 1000/- per year, e) Each sub-centre will have an Untied Fund for local action @ Rs. 10,000 per annum. This Fund will be deposited in a joint Bank Account of the ANM & Pradhan and operated by the ANM, in consultation with the Village Health Committee, f) PRI involvement in Rogi Kalyan Samitis for good hospital Management, g) their would be adequate provision of training to members of PRIs. All these elements have been included in the plan of action worked out by the Health and Family Welfare department in their implementation plan for NRHM in West Bengal. The Panchayats will also add their own resources for making those programmes reach the entire community, particularly the weaker and the poorer sections and will ensure better delivery of all such public health programmes to those people. In case such services are not available or are of poor quality the Panchayats will mediate with the Government for ensuring delivery of public health related services for which the responsibility lie with the Government. Many of the proximate factors for good health are either delivered or may be coordinated by the Panchayats for proper convergence of all efforts by various bodies. The GP will provide that forum at the lowest level, which will be most crucial for ensuring convergence for all such activities. The other two tiers will also remain responsible for similar convergence at respective levels. All these bodies will also be associated with surveillance of public health outcome for assessing status in respect of their citizenry and will work for possible improvements with available resources. The following gives a broad outline of what the Panchayats will be doing in respect of public health apart from what has been stated earlier in relation to water and environmental sanitation.
Roadmap for the Panchayats in West Bengal Registration of birth and death – Power has been already given to the GP for registration of birth and death. In exercise of power conferred under section 6(5) of the Registration of Births and Deaths Act, 1969 (18 of 1969), the Chief Registrar of Births and Deaths, West Bengal (Director of Health Services), empowered the Block Sanitary Inspectors or any other person functioning as Registrars under the aforesaid Act to appoint the Pradhans of the Gram Panchayats within their respective jurisdictions to act as Sub-Registrars (Notification No. HF/O/FW/14C-2/94(I)/174-P dated 19/5/1997). On being so appointed, the Pradhans are acting as Sub-Registrars, that is, they are collecting information on births and deaths, maintaining registers in the prescribed manner and making available such extract copies of the registers as may be intended for. They are also sending periodical reports to the Registrars on the work done by them. The PRDD has circulated an order No. 4231-PN/O/1/4P-5/2003 dated 12/11/2003 delineating the functions and responsibilities of the Pradhans on this issue. At present all such events, particularly all deaths are not registered though such services are provided free of cost. The GPs will be required to ensure cent percent registration of birth and death, which occurs within its jurisdiction. In order to achieve this purpose, the Gram Panchayat shall motivate all its members as also members of the Gram Unnayan Samitis to sensitise the people in general and to collect follow up information in this respect. That will also help the GPs to maintain the vital statistics of the population living within its area. Based on analysis of such data the GP will make possible interventions in reaching services related to family planning, mother care and child health interventions, campaigning for following the legal provision related to the age at marriage etc. Immunisation of the children – The GP will be responsible for mobilizing the community in order to achieve 100% immunisation of children with appropriate support from the upper tiers of Panchayats and the State Government. The responsibility of the GP will be to see that adequate services are available within its area and, if not, will mediate with the State Government through PS, if necessary, so that every newborn has access to such services. The GP will also mobilize the parents and the community to take benefit of the services and will keep track of the actual coverage. All the doses are not taken by some children and to avoid that the GP will try to maintain the immunization data child-wise in computers, as and when they acquire the capacity to do so. The state Government will assist the GPs to acquire such capacities within next three years. The purpose will be to track every new born to be sure that all the doses have been administered to every child. The GPs will take the assistance of the ANMs and the ICDS workers in accomplishing this job. Necessary outreach services will be organized by the GP with the available health and ICDS workers for reaching the immunization related services to the areas located far away from sub-centres.
Roadmap for the Panchayats in West Bengal Safe motherhood – The Panchayats will work towards providing access to government services related to birth preparedness for safe motherhoods to its residents and will utilise the support to be available under NRHM towards that goal. The poorer section of the society do not always access such services because of their lack of awareness as well as difficulty in access or even non-availability of such services. The Panchayats will work for increasing awareness about availing such services like tetanus vaccination, pre-natal and post-natal check-ups and other good practices for safe motherhood. Those bodies will also take follow up measures including medical check up in deserving cases. Members of ASHA and women SHGs will be utilized to campaign and to keep vigilance on such matters. In case such services are not accessible to all, the GP will identify those areas and will mediate with the State government directly or through the PS for making available such services. GPs will also work towards taking appropriate measures for achieving at least 80% institutional deliveries and will ensure that the remaining births are attended by at least skilled persons. If the government maternity facilities are far off, the GPs will develop infrastructure in their head quarter health sub-centres or in other suitable places for safe delivery of mothers with the help of the ANMs working in their jurisdiction. They may arrange skilled birth attendant from among the local women for providing services. The GPs will also monitor events related to maternal death and will take all preventive measures directly or with the support of the higher tiers or the State Government to avoid death of either the mother or the child. Preventing malnutrition – High incidence of malnutrition among the adolescent girl, mother and children is a major area of concern related to public health. Prevention of malnutrition will depend on several interventions by the Government, Panchayats and the households. The GP will be the lowest level at which the nutrition related data, mostly collected in the ICDS centres, will be monitored, aggregated and analysed for all possible interventions at that level. In order to do that the GPs will ensure that all the children of the area up to the age of three years are brought under regular surveillance through the ICDS programme or otherwise. Monitoring and analysis of the weight at birth and latter months of all the babies will be an important component of the activities for planning and implementing both short and long term interventions. Such interventions will include identifying the malnourished children and ensuring that they get adequate supplementary nutrition through local arrangements for which the GP will make, for economically weaker households, provision out of their own resources, if no such provision is there out of any programme. This is one of the concurrent activities where GP will take measures on its own initiative where State intervention is inadequate or has not reached at all. The Panchayats will also work for increasing the awareness of the people particularly the women including the adolescent girls for promotion of adequate nutrition for all. To supplement the general publicity and institutional efforts (medical advice) of the Health & Family Welfare Department of the State Government, the GP will also work for spreading awareness related to breast feeding and promotion of low cost nutrients including motivating the poorer families for developing kitchen garden for increasing the supply of nutrient foods and proper functioning of various feeding programmes at the ICDS centres and schools. GPs will also remain responsible for construction and maintenance of ICDS centers.
Roadmap for the Panchayats in West Bengal Prevention of diseases – Prevention of communicable diseases in general is the task of the Government. However, the same becomes effective only when the entire community participate in those programmes. The role of the Panchayats will be to participate in all such programmes and utilize the resources available through existing programmes of the State and the Central Government to prevent communicable diseases by ensuring active participation of the people and adding their own efforts and resources for effective implementation of all those programmes. The outcome will be measured by the reduction of burden of disease of their residents and absence of outbreak of communicable diseases for which the GP will remain vigilant. The GP will pass on any incidence of outbreak of communicable diseases to the appropriate agencies and will provide all local supports to make government interventions in containing the same along with taking up local measures for preventing recurrence of such incidents. The Panchayats will take initiatives for control and home management of diarrhea and prevention of other water-borne diseases through awareness building and skill training. The Panchayats will also assist in building up awareness on diseases like AIDS for its prevention within its area. West Bengal has high incidence of Thalasemia and the same can be reduced by avoiding marriage in which both the bride and the groom (their mismatch) are carriers of the congenital ailment. Awareness building in such case also, which is not really communicable diseases, should be taken up by the Panchayats for preventing such ailments. GP should motivate the people through group discussions and discussions in larger forum to check the blood groups of the prospective bride and groom before marriage so that there is no mismatch and if necessary get medical advice. Vector control – The Panchayats will work in association with the Government for controlling breeding of mosquito and other insects which are responsible for spreading disease. Those bodies will also take local measures for vector control and ensure participation of the people in all such measures like avoidance of accumulation of water, regular clearing of shrubs and bushes. Maintenance of environmental sanitation through proper drainage and sewerage, as already described and keeping the area free from open defecation will be important tasks of the Panchayats in this respect. Food safety – As local government, the GP being too weak will not be able to enforce measures related to food safety nor have the Panchayats been legally empowered with that responsibility. However, even without such formal assignment the GPs may promote adoption of certain broad hygienic measures in respect of sale of readymade food to reduce the probability of spreading of infectious diseases and link the same with issuance and renewal of trade licenses for food related business or vending of food in public places and fairs etc. In order to spread awareness in this respect, GP may request the local officers of the Health and Family Welfare Department to participate in the meetings of Gram Sansad and Gram Sabha and explain the relevant issues to the people.
Roadmap for the Panchayats in West Bengal Monitoring of events of death of children and pregnant mothers – In order to reduce the IMR and the MMR to the desired level the Panchayats will be required to monitor all such events, which occur within their areas. The Health Supervisors, posted at the GPs, have already been entrusted by the Health & Family Welfare Department with the responsibility of conducting audit of all such deaths and reporting the same to the Gram Panchayats. The GP will have the responsibility to act on the basis of such reports by taking up suitable interventions locally as well as mediating with the higher tiers as well as the officials of the Health & Family Welfare Department for initiating possible measures in preventing such deaths. Convergence of all public health Related Activities – Convergence of all public health related activities and assessment of quality and extent of delivery of all the related services will be an important task of the GPs. The State Government has already introduced a review meeting by the GP in the last Saturday of every month and officials of Health & Family Welfare Department and the Women & Child Development and Social Welfare Department along with functionaries of the GP attend this meeting. Convergence of such efforts at the Block and District levels will be similarly coordinated by the PS and the ZP.
Roadmap for the Panchayats in West Bengal Provision of elementary curative services – Access to curative services in interior rural areas is still limited because of non-availability of qualified doctors in villages and because government doctors are available only in the PHCs, which caters to a large area and are located far away from many villages. Even traveling to those centres by the sick people involves considerable expenses and loss of time and income. As a result of that the poorer sections of the community are not in a position to take full benefit of available curative services of the Government and the only solution is to reach curative services closer to the people. The State Government will ensure that curative day care facilities are available within the geographical area of every GP. Such services are already available in GPs where government health centres like BPHC and PHC are located. The GPs, where no such centre exists, will be provided assistance by the State Government to run a dispensary by engaging a graduate doctor from any system of medicine. The doctors of the PHCs, which run only out-patient services, will also attend outdoor clinic in some of those GPs, particularly which are located in remoter places, to the extent permitted by the strength of doctors available in such PHCs of the same Block. In fact homeopathic dispensaries are being run at present in 675 GPs and 300 more such dispensaries along with 200 Ayurvedic dispensaries are going to be opened soon in GPs without having any Government or Panchayat owned clinic. The remaining GPs will also be covered as soon as possible (preferably by the year 2007-08, subject to availability of doctors on hire) so that every GP has some dispensary to provide elementary curative service to the people. All the doctors in those GPs are engaged on contract by the GPs and expenses for medicines etc are borne both by the State Government and the GPs themselves. Depending on availability of allopathic doctors, the GPs will be allowed to hire such doctors to treat patients in those clinics at least once a weak, in addition to the homeopathic/Ayurvedic doctor to improve the coverage. As already mentioned, in some of the remoter GPs Government allopathic doctors will be sent on rotation to provide outdoor treatments. Patients from all the clinics will be referred to the PHC/BPHC, if necessary. Every GP will develop appropriate infrastructure to allow running of such clinics and will maintain data related to treatment in such clinics for necessary disease surveillance. In fact the GPs are being assisted to develop proper infrastructure in their head quarter sub-centre as per model plans circulated for that purpose. All the GPs will have such infrastructures within the year 2008-09. Such sub-centres will also have labour rooms to provide facilities for delivery with the help of the ANMs at the sub-centres, if the Government health centres are located far away from the GP. The GPs will be also encouraged to arrange for simple pathological tests facilities in the head-quarter subcentres with private partnership, if necessary. Building capacities of the Panchayats – The State Government will work to augment the capacities of the Panchayat functionaries, particularly those at the GP level for being able to converge all the activities related to public health, monitor the progress of implementation of various programmes and be able to plan and implement local interventions for better outcome of the existing programmes to be judged by reduction of burden of diseases and better nutritional status of the population. The available functionaries of the State Government will be responsible for providing necessary support to the local body concerned for achievement of the said tasks.
Roadmap for the Panchayats in West Bengal Services Related to Universal Literacy and Elementary Education The 86th Amendment of the Constitution confers right to all for receiving education up to the age of 14 years. The PRIs should work in association with the State Government for realizing the goal for their entire population. This is one of the most important sectors, where the Panchayats will have activities of all the types like the devolved function, the agency function and the collaborative function. The State Government will gradually devolve all the non-academic functions related to school education, which will include maintenance of buildings and other physical infrastructure like water supply and sanitation facilities, play grounds etc. in respect of schools run by the West Bengal Primary Education Board, West Bengal Board of Secondary Education and the Board of Madrasah Education. This is being done at present only partially out of own fund of the Panchayat and there is need for devolving responsibilities in respect of activities being taken up under the SSA (Sarva Shiksha Abhiyan). For implementation of the SSA, the Chairperson of the Zilla Parishad is involved as Chairman of the District Level Committee on SSA and the same should be replaced by proper institutional involvement of the Zilla Parishad and other Panchayat bodies through clear assignment of responsibilities. The Government of India has to take a decision in this regard for ensuring involvement of the Panchayats in implementation of the SSA. There is a Siksha, Sanskriti, Tathya O Krira Sthayee Samiti (Standing Committee on education, culture, information & sports) at Zilla Parishad and Panchayat Samiti level. Likewise, there is Siksha O Janasasthya Upa-Samiti at Gram Panchayat. Sabhadhipati, Zilla Parishad, Sabhapati, Panchayat Samiti and Pradhan, Gram Panchayat are ex-officio members of these bodies at appropriate level. These bodies may be entrusted with the responsibility for implementation of the SSA and the parallel committees set up for the purpose, may be dissolved. At present the field functionaries of the School Education Directorate is not associated with the Panchayat Samitis excepting in attending meetings of the Standing Committees. There is need for placing their services with appropriate levels of the Panchayats for obtaining their help in managing all non-academic activities of the schools by the Panchayats. They may be given a Panchayat related designation to highlight their role in the Panchayats. PRDD proposes to take up this issue with the School Education Department so that the State Government may take a firm decision in this respect with a specific timeframe to implement the decision.
Roadmap for the Panchayats in West Bengal However, the Panchayats of the State has been fully devolved the responsibility of opening community managed education centres for primary and upper primary level education. This is being done under a special programme of the State Government for universalizing elementary education with focus on reaching the education related services to the backward areas and ensuring participation of all those sections of the community, who are lagging behind. The programme known as the Shishu Shiksha Karmasuchi allows opening of Shishu Shiksha Kendra (SSK) for imparting primary education and Madhyamik Shiksha Kendra (MSK) for imparting upper primary education by the community after obtaining concurrence of the Panchayats. The Panchayats have been assigned the responsibility of extending support to the SSKs and MSKs in area having inadequate access to such services with the initiative of the local community. The community takes responsibility of managing the schools and financial support for the same are received by them from the Panchayats. It will be the responsibility of the GPs to ensure 100% enrolment and their retention till class VIII standard using the State sponsored or Panchayat sponsored institutes. The PS will remain responsible, for which necessary support will be provided by the State Government, for bridging the gap in available infrastructure and improving the existing infrastructure to provide access to all the children living in its area. Adequate physical infrastructure for all primary and upperprimary schools & SSKs/MSKs are to be built up within the 11th Plan period and the ZP and the State Government will overview the progress and bridge the gap with resources in their command, including those available under the SSA, wherever necessary. Assigning responsibility on the Panchayats in this regard will not be enough unless their capacities in achieving tasks of cent per cent enrollment and retention of all children at least up to the level of elementary standard (class VIII) are augmented by the Government. The responsibility of the State Government will be to augment the capacities of all the tiers of Panchayats for achieving this important goal. Achieving universal elementary education is also related to abolition of child labour. The Panchayats will be sensitized to the urgent need for abolition of child labour from respective areas and achieve the status of “No child labour GP” as soon as possible. It will be too ambitious to think that the problem will be solved by merely involving the Panchayats in achieving the same. However, this will be a priority of the Panchayats in addressing this issue for which necessary support has to be also provided by the State Government. The PSs will organize bridge courses for the liberated child labour for which support will be extended by the state Government.
Roadmap for the Panchayats in West Bengal The Panchayats work as an associate of the School Education Department in implementing the Mid Day Meal programme with due support from the upper tiers. The GPs engage the SHGs for cooking and distribution of food and also have constructed kitchen sheds for running the programme. The GPs face the day to day administrative problems and mobilize the community for improving the quality of food through local donations. The responsibility should be totally devolved to the GPs and responsibility of supervising the same should be entrusted with the PS and the ZP by issuing formal orders, which is yet to be done. The GPs should also be given the responsibility of procuring rice locally and get paid at the usual rate so that local rice could be used and local people get market for adding value to their agricultural produce and sell the same there itself. Thus, the local people shall acquire ownership to this programme and participate actively in its implementation. This will also ensure quality of food for children. However, that will require concurrence of the GOI for which they have been moved. PRDD proposes to take up this issue with the School Education Department so that the State Government may take a clear decision on it and refer to the GOI for concurrence as may be necessary. The National Literacy programme is being implemented through the Zilla Saksharata Samiti. The Panchayats are asked to support the programme whereas the need is to devolve the responsibilities on the Panchayats. Item 19 of the Eleventh Schedule of the Constitution includes Adult and non-formal education as one of the subjects to be considered for devolving on the Panchayats. It is, therefore, quite natural that the activities related to adult and non formal education, which need to be taken up at the district or below that level, should be devolved on the local bodies. Such devolution will help the Panchayats to own the task of bringing their entire citizen from out of illiteracy through local initiatives and the same will have the following advantages. • It will be easier to mobilize the entire community within the jurisdiction of the Panchayats towards achieving a society free from illiteracy. • Convergence with other programmes for socio-economic development, which are implemented by the Panchayats, will be easy to achieve for more functional use of the acquired literacy. • It will ensure bottom up planning for all activities related to Continuing and Lifelong Education and the same will be more effective to suit the local need. • If the Panchayats envisage the programme as their own, it will encourage those bodies to utilize all their resources for enriching the programme. • Close monitoring by the local government will improve quality of implementation of the programme. Also, all corrective measures can be taken more quickly and precisely based on local need. • The implementing machinery will be directly accountable to the community through the local bodies. That will improve the quality of implementation and help in achieving locally determined targets. • Since success of the programme centres around effective sensitisation of the people, the Panchayats with their closeness to them, are most likely to achieve success. • Since most of the target group people are otherwise occupied, it may be necessary to restructure on the basis of ground reality, the operational strategy for which the Panchayats are best equipped. 41
Roadmap for the Panchayats in West Bengal The State Government will devolve the responsibility of managing all programmes related to adult and continuing education to the appropriate level of the Panchayats. The National Literacy Mission Authority should issue enabling guidelines to make it happen faster. Road Connectivity The Panchayat of the State are constructing and maintaining roads from the beginning of constitution of those bodies as an important civic service. A large share of fund under the control of the Panchayat is used for that purpose. Each Zilla Parishad has already developed a District Rural Road Plan (DRRP), of which some of the roads are owned by the Government and the rest are maintained by the Panchayats or are required to be constructed for providing all weather road connectivity to all the habitations of the State. Each tier of Panchayat will have exclusive jurisdiction on certain types of roads included in the DRRP and not owned by the Government and High-Way authorities. All “THROUGH” roads and “LINK” roads, shown in the Core Network prepared for the district under the PMGSY should be owned by the Zilla Parishads (ZPs). All other existing metal roads shown in the DRRP and constructed under RIDF or other programmes and not owned by the PWD or other government departments will be owned by the ZPs. Other roads constructed by the PS wll be maintained by those bodies. All roads constructed by the GP, other roads connecting the “LINK” roads with the habitations fully confined within the GP and roads within the habitations will be owned by the Gram Panchayats (GPs). Out of roads owned by the GPs those which are wide enough for movement of small four wheel vehicles will only be termed as village tracks. Minimum width of carriage way of such roads should be 2.5 meter although efforts should be made to widen the road to a width of 5.0 meters at least in different sections as far as practicable. GPs should not construct or maintain any road of width less than the minimum width of 5.0 meter for the carriage way, to make the same at least of the standard of a village track particularly where such track connects the village with a major arterial road. All the ZP roads will be all weather metal roads, whether sealed or unsealed. Roads of PS will be all weather roads but the riding surface may or may not be metalled. GP roads will be either all weather or fair weather. Responsibility of maintaining the roads will be on the Panchayat body owning that road. Any Panchayat body not having enough technical expertise or if it finds otherwise convenient may entrust construction or repairing of a particular road owned by those body to the higher or lower tier of Panchayat on mutual consent and will also bear the related expenses. The right to collect toll or impose condition on flow of traffic as per law will lie on the Panchayat body owning that road. Other responsibilities of the Panchayats related to road connectivity are as mentioned below.
Roadmap for the Panchayats in West Bengal Panchayats to maintain the list of roads – Based on the said principle all the Panchayat bodies will prepare a list of roads already owned by them or required to be constructed by them to provide effective connectivity to all the habitations under their jurisdictions and show the same in map. The maps should be preferably GIS based. Roads already in existence and the roads, which are proposed to be constructed to provide the desired connectivity, should be clearly shown on the map. Existing road should be shown in continuous line and the proposed roads should be shown in broken lines. The maps should be made public for their knowledge and comments. All the roads should be properly named and the identity of the roads should be unique so that the same could be identified without any ambiguity by ordinary people. The list of existing roads will be maintained in a register in the name of Road Register, which will be treated as a subsidiary Asset Register of the Panchayat body concerned. The entry should include exact length, specifications and the year of construction. Asset value of the roads appearing in the register should be worked out every year, if possible. Total investments made on each road for construction and upgradation, which are of capital nature should be entered in the register. At the end of each year total investment made by any Panchayat body for construction and upgradation of roads, which will be classified as capital expenditure should be entered in such Road Register. A timeframe for preparation of the list of roads, existing and proposed, is indicated in the Matrix showing Implementation Strategy in item No. 3 under the issue of Road Connectivity. Preparation of a perspective road plan by each Panchayat body – Each Panchayat body should work out the length of the existing roads which satisfy the specifications, roads which are to be upgraded to reach the specifications and the new roads to be constructed separately. All new roads are to be constructed as per specifications only. Based on the said information all the Panchayat bodies should come out with a perspective plan showing the list of new roads to be constructed and the roads to be upgraded. The plan should be prepared after wide consultation with the community and the same should be formally approved by the General Body. The draft should be shared with the higher bodies before finalization of the same by the Gram Panchayats and the Panchayat Samitis. The document for the plan so prepared should be in readiness for taking decision on all future investment on road sector by the Panchayat bodies. A timeframe for this purpose has been shown in the Matrix showing Implementation Strategy in item No. 3 under the issue of Road connectivity.
Roadmap for the Panchayats in West Bengal Maintenance of roads owned by the Panchayats – Maintenance of roads will be an important responsibility of the respective Panchayat bodies and the body will allocate enough fund based on its resources for that purpose in the annual budget. Maintenance of roads should be given more priority in respect of utilization of own fund including untied fund and grants as per recommendations of both the central and the state Finance Commissions. Depending on the total length of roads under its jurisdiction and asset value of the roads there will be need for investment on maintenance every year, which should be reflected in the budget. The Panchayat bodies should take up new roads with their resources only after ensuring that the existing roads will be maintained properly. Requirement of fund for that purpose should be worked out to assess whether it will be possible for maintaining the roads regularly. Instead of repairing the roads after the riding surface gets damaged seriously, preventive and regular maintenance including sectional repair is to be done on a regular basis and the budget of the Panchayat body should clearly reflect allocation of fund for maintenance of roads. Maintenance should be such that value of the total road assets does not get reduced and there is no need for fresh capital investment to reconstruct the road within its life span. The Panchayat bodies should mobilize more revenue including collection of tolls from newly constructed roads to meet the maintenance needs. Documentation of all maintenance works – The Road Register maintained by each Panchayat shall have provision to show the year wise and road-wise amount spent on maintenance of road. This register will provide the history of maintenance of each road by the Panchayat body concerned. Thus at the end of each year total investment made by any Panchayat body for maintenance of existing roads will be entered in the Road Register and will be classified as revenue expenditure and will be clearly shown road-wise and will be shared with public as a part of Annual Report. Zilla Parishad, Panchayat Samiti or Gram Panchayat, as the case may be, shall entrust upon an employee the task of entering the required data in the Road Register as soon as a scheme for repair/maintenance of a road is competed and the final payment in this respect is made. It shall be provided that final payment shall be made after it is certified on the claim paper that the particulars have been entered in the Road Register. An officer shall supervise this function. A direction in this behalf shall be issued to the Panchayat bodies by PRDD. Road safety – The Panchayat body owning any road should be responsible to ensure safety of the roads to the extent possible. Some of the aspects are to be taken care of while designing the roads. The Panchayats should also arrange proper road signs particularly in sharp turns and by controlling traffic speed in congested areas and will educate the inhabitants about all safety measures. The Panchayat body should regularly monitor if there is any place, particularly on new roads, where accidents are occurring repeatedly for taking necessary corrective measures. The technical officer in charge of construction/maintenance of the road shall be responsible for monitoring the extent of risk element and initiate action accordingly.
Roadmap for the Panchayats in West Bengal Street lighting – The Panchayats owning the road will also remain responsible for providing street lights in places where the road passes through habitations and deserves such facilities and in places where lighting is necessary from the safety point of view. Section 21 of the State Panchayat Act has entrusted the responsibility for street lighting upon the Gram Panchayat. However, the operational aspects like identification of the locality, rates to be imposed on the people and other related issues shall be decided by the Gram Panchayats. Stretches of roads requiring street light shall be determined on the basis of density of population in the locality and because of traffic hazards as a result of sharp bend, fog etc. Gram Panchayat may fix a lighting rate prescribed under the West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004. Irrigation, Drainage and Flood Protection The Panchayats are providing irrigation facilities to the farmers mostly through surface water irrigation sources and individuals have been facilitated to own ground water installation. In some cases the Panchayats have also installed irrigation sources like deep tube wells and river lift irrigation facilities, which are generally maintained by the users. All the three tiers have been involved in such works depending on the size and complexity of the irrigation system. The Roadmap for irrigation will be to utilize the available rainfall to create as much irrigation potential as possible and to sustain the same. However, medium and large irrigation will be under the jurisdiction of the State Government. Providing appropriate drainage facilities for each habitation will be an important task of all the tiers of Panchayats depending on their geographical spread and technical complexity. The responsibility will primarily lie on the GPs and what cannot be taken up by the GP on ground that the same is beyond its technical competency or the command or impact area is spread over more than one GP the higher tiers will be involved. Flood protections from major rivers are done by the Irrigation & Waterways Department. The Panchayats maintain the traditional Zamindary embankments and also takes up other local measures. This will be generally the responsibility of the PS and the ZP will extend necessary technical assistance directly or with the support of the I & W Department. Housing and Development of Habitat
Roadmap for the Panchayats in West Bengal Availability of durable houses for all the households residing within any GP will be an important goal of all the GPs. Also, every household should have at least two rooms, one kitchen and toilet facility with piped water supply, proper sewerage and electricity connection. The present status is far behind the desired goal and the GP as well as the other tiers of the Panchayat should facilitate in all possible ways to reach the goal. Since the decision to have such facility to be taken is in the private domain the Panchayats can only facilitate the process and make it easier for the households to achieve that goal through appropriate infrastructure development and other possible interventions. It is felt that in order to motivate the people for construction of a model residential house, the GP should allow some incentive to the less affluent people. A person submitting a building plan on a homestead land measuring 0.02 acres to 0.03 acres may be encouraged to construct a house having at least two habitable rooms, one kitchen and one bathroom-cum-water closet of at least minimum prescribed size (it is not possible to construct such house in the prescribed manner on a land of lower size). If such a building is constructed, the GP shall refund fifty per cent of the fee paid for obtaining permission for the construction on application by the owner after completion of construction. Besides, if for the purpose of taxation, such a building to have an annual value of rupees twelve thousand or less, the GP shall allow special rebate of fifty per cent on the assessed tax on such land and building under section 46 of the State Panchayat Act. PRDD shall finetune this proposal and issue a direction to the Gram Panchayat. Availability of homestead land and proper development of the habitat for healthy living are essential for realizing the goal related to housing for all. The GP will be responsible for development of eco-friendly sanitized atmosphere around the neighbourhood and enforce the prescriptions for allowing building set-backs and open spaces, among others, for ensuring proper habitat for all the families living in within its jurisdiction so that providing essential civic services to all the households becomes easier. The State Government will extend necessary resources for achieving the same. Very poor families are to be assisted to have at least one permanent dwelling house on their own land and those who do not own homestead land should be provided with minimum quantum of land. The GPs should be assisted to acquire the capacity for proper planning and development of habitat to accommodate every household, living within its geographical area, to have a durable house. The building plans, for which Gram Panchayats are the sanctioning authorities under the law, should also be regulated to ensure healthy living for every one. There should be access to adequate playing ground, space for the children and enough community space for healthy living. The GPs will be assisted by the state government to acquire capacities for providing all those services and depending on their capacities they have to decide on the time frame for achieving the goals. The upper tiers will provide possible support for the GPs to reach the said goals. It is very difficult to prescribe a time frame for achieving such goals, which require flow of substantial resources beyond the reach of the Panchayats and even the State Government. However, the vision will help to channelise the available resources more effectively towards that goal. Sanctioning Building Plan and Enforcing Other Regulations for Community Living
Roadmap for the Panchayats in West Bengal As per section 21 of the W.B. Panchayat Act, as amended recently, one of the regulatory duties of the GP is to accord permission for erection of new structure or new building or addition to any structure or building to prevent unplanned growth and to protect environmental ambience. The scope for intervention on this issue has been further elaborated in section 23 of the said Act. The GPs are doing the same traditionally. However, with growing trend for construction of bigger buildings, increasing density of population and more need for protecting environment there is need for augmenting capacities of the GPs and in some cases that of the higher tiers for proper assessment of building plans and control growth of urbanization. The State Government will take measures to augment capacities of all the technical staffs of the Panchayats. The State Government has created a post of Nirman Sahayak – a Diploma Engineer – in the establishment of GP in place of para-technical staff. The process is going on and such an employee will be available ultimately in all the GPs. Besides, the State Government shall take measures for capacity building of the engineers at all levels for preparation/validation of building plans ensuring abundance of light and air and other eco-friendly features. This apart, a new provision has already been introduced to encourage construction of structure for rain water harvesting on the roof of a building. The technical officers concerned shall be given training on construction of such structures. Marketing and other facilities for Promotion of Economic Activities There should also be adequate marketing facilities for selling local products as well as for buying the commodities ordinarily required by the citizen within reach of all the habitations. With gradual transition of the economic activities from the primary to secondary and tertiary sector activities and keeping in mind the intense pressure on land in the State, the Panchayats will be responsible for creating infrastructure for taking up non-farm economic activities including activities in the service sectors. Each GP will be required to promote one marketing centre cum business hub for meeting their local needs unless bigger centres adequately catering to such needs are promoted by the PS or the ZP within its area. Planning and implementation of development of larger marketing centres for taking up wider range of economic activities will be the responsibilities of the PS and the ZP depending on the complexity and size of the same. The State Government shall encourage the Panchayats to take up such programme on application of available untied fund and/or own source fund as a supplement to the agricultural markets built up or proposed to be built up under the sponsorship of the Department of Agricultural Marketing. This department shall also be requested by the PRDD to maintain close liaison between these two streams of initiatives. Issuing Trade Registration Certificates and Licenses
Roadmap for the Panchayats in West Bengal The GP has the authority to issue trade registration certificate for carrying out any business within its jurisdiction. The GP will ensure prompt services for obtaining such certificates against prescribed fees and renewal of the same. Similarly, the Panchayat Samiti is empowered to issue license for running certain offensive and dangerous trade and realise license fee therefor. The State Government has issued notifications enlisting offensive and dangerous trades and the maximum rates of license fees and renewal fees that may be realised. Maximum rates that may be imposed as fees for issue of Trade Registration certificate for different trades, have been laid down in item No. 6 of the Table for fees, rates and tolls to be levied by a Gram Panchayat under section 47, annexed in terms of rule 58 of the West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004. Again, in terms of section 116 of the West Bengal Panchayat Act, 1973 as subsequently amended, the State Government has issued notification No. 4236/PN/O/I/1T-1/04 dated 21.12.2004 declaring 28 types of trades and business as offensive and dangerous and another notification No. 1272/PN/O/I/1T/04 dated 28.03.2005 specifying the maximum rates that may be levied by the Panchayat Samiti for running such trades. The objective behind empowerment of the Panchayats for issue of such certificates/licenses is not limited to augmentation of their resources. It is expected that the Panchayats will take initiatives for providing required services through the network of trades and businesses in the locality, ensure environmental sanitation and eco-friendly ambience, prevent unlawful business in the area and keep tab on trades and businesses within the area. The State Government proposes to amend the related legal provision under which GP may limit scope of trade in a particular commodity on the ground that the local market is saturated or may advice trade in a specified commodity which appears to be scarcely available in the area. Special Requirements of the Urbanised Gram Panchayats Some of the GPs of the State are experiencing more rapid urbanization. 2001 census has identified 282 census towns and out-growths, which are located within Gram Panchayats. Because of higher density of population in those areas there will be more need for improving certain types of civic services like solid waste management, drainage, street lighting etc and the GPs should be more equipped in assessing building plans before passing the same. Many of those GPs come under some of the authorities formed under the Town and Country Planning Act and there is need for convergence and harmony of plans taken up under the said Act as well as the plans of the local bodies. A special initiative will be taken to build capacities of those GPs to improve the quality of lives of the people living in those areas. In order to identify the target areas and to prepare a blueprint of action, PRDD shall take up a study by an expert team. Management of Disaster
Roadmap for the Panchayats in West Bengal Proper management of disaster depends a lot on preparedness and many of those activities are to be taken up at the community level and at the levels of the local governments with due support of the State Government. All preparatory steps that can be taken up locally may be taken up by the GP and the PS for which separate devolution is not necessary. The real constraint is developing capacities of the local bodies and the community, who invariably face the first onslaught of any disaster before external helps can reach the affected areas. Steps will be taken by the state government for building up such capacities in all the GPs with emphasis on areas which are more prone to certain types of disaster like cyclone, flood etc. The State Government has already issued orders for involvement of the Panchayats in identifying beneficiaries in providing relief to persons in post disaster situations. Panchayats of the State has successfully handled such situations in the past and further capacity building of the Panchayats will include both better preparedness for minimizing loss of human life and property by taking preemptive measures and imparting management skills for tackling such situation with total involvement of the community for early restoration of normalcy. DECENTRALISED PLANNING AND IMPLEMENTATION DEVELOPMENT AND SOCIAL JUSTICE Introduction It is very difficult to distinguish between what are the essential responsibilities of the nature of core services and what are the other responsibilities of the Panchayats for economic development and social justice as laid down in article 243G of the Constitution [inserted by the Constitution (Seventy-third Amendment) Act, 1992 coming into force with effect from April 24, 1993]. The line of demarcation in this respect is in many segments very thin or blurred. However, the previous chapter broadly describes mostly those civic functions which are essential for all those living in their jurisdiction irrespective of their social and economic position for living in a society. The present chapter describes more of those activities which are to promote economic development of the poorer sections and social justice. Through recent amendment of section 19 of the W.B. Panchayat Act many of those activities have been mentioned as obligatory duties of the Panchayats. Most of those are of developmental nature for promotion of economy and social equity and, therefore, has been mentioned here. Land Reforms FOR ECONOMIC
Roadmap for the Panchayats in West Bengal The State Government has been already entrusted with the responsibility of identifying beneficiaries of land reforms on the Panchayat Samiti. While the same responsibility will continue, the Panchayats will be more associated with improving land of the beneficiaries of land reform so as to improve their productivity and helping those beneficiaries for accessing other inputs like irrigation water, fertilizer and bank credit etc. Irrigation facilities are extended by the Panchayats by taking up surface water schemes out of employment generation programmes and the same will be intensified and in other cases the Panchayats will mediate with the banks for acquiring pump sets or getting other credit related inputs. Those beneficiaries will also be assisted for producing bio-fertilisers for improving productivity. Land of assignees of vested land, if not fit for cultivation or not so productive will be improved using fund available from NREGA or other programmes so as to improve the productivity and asset value of the land. In addition to such programme related fund, the State Government encourages the Panchayats to apply untied fund and own source revenue for this purpose. The State Government shall also open dialogues with the Bankers’ forum to provide credit to such persons without being too fussy about the security provision. The State Government shall also advice the Panchayats to motivate the small and marginal farmers on this issue. Better management of Natural Resources and Improved Land Use
Roadmap for the Panchayats in West Bengal Agriculture and allied sector – Sustainable development and management of natural resources like land and water is essential for providing livelihood to large numbers of families depending on such activities. The PRIs should be responsible for assessing the available natural resources and how the same may be utilized for generating maximum economic gains keeping in mind the need for generating as much employment as possible and ensuring food availability. Although land belongs to private individuals and crop planning is done in the private domain the Panchayats along with the State Government will work for maximum utilization of available land resources for intensifying agriculture. The role of the Panchayat will be to provide supporting infrastructure to ensure optimum and sustainable utilisation of land and water. The same will include land reclamation utilizing fund from various employment generation programmes so that every plot of land excluding the water bodies are either covered with crop or if the land is not suitable for cropping the same should have tree cover. Degraded land is generally owned by the poorer sections having no means to improve the same and Panchayats will be responsible for improving all such land to at least have tree covers using fund available for employment generation or under various watershed development programmes. Land which can bear crop should be cultivated at least twice for which the Panchayats will play a stewardship role to utilize the available State extension machineries and programmes as well as will also work concurrently for improving cropping intensity and diversification of crop for better return and sustainability. The officials of the line departments will provide necessary assistance for this purpose and the Panchayats, particularly the GPs will be allowed to develop para-professionals within its areas for utilizing their services. Arrangement shall be made with the intervention of the ZP or if necessary, of the PRDD to impart training to such para-professionals by the agronomists and other experts of the Agriculture Department. Such training module shall focus on regional variation as regional needs and opportunities. In order to improve the cropping intensity the PRIs will work for providing micro and minor irrigation and will also mediate with the State extension machinery for improving agronomic practices for improving yield. In order to introduce new crops or improving cropping intensity the Panchayats of all the three tiers will be at liberty to act concurrently with the State Government for providing mini-kits to the poor farmers. They will assess the crop yield every year and work for increase in total production and economic returns of the farmers. Farmer’s perception and satisfaction are the ultimate measures for the crop yield and the result of improved practices on crop yield. In addition to the result of sample-based crop cutting method usually adopted by the Agriculture Department, the GP shall be encouraged by the PRDD to gather farmers’ views on crop yield and rate of increase of crop yield and compare these figures for future actions. Some of the activities, for which the Panchayats have required competence, will be taken up directly by those bodies and in respect of other interventions requiring more resources or technical expertise they will mediate with the State machineries for achieving desirable goals. Some funds are available from the Agriculture Department of the State Government for implementation of various programmes. GP and other higher tier Panchayats shall see that such funds are properly and productively utilized. Besides, untied fund may be utilized as additive to such programmes where necessary. PRDD shall also see that the experts of the Agriculture Department and the Water Investigation and Development Department provide technical inputs to these farmers. They will have the liberty to introduce new
Roadmap for the Panchayats in West Bengal crops, with the support of the state extension machinery for higher economic returns keeping in mind that such diversification does not affect the need for cereal consumption of the area. The PRIs will similarly promote activities related to horticulture, sericulture and cultivation of different commercial crops. Promotion of agro-forestry and social-forestry – Those activities have been already devolved on the Panchayats for taking up plantation in all possible areas excepting those which are declared forests. Every GP will prepare nurseries of their own with the help of the local SHGs and take up plantation of only those species which are preferred by the community. The GPs will study the area to find out which land is unfit for cropping and irrespective of its ownership will either direct plant trees or assist the owner if they belong to the SC/ST families or are land reform beneficiaries for planting trees. The other owners will also be motivated for improving tree cover for meeting the bio-mass need of the area. Promotion of horticulture and other species will be taken up for generation of further economic activities using the planted trees and the Panchayats will also develop their own assets in terms of plantation of valuable trees for generation of income on a sustainable basis. There will be a few cases where absentee landlords may not take any initiative in this respect. In such cases, GP shall act as a catalyst to motivate the landowner to allow a group of local persons like SHG to utilize the land either for raising crops or for plantation under an agreement, leasehold or otherwise. If these initiatives substantially fail, PRDD plans to approach the Land and Land Reforms Department of this Government for a legislation to the effect that no landowner shall keep any portion of his holding as fallow and if any plot of land remains fallow for one year, the GP shall take possession of the land without any prejudice to the right of ownership and if such land is utilized for raising crop or for plantation, the owner shall have no claim on the accretion or its usufruct. Development of Water-bodies and Promotion of Fishery – Water conservation by storing surface water is an important activity which all tiers of Panchayats will carry out using employment generation programmes. That will help growing at least two crops in the command area of such water bodies, which will be actively promoted by providing minikits to all poor farmers having land in the command area. There is an increasing trend of SHGs taking lease of land for growing second crop and all such groups will be assisted to grow second crop and augment their income. The water bodies will be also intensively utilized for pisciculture. Those bodies owned by the Panchayats or for which Panchayats will spend fund for excavation will be given on lease preferably to the SHGs or the fisherman groups, for which enabling order has been already issued. Taking up composite culture of fishery and duckery together on such water bodies will be promoted for generation of more economic activities in their areas. The Panchayats at the intermediate level and as and when necessary at the Zilla level will also mediate with the officials of the Fishery Department for extension of technology and with banks for providing credit to the producers for more production of fish.
Roadmap for the Panchayats in West Bengal Water and Soil Conservation Measures – The Panchayats have been entrusted with the responsibility of taking up water and soil conservation measures out of various programmes including wage employment programmes and the watershed development programmes. This is in addition to what some of the Government departments like the soil conservation wing of the State Government is doing. Technical supports for taking such schemes are available at the level of the PS. In case of need for higher level technical support the same will be provided by the DRDC of the Zilla Parishads as well as the soil conservation wing of the Agricultural Department. The State Government will be responsible for strengthening the technical capabilities of the Zilla Parishads through the DRDC and the WBCADC for supervising and supporting all activities of the lower tiers of the Panchayats in better conservation of soil and water within its area.
Roadmap for the Panchayats in West Bengal Promotion of Animal Husbandry – Animal husbandry and development of livestock is extremely important for expanding the economic opportunities of the poorer section of the community. Activity mapping for this sector provides the responsibility of selecting beneficiaries in various government schemes and getting associated with the effort of the government for better extension of improved practices as well as taking other promotive measures. One Livestock Development Assistant has already been placed with the GPs for better integration of the activities of the State with those of the Panchayats. A team of para-professionals, known as “Prani-bandhu”, who are identified by the GPs have also been developed to provide services to the community against payment. They remain tagged with the GP and provide useful support in the field of animal husbandry. In addition to getting associated with the effort of the State the Panchayats are promoting activities in this sector with its own fund as well as fund received from poverty alleviation programmes and they receive support from the field officials of the Animal Resource Development Department, who works as officers of the Panchayats in their exofficio capacities. Providing inputs for animal husbandry like chicks, ducklings, kids and piglets etc out of own fund of the Panchayats to the poor families and particularly the members of the SHGs have been found to be very useful for augmenting income. Capacities of the Panchayats will be augmented for intensifying those works as well as increasing the supply of inputs within its area by promoting breeding and hatching activities in consonance with the provisions under clause (i1) of section 21 of the State Panchayat Act entrusting the responsibility of the GP relating to dairying and poultry. They are also associated with development of infrastructure and providing skill training for promotion of both breeding and rearing activities. The Panchayats will also organize the producers for having better bargaining power in negotiating for buying inputs and selling products and the Panchayats will also mediate with the large producers for linking the small producers, particularly the SHGs with such larger organizations for better price realizations and marketing support. Upgrading of marketing skill is a prime need for success of this programme. It is not possible for an SHG to organize a marketing channel except for a limited marketing arrangement in local area. In order to streamline this activity, SHGs are encouraged to join together and form Clusters. Such Clusters are again grouped into Federations. An effort is also in the offing to constitute a society under the Societies Registration Act that will, inter alia, help in the marketing of SHG products. Larger organizations of Federations shall also take initiatives in marketing of products. PRDD is taking initiatives to improve the marketing skill of larger organisations with the help of Government Departments, NGOs and corporate bodies. There are veterinary dispensaries for improvement of animal health and day-to-day running and maintenance of those dispensaries will be handed over to the appropriate tiers of the Panchayats. Service of LDA should be placed with the Gram Panchayat. Running and maintenance of veterinary dispensaries may be made the responsibility of the Panchayat Samitis when Veterinary Surgeon and higher level technical officers should continue to render technical support. Block Livestock Development Officer and VS should also have closer ties with the Panchayat Samiti for which they may be given a Panchayat related designation. Similarly, the district level officers may be linked with the Zilla Parishad.
Roadmap for the Panchayats in West Bengal Restructuring the West Bengal Comprehensive Area Development Corporation – The West Bengal Comprehensive Area Development Corporation (WBCADC) is a statutory body under the Government of West Bengal. This organization came into being in 1974 for taking up intensive activities mostly in the agriculture and allied sectors in the notified project areas. The same was brought under the administrative control of the Panchayat & Rural Development Department from February 2004 with the intention to make them work in close association with the Zilla Parishads and provide support in those fields. The Corporation has 21 notified Projects, which are located throughout the districts of West Bengal and all agro-climatic zones of the State are covered by the Projects. The State Government will restructure the WBCADC so that instead of taking up developmental activities in certain notified locations the project units function under the overall control and guidance of the Zilla Parishads and become the technical support organizations of the Zilla Parishads in promoting livelihood in the agriculture and allied sectors. The WBCADC also produce seeds of various crops and other inputs like horticulture saplings, fingerling for fish, chicks, piglets etc. The WBCADC will work as per directions of the Zilla Parishads for supplying inputs as per their requirement and will also provide extension support for introduction of new crops or adoption of new technology. The Zilla Parishads will also invest on the available infrastructure of the WBCADC for augmenting their production capacities and will engage experts to work for that organization for which fund will be provided by the state government to the Zilla Parishads. Promotion of Livelihood Opportunities in Non-Farm Sectors The Panchayats will also work for expansion of livelihood opportunities in the secondary and tertiary sectors by developing appropriate infrastructure, arranging skill training for the people, particularly those from the poorer and weaker sections of the community. They will also mediate with the financial institutions for providing better access to credit for deployment of the same in production of goods and services. Under Article 243G of the Constitution of India as also under section 19 of the State Panchayat Act, GP is empowered to take measures for economic development of the people of its area. GP may, therefore, carry out programmes for such economic development. In such cases, however, GP will essentially act as a facilitator and extend handholding support to the needy persons. All those activities are normally done by the State Government. However, the nature of the activities are such that the Panchayats have no difficulty to promote those activities within their areas with their own initiatives and resources as well as mediating with the State machineries and other available institutions for better implementation of their plans and programmes in those sectors.
Roadmap for the Panchayats in West Bengal Household and Other Small Scale Industries – In addition to the efforts being made by the State Government for promotion of small scale and household industries, with all possible supports of the Panchayats, the Zilla Parishads and the Panchayat Samitis are permitted to develop infrastructure for promotion of those activities. Some of those are taken up as part of implementing various schemes, which have been assigned to the Panchayats. They are also allowed to buy land and develop infrastructure, arrange skill training and mediate with banks for credit support. Some of those activities are linked to the self-employment programme, implementation of which has been assigned to the Panchayats. On certain occasions, GP plays the role of advocacy. In addition to that the Panchayats are permitted to hire experts, draw up special plans either out of its own fund or fund from various programmes. Identification of key economic activities and development of skill, common infrastructure including production infrastructure and marketing supports will also be provided mostly through the District Rural Development Cell (DRDC) of the Zilla Parishads. The role of the State Government will be to increase the capacities of the DRDCs for extending support to the Zilla Parishads and creating other enabling conditions for expansion of non-farm economic activities in all possible sectors and in every possible geographical location. Land is a very scarce commodity and the Panchayats are allowed to acquire land for these purpose. The procedure for acquiring land by the Panchayats will be streamlined to allow those bodies to acquire land for promotion of activities in non-farm sectors. Promotion of Service Sectors – The service sector is fast growing and has the potential to provide more employment. The benefit of expansion of service sectors has gone mostly to the urban areas because of available infrastructure and other supporting facilities. The Panchayats, particularly those located in peripheries of the urban areas will be assisted by the State Government for development of conducive infrastructure for growth of service sectors. Some of the services are expanding and have potential to grow fast even in interior rural areas. As a part of planning exercise those will be identified for being promoted by the Panchayat themselves or by the State Government on recommendations of the Panchayats. Developing Infrastructure for Promotion of new economic activities with larger employment potential like the IT and the ITES services will be an important task of the Panchayat for which due assistance will be provided by the State Government. Developments of rural markets have already been assigned to the Panchayats and those bodies have also constructed several market complexes for private trades of the locality. It will be the responsibility of the Panchayats to develop the markets and create more space for conducting business by the local people. The viable proposals will be funded by the State Government. That will also include establishment of Rural Business Hubs, in collaboration with private owners, if suitable offer is available. Alleviation of Poverty & Social Equity
Roadmap for the Panchayats in West Bengal Providing wage employment to the unskilled workers – All schemes for providing wage employment under various poverty alleviation programmes have been the responsibilities of the Panchayats of the state from the very beginning. This responsibility has reached a new dimension with the introduction of the National Rural Employment Guarantee Act, 2005, which has been enforced in ten districts (seventeen from the financial year 200708) of the State at present. The GP is the implementing agency for most of the schemes and the PS are entrusted with implementation of larger schemes. Each GP will be required to estimate the demand for unskilled wage employment and its seasonality with active participation of the Gram Unnayan Samiti (GUS) and to meet the demand by taking schemes which will boost the employment potential of the area. The PS and the ZP will oversee the work and will ensure that demand for employment is met in respect of its area and provide support to the lower tiers for achieving the objective. The ideal situation will be that the economic activities of the area taken up in the private domain will provide enough employment for all the persons so that there is no demand for employment from the State. Before, the same is achieved, which may take a very long period, the GPs and the other Panchayats bodies together should be able to plan and implement schemes for meeting the demand for employment. There are areas where non-availability of land and other constraints will not permit generation of so much employment for unskilled labourers. In other areas the Panchayats should acquire the capability of providing 100 days wage to all the labourers, if there is demand for the same. There are certain areas where even though the demand is generally perceived, the programme is not being implemented at the desired level apparently because of some constraints. The State Government is taking steps to collect information about such constraints, study them and take necessary actions. The goal, as far as the Panchayats are concerned, is to be able to provide employment to meet the demand and to simultaneously to build up employment potential through better management of natural resources so that all the labourers gradually get more number of days of employment per year from the economic activities in the private domain or through self-employment leading to lower demand of employment from the state. In Howrah district the provisioning of wage employment by the Panchayats are not based on demand but on supply of fund under the SGRY (Sampoorna Grameen Rojgar Yojana) programme. In this district also the Panchayats will work for creating such assets so as to allow increasing generation of man-days per year from the private economic activities leading to reduction of poverty. In those districts the target will be to ensure that the Panchayats are in a position to utilize cent percent of the fund allocated to them (which is yet to be achieved because of various constraints) and to provide scope for employment to the poorest people and the women for augmenting their income. Since the functions have been fully delegated to the Panchayats the task is basically to increase the capacities of the Panchayats for properly discharging their roles. The role of the State Government will be to augment capacities of the Panchayats and to remove the constraint of not being able to meet the demand for employment in districts covered under the NREGA and not being able to fully utilize the available resources under the SGRY in respect of the other district. The same will entail higher efficiency in planning and making the plan more useful to the wage earners for augmenting the opportunity for getting wage employment within their areas.
Roadmap for the Panchayats in West Bengal Implementation of area development programmes – The Panchayats have been fully entrusted with the implementation of the watershed development programmes under the centrally sponsored Hariyali schemes as well as other watershed development programmes. In this case also the major constraint is that of inadequate capacities and the Roadmap will be to gradually develop capacities at all the three tiers for proper implementation of the watershed development programmes. Major focus of such schemes will be those Blocks covered under the DPAP and other blocks facing land degradation. Self Help Groups and Self Employment – Alleviation of poverty, through simultaneous improvement of all its dimensions, is a paramount goal of the State as well as of the Panchayats. Organising the poor in Self-Help Groups (SHGs) and empowering them to be the prime mover for their own development by drawing support from the Government as well as the Non-Government organisations, rather than imposing programmes on them, is emerging as the key strategy for alleviation of poverty. The role of the Panchayats in this context becomes primarily to facilitate the process and to ensure convergence of all the interventions at the community level through the SHGs. The GP, being closest to the community can play the most important role in development of SHGs with members drawn from the poor families and ensure that all the desired services and various other government interventions reach those families through those groups. Regular savings, even at a very small scale and pulling their resources for meeting small credit needs has played a vital role in bonding the members and gaining confidence in extending their group effort in tackling other areas of deprivations. Micro-finance has been thus found to be an extremely important entry point activity for organising the poor and harnessing their power to fight together to overcome deprivation, discrimination and vulnerability. The other common experience has been that the poor women have come forward in large numbers to get organised in groups and breaking new grounds in social and economic development of their members through group efforts. Experience over last decade or so, has proved that if allowed to blossom, the organisations of SHG and microfinance can devise own financial products matched to the felt needs of the poor and manage delivery of those products efficiently. However, maturity of the initiatives still broadly depends on creating favourable socio-political and economic environment with necessary legal and administrative structure as well as strong facilitation by dedicated experts. Desired change in socio-political scenario will obviously be slow and requiring changes in the mind-set of major players – individuals and institutions – in the field. However, since the State Government has owned this process, such change shall take place albeit gradually. Pro-poor attitude is also not overly discernable in every field of activity. Such attitude is also necessary to be built up. The SHGs of the poor, apart from playing the most crucial roles of ensuring benefit to their members may also influence the local governments to remain pro-poor for maximising benefit to the most deprived section of the community, which has been already mentioned in chapter II.
Roadmap for the Panchayats in West Bengal In the backdrop of the above the goal set by the Government of West Bengal is to cover all the poor families, by bringing at least one member from such families, particularly the women under Self-Help Groups. There are around four lakh such groups and there is need for forming three lakh more groups, which may be possible by the year 2010. The role of the Gram Panchayats will be to organize the groups within their areas and to nurture and monitor them for meeting their economic and social needs and ensuring convergence of their plans and progrmmes with the needs and aspiration of the group members. The Roadmap in this regard will be the following: (1) Each GP will have a team of trained persons for nurturing and monitoring the SHGs formed under its jurisdiction. For that purpose a GP SHG management Team (GSMT) is being formed in each GP comprising of elected members, group members, officials and members of NGOs and civil society for assisting the GP in accomplishing the task. GSMT shall guide and advice the GP to build up a support system for the SHGs to foster their social and economic activities. The same will be completed by the current year but the task for increasing their capacity will remain to be addressed over the next few years. (2) Each GP monitors the progress of the SHGs within its area once a month and plan interventions at their levels for generation of income and pursuing other goals of the SHGs as well as mediate their other needs, which cannot be addressed by the GPs, with the higher tiers of Panchayats, banks, DRDC etc. (3) All the SHGs within the GP are formed in to one clusters (with sub-clusters if necessary at the Gram Sansad level) and provided infrastructural support for their functioning. Such clusters will provide a common platform for the SHGs where they may share experiences, compare problem issues and decide joint course of action on common issues. (4) All the three tiers of Panchayats spend out of their untied fund through their Standing Committees on Women & Children for promotion of the interest of the SHGs for augmentation of their income as well as expansion of other social opportunities. The most important component will be providing non-credit inputs to the group members for pursuing various economic activities. The experience of the State has been very good in providing inputs like seeds, chicks, kids, piglets to the group members for unleashing the productive forces of the members of the SHGs by utilizing their manual labour as also their aptitudes and experiences. The process needs convergence of extension support and other help for realizing the full potential for such intervention. (5) The above will include development of production infrastructure like working sheds etc at the village level to meet the demand of all the SHGs, imparting appropriate skills and providing possible marketing support to all the groups. The same will be coordinated by the DRDCs of the ZPs with the support of the Panchayat Samitis. This will also require development of dedicated centres for promotion of livelihoods, which will be developed appropriately by the State Government in collaboration with the Zilla Parishads. (6) Every SHG will have access to credit through either cash credit account or schemebased lending for earning enough money to come out of poverty. All such responsibilities have been already devolved on the Panchayats and the Roadmap boils down to augmenting capacities of the Panchayats in all the three tiers for achieving
Roadmap for the Panchayats in West Bengal the objectives as stated above and as fast as possible. This will also require intense orientation of the Panchayat members for changing their mindset in not spending the bulk of the available fund in roads and other construction activities and rather utilizing the untied fund for directly addressing poverty through SHGs. All the activities mentioned above will promote primarily non-farm activities including household and cottage industries and will have impact in the society so as to reduce the demand for wage employment.
Roadmap for the Panchayats in West Bengal Reduction of poverty and providing other support to the BPL families – Steps like Land Reforms, better use of natural resources in a sustainable way, providing wage employment and augmenting self-employment through organizing the poor and promotion of non-farm activities, as narrated before, will be the main interventions for alleviating rural poverty. At the same time the existing BPL families need to be identified and benefits of various schemes are to be focused on such families. Maintaining a proper BPL list and updating the same is a real challenge at the field level. The list is being prepared based on certain objectively verifiable indicators and after the list is finalized the same will be shared with the Panchayats. The Panchayat Samiti will be responsible for maintaining the list. All the GPs should have the capacity of consulting the list, preferably by using computer for ensuring proper selection of beneficiaries and distribution of benefits equitably among the poor. Since computerization of accounts of all GPs has been targeted to be completed by March 2010, there will be no difficulty to load the BPL data in the system by a gradual process within the same time. Although the responsibility of selecting beneficiaries rest with the Gram Sansads but existence of a easily retrievable BPL list showing all the attributes of the family will help better selection and focused intervention for bringing those families out of poverty. The goal will be that the GPs ensure wider dissemination of information and consultation of the people for updating the list every year and helping the Gram Sansads to identify new beneficiaries out of the BPL list based on objective criteria and providing access to all the information to the common people for better transparency in decision making. Orientation of the people and the Panchayat members at large will improve to eliminate all bias and will keep following objective norms, which will be the goal to be achieved as soon as possible. Measures for Social Security Food Security and the PDS – There are a few Government programmes like the Antyoday Anna Yojana (AAY), Annapurna Yojana (AY) and the Targeted Public Distribution System. The Panchayats have been devolved the responsibility of identifying beneficiaries and keeping a watch so that the benefits reach the selected beneficiaries. The target is to ensure selection of beneficiaries without loss of time and to install an effective system of monitoring so that the desired benefits reach the people. The Panchayat Samiti and the Zilla Parishad shall intervene with necessary assistance from the officers of the Food and Supplies Department as also other officers having supervisory role if the delivery system malfunctions at any stage. The achievement in this respect will be essentially mentioned in the Annual Report of the GP and reading out the same in meetings of the Gram Sansads for wider knowledge. The list of new beneficiaries will be painted in the walls of the GP office for information of the community.
Roadmap for the Panchayats in West Bengal Social Security Measures – There are a large number of pension schemes for which the beneficiaries are selected by the GPs and most of the schemes are administered by the Panchayats. The State Government plans to devolve administration of the remaining schemes to the Panchayats. These schemes are (i) Old Age Pension Schemes for poor people attaining 60 years of age, (ii) Widow Pension Scheme for deserving widows residing for at least 10 years within this State, (iii) Disability Pension Scheme for persons afflicted by more than 40 per cent of disability, all three schemes presently being administered by the Department of Women & Child Development and Social Welfare of the State Government, (iv) Fishermen Old Age Pension Scheme for old fishermen attaining 60 years of age administered by the Fisheries Department, (v) Farmers’ Old Age Pension Scheme for poor old farmers attaining 60 years of age administered by the Agriculture Department, (vi) Artisans’ Old Age Pension Scheme for deserving old artisans administered by the Cottage & Small Scale Industries Department and (vii) Tribals’ Old Age Pension Scheme for poor tribal people attaining 60 years of age administered by the Backward Classes Welfare Department. All these schemes are at present implemented by the respective administrative departments. On devolution of the administration of all such schemes to the Panchayat bodies, the State Government will take necessary measures for reaching fund directly to the tier responsible for making payment. The largest scheme is that the National Old Age Pension Scheme (NOAPS), which is administered by the GPs. Fund is transferred directly to the accounts of the GPs from the State through the state bank of India instead of the earlier practice of funneling the fund through the district machinery for saving time and order has also been passed for allowing the GPs to make payment of pension directly to the existing beneficiaries out of their own revenue, in case there is delay in getting fund transferred to their account by the Government. In fact the GPs have been authorized and are being encouraged to make such payment out of their own fund at the beginning of every month as a welfare measure. The initiative has just been started and the goal will be to ensure that every pensioner is paid pension by the Panchayat body, which administers the scheme, temporarily out of their own fund and to transfer the remaining schemes to the appropriate tier of the Panchayat. The Roadmap in respect of this will be that each GP becomes capable of paying the pension out of their own fund and get that amount recouped on receiving fund from the State Government. Provident Fund for Landless Agricultural Labourers and Unorganised Workers – The State Government has introduced two schemes for provident fund – one for the land less agricultural labourers and the other for the unorganized labour in non-agricultural sectors. The administration of the schemes is done through the Panchayats. There is need for improving the quality of services in respect the two schemes and each GP will be required to provide the basic services for collection of monthly subscriptions, maintaining accounts and returning the matured amounts or extending the benefit on the event of death of the participating members. The target in respect of this activity is acquiring more capacity and computerizing the entire data-base for more efficient management of the programmes. This is being proposed to be achieved within the year 2010. Apart from computerization of database by 2010, the State Government shall think of augmentation of staff strength if coverage of these programmes extends beyond the expected level.
Roadmap for the Panchayats in West Bengal Implementation of the National Family Benefit Scheme (NFBS) – The scheme is to provide one-time assistance of Rs 10,000 only to the family members of any deceased person who was living below the poverty line and was the main earner of the family and the same is administered by the Panchayats of the State. Applications from eligible beneficiaries are received by the GPs and based on their reports the same are sanctioned by the Sub Divisional Officers. In this case also there are weakness in implementation and it is apprehended that such benefit do not reach all the potential beneficiaries because of lack of knowledge about the scheme or poor delivery system. The target will be to cover each and every eligible family under the scheme and to reach the benefit within a month of receiving application by the GPs. The State Government’s role will be to establish a quick fund transfer mechanism and streamlining the procedure while the Panchayats will be responsible for generation of awareness about the scheme and to quickly process all such applications for reaching benefit within a month as stated above. The State Government shall also consider giving wider publicity to this scheme through electronic and other media. A discussion at every Gram Sansad meeting of this scheme and other social benefit schemes shall also resorted to. On the other hand, the concerned officials shall be alerted by the PRDD to avoid delay in settlement of these claims. Planning from Below for Economic Development and Social Justice
Roadmap for the Panchayats in West Bengal All the activities narrated in the earlier chapters require a planned approach and the target groups of people are required to participate in preparation and implementation of the plans for maximizing their gain. Under Article 243G of the Constitution of India all the three tiers of Panchayats will prepare plans for their areas. Such plans should be prepared based on the available resources, not only financial to be received from the Government and own revenue mobilized by the Panchayat but also all the available physical and natural resources and the human resources. The State Government has conducted various experiments on planning from below by the Panchayat bodies in selected areas and a simplified procedure for preparation of people-centred and participatory plan has been evolved in terms of its format for data collection and analysis in respect of six identified sectors. The process has been standardized by taking up a pilot exercise of preparing plans for six GPs of the State in five different districts during the year 2004-05. PRA exercise for mapping of natural and social resources are taken up by the people of each Gram Sansad for identifying their needs and priorities and planning for what is possible within their existing resources and identifying those which are to be taken from above the levels of GP, to be incorporated in the plans of the PS and the ZP. The concept is that the GP plan shall be collated and integrated with the PS plan which shall again be collated and integrated with the ZP plan so that all such plans shall have a converging effect on the entire development process for improving the quality of life of the people. Those will also be utilized for preparation of the District Plan as envisaged in the Constitution. The experience shows that it requires tremendous amount of sustained facilitation by dedicated experts for being able to prepare GP plans. The external facilitation also leads to acquisition of local capacities for replicating such exercises in future. Such plans are being prepared for 304 GPs of the State belonging to the poorest six districts in the current year. In other districts plans are prepared by the GPs and other tiers, which are mostly to cater to the need of the various programmes. Even those plans are not prepared on time resulting in inefficiencies. The need for preparation of holistic plans starting from the bottom level of governance has become urgent in the wake of the approach for plan preparation under the Eleventh Plan and introduction of the Backward Region Grant Fund (BRGF) for selected districts. The Development and Planning Department of this Government has also issued a circular to all the departments for preparation of plan showing a district sector component for implementation by the Panchayats and the Municipalities. It has also required integration of plans of three different tires of Panchayats. At the same time the experience shows that it is extremely difficult to take up such planning without development of adequate local capacities for there is need for sustained facilitation which is time consuming. The target will be to bring all the Panchayat bodies of the six most backward districts to take holistic planning by the year 2006-07 and to cover all the other five districts, which are to be covered under the BRGF (out of eleven districts to be covered under the BRGF six most backward districts are already included), within the year 2007-08. The other districts have more capacities to adopt the procedure in a simplified way to take up village level planning exercise and will be provided facilitation from the State level experts so that those districts also adopt detail planning procedures from the year 2007-08. However, facilitation has to continue over a longer period for improving the quality of plans and adopting various good practices to be collected from across the State for dissemination to all concerned. The role of the state government will be to build up capacities at all levels of Panchayats
Roadmap for the Panchayats in West Bengal through training, handholding, showing good practices and exposure visits etc. It also proposes to make some procedural changes and changes in the timeframe to facilitate the process. It may also provide additional manpower as may be necessary. The State Government hopes to reach the desired level of performance at all tiers by 2010-11. Developing Panchayat-Private Partnership Some of the services that are required to be delivered may be better delivered in partnership with private organizations. The functioning of the RSMs, described before, is an example of such partnership. The Panchayats will be encouraged to enter in to such partnership in respect of delivery of services on a commercial basis. The principle of social marketing will be followed in all such cases where the price realization from the people will be decided in consultation with the Panchayats and they will also be engaged in monitoring quality of the services and its access by all concerned. It is neither possible nor desirable to prepare an exhaustive list of areas of such partnership. However, such partnership may be for collection of tolls, pisciculture invested tanks, construction of public toilet system, processing and marketing of milk and poultry products produced locally etc. If the system develops to some extent, the State Government may have to initiate legislative process to empower the Panchayat in this respect. AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT Introduction The Panchayats have a poor resource base in terms of their own source revenue (OSR). At the same time those bodies are unable to utilize the entire potential of collection of OSR because of many factors. What the Panchayats spend is too little to make a substantial impact on the economic and social life of the people within a reasonable period indicating that they should have more resources under their command and at the same time the Panchayats are unable to fully utilize the resources available with them. Therefore, several measures are to be taken for both augmenting availability of fund with the panchayats including OSR of the Panchayats and at the same time there is need for tremendous augmentation of capacities of Panchayats and putting several systems in place for effective and faster utilization of available resources and maintaining transparency and financial accountability of a high standard. The present chapter describes the current initiatives and steps to be taken for realizing the broad objectives related to both augmentation of OSR as well as proper management and utilization of fund. Current Status of Mobilisation of OSR
Roadmap for the Panchayats in West Bengal Collection of own resources by the PRI remained a rather neglected area till a few years ago. Regular monitoring of collection of resources and taking measures for its improvement has resulted in growth of OSR at all tiers. Only the GP has the power to collect tax from building etc. Other sources of revenue of all the tiers are through various fees and rates in exchange of registering license and also for providing other services. All the tiers also collect non-tax revenue through various commercial activities. In spite of these initiatives per capita OSR of all the three tiers during the year 2005-06 was merely Rs. 12.61 compared to Rs 11.11 in 2004-05. The GPs, PSs and ZPs of West Bengal were able to witness a growth of 83%, 131% and 35% respectively in OSR in 2005-06 compared to the same in 2002-03. A sincere effort for improving the tax collection has been initiated. The assessment of property tax by the GPs was not very transparent and scientific so far because the assessment procedure requires huge collection of data of property of individual tax assessee. The GPs had hardly any capacity to collect and handle the huge data base and to assess property tax properly. In the year 2006, the West Bengal Panchayat (Gram Panchayat Administration) Rule, 2004 has been amended. This amendment provided one way out of this administrative problem. Under this new rule, every assessee will be asked to submit one self-declaration of properties and market values of these properties under his/her control. It has been noticed that adoption of self declaration of valuation of properties for property tax assessment could bring some success in the property tax collection for some municipal corporations during 1996-97. Introduction of self-declaration may help the GPs of West Bengal to take a leap towards adoption of a scientific tax assessment approach. The State Government is for some time motivating the GP for the prime need for augmenting its resources. It is also being impressed that if the people find that the tax realised is mostly applied for various development programmes, they will also be motivated to pay tax. Impact of the aforesaid amendment is most likely to have a salutary effect. Though under Section 223 of the West Bengal Panchayat Act 1973, it is mandatory for every Gram Panchayat, Panchayat Samiti and Zilla Parishad to adopt a bye-law for enhancement of resources, yet most of the PRIs did not prepare and adopt any bye-law. In the year 2003, model bye laws were prepared by the Panchayat and RD Department and the PRIs were motivated to frame their own bye laws. The bye-laws cover basically the non-tax sources of revenue mobilization. Previously there was no provision in the rules for assessment of non-tax revenue. The amendment of the West Bengal Panchayat Act in 2006 has introduced the system of assessment for non-tax sources as well. Meanwhile, in order that full revenue potential of the Panchayats are realized a list of assets of all the Panchayats are being compiled. The task is expected to be completed by end of this financial year (2006-07). This will help to develop the resource base of PRIs. The task of filling up of both tax and non-tax assessment list will help to assess the revenue base of the GPs in the days to come. Likewise the GPs, the Panchayat Samitis and Zilla Parishads are to be advised to prepare a proper and scientific assessment document for resource augmentation in near future.
Roadmap for the Panchayats in West Bengal Improving Collection of OSR This process of preparation of a proper and scientific assessment list requires time, attention and will of PRI members. It has been stated earlier that resource mobilization was never a significant area of attention to the PRI members. Most important step taken for improving OSR is orientation of the members on the need for augmenting OSR and constant monitoring on the performance. The same will be taken up in the right earnest. Continuous reminders through orientation camps at district level with PRI members and officials, campaign through radio programmes, orientation through Lokashiksha Sanchar [satellite based Training and Development Communication Channel (TDCC)] are some of the ways to orient PR functionaries. More involvement of the GUS in preparation of assessment list has been advocated in the amended rule. The next important aspect of resource mobilization is collection revenue for all tiers. The GP faces the highest problem in collection of tax. People, generally feel reluctant to pay tax. Some success stories in this regard suggest that people feel at ease to pay tax when the payer can relate paid tax with justified spending out of this fund. This idea is percolated to GPs for adoption. The State Government will also facilitate adoption of measures for higher collection of non-tax revenue by the GPs. The expenditures out of OSR are also being tracked which reveals that the expenditure for development purpose is still not at the required level. The amendment in 2006 lays down, inter alia, that a Gram Panchayat should utilise at least 50 per cent of OSR collection for development work in the area. This provision is bound to improve the existing scenario. More attention is needed to track the expenditure data in higher tiers also. An incentive scheme has also been launched to encourage collection of OSR. Twelfth Finance Commission has recommended maintaining parity for release of grants with the resource mobilised by the respective PRI. This has been able to enliven the attention of the PRIs towards the need for resource mobilization. In the years to come, complete dissemination of this information of incentive grant will help to change the mindset of the PRI functionaries. It is expected that the OSR of GPs will increase at a compounded rate of at least 20% and that of the other tiers will increase by at least 10% over the next five years. Emphasis will be given on improving services being delivered by the Panchayats as well as creating more income generating assets in the coming years for augmenting the revenue base of the Panchayats. The District Panchayat & Rural Development Officers (DPRDO) will monitor collection of OSR by different Panchayats more closely within every district and will facilitate augmentation of OSR of all the Panchayats. A cell has already started functioning as a part of the programme for Strengthening Rural Decentralization to analyse all information related to resource mobilization and will provide special initiatives in augmenting OSR, particularly in the poor performing Panchayats. Apart from these initiatives, some more new avenues of resource mobilization may be explored such as collection of taxes on advertisement by the GP, for which provision has already been made in the West Bengal Panchayat Act. The State Government in PRDD has recently given certain suggestion to the Third State Finance Commission in this regard. It is expected that the SFC will accommodate these suggestions in their recommendations. 67
Roadmap for the Panchayats in West Bengal Improvement of Budgetary Control and Financial Management Since many of the components of expenditure by the Panchayats are scheme based the practice of proper budgetary control has not received enough attention rather observance of only the scheme guidelines and maintaining scheme based fund utilization became the sole criteria. However, when the fund is credited to a Panchayat any expenditure has to be duly authorized by the competent authority and actual expenditure should be subject to budgetary control. The target will be to ensure that each Standing Committee/Upa-Samiti will exercise due budgetary control on expenditure related to its domain of activities and appropriate management practices will be followed for proper financial management. In order to achieve that there will be capacity building of all personnel associated with financial management of the Panchayats. Such capacity building will involve computerisation of all accounting and financial management related activities, putting appropriate system for monitoring financial performance in place and organizing training of all the functionaries for efficient functioning of the system. Norms and formats for essential disclosure related to financial management of the Panchayats will be developed for better accountability to the respective Sansads. The members of the Standing Committee of Finance will be oriented for completing budgetary exercises on time, ensuring better budgetary control on all expenditure and monitor financial performances including utilization of fund and avoiding time and cost over run on a regular basis. The State Government monitors the financial performances of all the ZPs every month and the ZPs have been advised to take up similar monitoring for all the PS and the GPs within their areas. Capacities of the ZPs will be appropriately augmented for undertaking that task. Improvement of Accounting Practices and Computerisation of Accounts Better financial management demands better maintenance of accounts. New rule for maintaining double entry system of accounts for the ZP and the PS has been already introduced and a new accounts rule for the GP is going to be introduced during the year 2007-08. With introduction of double entry accounting system it has become easier to track fund received from different sources and to exercise necessary budgetary control. However, the same can be done easily only when the accounts is computerized. In order to achieve that accounts of all the ZPs have already been computerized. The same for the PS and the GPs will be completed by the year 2007-08 and 2009-10 respectively. All employees concerned will be trained on the related software, which have been already developed. The posts of Block Informatics Officer (BIO) and the Data Entry operators (DEO) have been created in each Panchayat Samiti and the same are being filled up. The work for computerization of accounts of PS and GP will start in a big way from the year 2007-08 after those posts are filled up. The accounts software now deals with only accounting of income and expenditure and a package on details of collection of OSR and related process is being developed and the same will be integrated with the accounts software from 2007-08. Norms for better control of finance by the Panchayats and sharing information with all concerned will also be developed by the year 2007-08 for improved transparency, accountability and efficiency.
Roadmap for the Panchayats in West Bengal Specific capacity building initiative after the introduction of the West Bengal Panchayat (Gram Panchayat Accounts, Audit and Budget) Rules, 2007 requires special mention here. Under this new rule the books of accounts of the Gram Panchayats shall be maintained by double entry system and the cash book of the Gram Panchayat shall be maintained in double column basis. Besides, steps have been taken to maintain records of assessment and collection of each type tax and non-tax revenue for continuous monitoring to ensure maximization of resources. The whole system requires apart from the Cash Book, maintenance of a number of books of accounts and other records. Procedure for computerization of accounts has also been incorporated in the new set of rules. As this introduces a massive change from the existing single entry – single column system, the requisite capacity building of the GP office bearers and employees becomes a prime intervention. Gram Unnayan Samiti is a newly-constituted platform for establishment of closer linkage between the Gram Panchayat and the people. Gram Unnayan Samiti has also been statutorily empowered to receive fund either from or through the Gram Panchayat or by its own initiatives and spend it for development programmes of minor scale. So, GUS requires a system of accounts and since GUS is run by a few nonofficials, the system is required to be as simple as possible. Such a system of accounts maintenance has been developed and incorporated in the said rules. However, such simple process also requires capacity building especially because of their background and lack of exposure in maintenance of accounts. All such issues centering around capacity building are being addressed in the following manner: Capacity building of GP office bearers and employees on the new accounts rule, Capacity building of GP employees on principles and techniques of double entry accounting system, Capacity building of GP office bearers and employees on GPMS software, Capacity building of GP office bearers and employees on better utilization of fund available to them and its management, Capacity building of GUS functionaries on the GUS section of the new accounts rule. As capacity building of all the GP and GUS functionaries is a mammoth task, it has been planned to utilize three complementary approaches to complete the task. These are – (a) Direct Classroom Training with question-answer sessions, (b) Training through TDCC and (c) Hand-holding support to the select GPs. These capacity building programmes will be supplemented by handbooks in vernacular written in simple and lucid language with illustrations and a question-answer chapter. Such handbooks shall be widely distributed among the Gram Panchayats and Gram Unnayan Samitis. Internal Audit of Panchayat Accounts
Roadmap for the Panchayats in West Bengal Accounts of all the tiers of Panchayats are being audited at present by the Comptroller and Auditor General of India. There is need for follow up on the audit reports for improvement of the system. The same is lacking mainly because of large numbers of vacancies in the cadre of the Panchayat Accounts and Audit Officer (PAAO), Samiti Accounts and Audit Officer (SAAO) and the Parishad Accounts and Audit Officers. The effort will be to fill up all the posts, for which necessary steps have been taken and to train them up appropriately for accomplishing the task assigned on them. For monitoring the whole arrangement the Panchayat & RD Directorate will be strengthened and an Audit & Accounts Cell will be established for proper monitoring, follow up and training of all personnel concerned on accounts and related matters of financial management with the help of the SIPRD and the ETCs as well as other professional training institutes. Since this is a continuous process, no timeframe is suggested in the Matrix. The State Government however expects that the desired level shall be achieved by 2010-11. Social Audit If a reliable system of social audit is built up, it will have multi-dimensional salutary effects. It will bring transparency in the management of fund and shall perforce improve the quality of accounting system. It will also to a large extent, eliminate misutilisation or underutilisation of fund. The system will also bring in its wake more meaningful sensitisation of the common people, increase their awareness and will encourage their closer participation in the development process. A system has already been built where the Gram Panchayat will place the annual plan, budget, half-yearly and annual income and expenditure statement and the audit reports and action-taken reports following internal audit as also annual audit by the A.G., West Bengal, in the meeting of the Gram Sansad and the Gram Sabha for scrutiny, debate and recommendation. All such documents are widely circulated at draft as also final stage for information of the general people. Besides, any person or organization may have access to all such records at any stage for their examination. Production and discussion of all such documents are also available to the members of the Block Sansad and the Zilla Sansad. The idea is to bring the primary stake-holders in the arena so that they may evaluate the proposals/actions and may contribute towards their enrichment. Measures will be taken for improvement of the system so that more informed and meaningful participation of the people may be ensured. Apart from the issues relating to accounting and fund management, quality of implemented or ongoing programmes/schemes shall also be discussed in all such fora. Efforts shall also be taken to enthuse the NGO’s and CBO’s operating in the area so that they may contribute to dissemination of information and may enable the people to contribute in the discussions. Scrutiny of Panchayat Accounts by the Legislature
Roadmap for the Panchayats in West Bengal There was no formal arrangement for scrutiny of the accounts of the Panchayats by the State legislature. Necessary change in the W.B. Panchayat Act has already been made very recently for allowing formal scrutiny of the Accounts of the Panchayats based on the report of the Comptroller & the Accountant General of India. That will improve the accountability of the Panchayats as well as more scrutiny of Panchayat Accountants will help in improvement of the system.
Roadmap for the Panchayats in West Bengal Capacity Building for Better Management of Fund The State Government will take measures to build capacities of the Panchayats for better management of fund. That will entail both institutional measures for improving the system of fund management as well as training of individual managing fund on behalf of the Panchayats. One important aspect of better fund management is faster flow of fund and related information. This has been already attempted by introducing a system of direct fund transfer to respective accounts of the Panchayat bodies instead of routing the same down the line through all the tiers. For that purpose all the Panchayats have opened a fund transfer account with the SBI and funds are being transferred by passing instruction to the SBI at Kolkata. The process of informing the Panchayats and obtaining confirmation of receipt of fund is being improved both at the end of SBI as well as by the State Government. For faster flow of information all the GPs will be provided with fax machines, which will also help their reporting system. FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES Introduction More devolution of functions and availability of more fund with the Panchayats are resulting in growing demand for dedicated and capable manpower with those bodies. More work is gravitating towards the lower tier and the GPs are facing more problem of capacity mismatch. Creation of adequate posts will attenuate the problem but obtaining their services in GPs located in remote and difficult areas has been a problem. Those with higher capacities are reluctant to work in remote and underdeveloped areas, which demands availability of adequate and capable manpower. Even outsourcing of such manpower in difficult areas is a standing problem. The other alternative is to gradually build up capacities of the existing manpower and those who are willing to work in lower tiers. There is also need for introduction of better establishment related practices starting from recruitment and framing related rules to proper administration of the available manpower and maintaining their moral standards and efficiency for proper functioning of the Panchayat bodies. The present chapter describes all those matters in terms of current situations and what is to be achieved within suitable time frame. Employees of the Panchayats
Roadmap for the Panchayats in West Bengal All the employees of the GP, excepting those who belong to group D cadre, now constitute district level cadres of Panchayat employees. There are four such cadres comprising the Executive Assistants, Secretaries, Nirman Sahayaks and the Assistants of the GP. This has facilitated management including recruitment and deployment of those employees. All the employees are appointed by the Executive Officer of the Zilla Parishad. Similar arrangement has been made for the employees of the PS and they constitute different cadres of Engineers, Accountants, Cashiers, BIOs, DEOs and clerical assistants. At the ZP level several posts have been created recently and steps will be taken to form a state level cadre for the very senior own employees of the ZPs. The modified system of recruitment has been introduced recently. Recruitment to the newly created posts is going on. After some time, a study will be made to assess further requirement of own manpower of all the tiers of the Panchayats. The study will also identify areas where better services can be provided by engaging para-professional on contract and to work out proper arrangement between the service providers and the Panchayats. The remuneration of such professionals will be either directly collected by the professional for rendering services or the same will be partly or fully compensated by the Panchayats against charges to be collected by them for providing services. At present services of some of the government employees are utilized by the Panchayats though salary is paid by respective departments. In some cases services are formally placed with the Panchayat bodies by the Panchayat & RD Department and salary is paid by the Panchayats. The W.B. Panchayat Act has been amended recently to allow other Government Departments to place their employees with the Panchayats. The Roadmap will be to ensure that the Panchayats at every level get the services of own employees, formally deputed employees, government employees whose services have been placed for being used by the Panchayats but salary continues to be given by the departments concerned as well as professional service providers or trained para-professionals to bear the work load of the Panchayat bodies. All such possible measures have been proposed to take care of the diverse needs and keeping in mind the existing practices and difficulties on the ground. However, the goal will be that the Panchayats have adequate functionaries to work for them with reasonable accountability and not to merely augment the roll strength of the own employees of the Panchayats. The reorganized recruitment system as mentioned in the preceding paragraph has resulted in a pronounced role of the district level Panchayat, i.e., Zilla Parishad in selection of most of the Panchayat employees within the district at the initial stage of recruitment as also at the time of promotion. The system improves quality of recruitment, promotion and administrative control over them ensuring better service. It has also opened up promotional opportunities for the employees fostering their keener interest in rendering quality service. Besides, the scope for regular transfer of the employees belonging to superior cadres will ensure cleaner and more transparent and responsive administration. The updated rules regulating discipline and control of the employees also confers all necessary powers to the Panchayat bodies on curbing the role of the government officers as was prevalent earlier. Such control is expected to enhance the allegiance of the employees towards not only the Panchayat bodies but also towards the ideals and goals of the Panchayat system. It is felt that the overhauled process will lead to further development of better and more effective and pro-people delivery mechanism in the Panchayat administration. 73
Roadmap for the Panchayats in West Bengal Capacity Building of Employees & Other Functionaries of Panchayats The term capacity building is being used in a broader sense which covers both training for individual development, building of institutional capacities as well as other enabling measures for fully utilizing the potential of the employees and elected functionaries associated with the Panchayats. The following measures will be taken for building up capacities of the various functionaries associated with functioning of the Panchayats. The steps mentioned below will be completed by the year 2007-08 unless mentioned otherwise. (a) At present arrangement of training of the employees working for the Panchayats is not adequate. There is need for ensuring both induction level and inservice training of all the employees working for the Panchayats. A plan will be drawn up by March, 2007 to ensure that from the year 2007-08 all new recruits are trained on the basic skills required at that level as well as to orient them for working as an employee of the local bodies, within three months from their joining the services. The employees working at the GP level will be trained by the ETCs and the employees of the PS will be trained by the SIPRD. The employees of the ZPs will be trained by both the SIPRD as well as other state and national level institutes. In service training for upgrading their skill will be organized as and when felt necessary and in any case all of them will be given reorientation once in every five years. A system will be introduced for tracking the trainings imparted to the functionaries by the district offices to plan for their training. (b) For the elected Panchayats functionaries basic training will be imparted to all the members elected for the first time within six months of their election using the distance learning mode as well as class room based training. Suitable arrangement will be built up before the next Panchayat election is held in the month of May, 2008. Important office bearers like Sabhapatis, Pradhans will be provided appropriate training within six months and others like Chairpersons of the Standing Committees/Upa-Samitis will be trained within one year of being elected. ETCs will be responsible for providing such training for the GP and most of the PS level functionaries. The SIPRD will be responsible for training the functionaries of the ZP and the Sabhapatis of the PS. (c) Appropriate manuals will be developed for functioning of each tier of Panchayats. A lot of training materials, both in print and electronic media, have been prepared for training of all those persons. All those will be reviewed to identify gap in training materials, particularly in the context of distant learning using the recently installed satellite based facilities. Training on using computer will be a major element. Other technical aspects like maintaining accounts and rural engineering and promotion of livelihood opportunities will get due importance while designing the training programmes. (d) Apart from classroom based training for the Panchayat functionaries more emphasis will be given on peer learning from exposure visits and sharing of best practices on good governance. Documentation of best practices in various fields and increasing access to those materials will be given due emphasis. (e) Training cells will be established in all the ZPs so that there are dedicated persons in each district to look after training need of the elected functionaries and tying up with the ETCs and SIPRD for meeting their training requirement. 74
Roadmap for the Panchayats in West Bengal (f) Suitable training infrastructure will be developed at the district headquarter and in other locations in case of bigger districts where training could be organized on a residential basis with the support of the training institutions. The infrastructure of the WBCADC will be developed further for providing livelihood related training for the Panchayat functionaries of the district. In order to provide training locally a resource pool of trainers in various disciplines will be developed in each district. (g) There will also be need for organizing non-residential training, particularly for the representatives of the GP and the PS. For that purpose suitable training infrastructures will be created, if the same do not exist at present, in each Block office. The infrastructure for distant learning using the satellite channel will be utilized for that purpose. Resource persons will be developed for each Block to facilitate such distant learning. One class room for providing training will be developed in each GP and the same will be completed by the year 2008-09. (h) In spite of all efforts adoption of correct procedures related to financial disciplines, good governance and proper utilization of scheme specific fund and untied fund lags far behind what is desired. Experience shows that hand holding training by experts, particularly to the GP level functionaries, can increase their efficiency substantially. Teams of properly oriented retired persons have been formed for that purpose for assisting the functionaries in selected GPs of the more backward districts. The same will be scaled up for providing support to more number of GPs in all the districts, which are not performing at par with others. (i) Along with expansion of capacities of the functionaries there will be need for wider dissemination of knowledge about functioning of Panchayats for enabling the citizen to participate more effectively. The same will be improved by continuing the interactive radio programme, which is held for one hour every week with the support of the All India Radio as well as setting up Citizen Service Centres (CSCs) described below. (j) The CSCs are proposed to be set up in the villages for every 6,000 population for easy access to information as well as delivering electronic services to the people in the rural areas as per the National E-Governance Plan (NEGP). In West Bengal it has been decided that CSCs will be located, in the first phase, in every GP and PS. The CSCs will be also utilized for dissemination of information related to functioning of the Panchayats to help better participation of the citizen in affairs of the Panchayats. The progress of the work will depend on the progress of establishment of CSCs under the NEGP and timeframe for completing the task will be set up in due course. A few pilot CSCs have been made operational to draw lessons before rolling out the same to the entire state.
Roadmap for the Panchayats in West Bengal Strengthening SIPRD, the ETCs In order to build up capacities of the Panchayats the SIPRD and the ETCs will be required to play a more proactive role. Those institutions will be strengthened to meet the demand of training as mentioned above. What are the need of the SIPRD & the ETCs? The ETCs were not functioning well till recently. Those are being revamped now and all the four sanctioned ETCs as well as the facility at Rajarhat will be developed so as to start organizing courses within the current financial year. All the ETCs, including Rajarhat will be provided with facilities for providing training on computers and computer laboratories will be set up in all those places. Effort will be made, if adequate resources are available, to develop a specialized training institute to deal with training requirement of the SHGs. Use of Information and Communication Technology for Efficient Functioning Appropriate use of Information and Communication Technology (ICT) has become an essential need for efficient functioning of the Panchayat bodies. Steps to be taken for computerization of accounts have been already described earlier. Suitable software packages for other activities of the Panchayats will be developed for being adopted by those bodies. The areas to be given priority will be management practices relating to proper utilization of available resources, revenue mobilization, monitoring progress of works undertaken by particularly the ZP and the PS and adoption of suitable management practices for avoiding cost and time over run, sharing information to the citizen through CSCs by the GP and PS and through own web site by the ZPs, adoption of standard engineering practices, better reporting of performances including web-based reporting. Connectivity up to the PS level will be achieved by the year 2007-08 through optical fibre linked WEBSWAN. All the PSs will be brought under intra-mail by the year 200708 with the help of the WEBSWAN. For the GPs connectivity will be established by using the facilities to be provided by the service providers of the CSCs and those being located in the GP offices the facility of the CSC will be utilized by the GPs to exchange data with the PS and other tiers of government. E-mail facilities will be utilized wherever available. For better exchange of information and easier and timely collection of reports from the GPs all those offices will be provided faxing facilities so that even without email connectivity important circulars could be disseminated very fast and the GPs will be able to send their reports without sending messenger, which is costly and slow. Strengthening the Directorate Office
Roadmap for the Panchayats in West Bengal The directorate is required to be strengthened for more proactive facilitation of the institutional aspects of the Panchayats. Manpower available with the directorate will be restructured for that purpose. One Audit & Accounts cell, one Fund Management cell, one Resource Mobilization cell, one Training cell and one Inspection cell will be established in the directorate to give special emphasis in those areas. The responsibility of the first cell will be to take follow up measures of the audit reports of particularly the GP and the PS. The Fund Management cell will be responsible for transfer of fund to the Panchayats directly through respective bank accounts maintained with the SBI. For those branches having internet facilities fund will be transferred directly to the Panchayats using on-line banking facilities by this cell. However, fund under some of the centrally sponsored schemes will be transferred by the respective programme wing as before. The Training cell will coordinate with the training cells proposed to be established in all districts for training of all the Panchayat functionaries and the employees, particularly of the Gram Panchayats. The Inspection cell will remain responsible for prompt enquiry and follow up actions in respect of serious allegations of violation of rules and financial impropriety. HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE PANCHAYATS Introduction In terms of Article 243G of the Constitution of India, every Panchayat has been recognized as an institution of self-government with power and authority to prepare development plans for economic development and social justice and implement them. In the perspective of such constitutional mandate, Panchayat bodies can no longer be treated as mere agencies of the state government to execute its plans and programmes. They have to be perceived as the government at the third stratum with a clear functional domain of their own. If such an exclusive functional domain for the Panchayats is carved out in conformity with the spirit of the Constitution, then many State or Central laws on different subjects now under operation in the state will have to be amended for several reasons. Firstly, some of such laws come in conflict with the functional domain of Panchayats and restrict their autonomous status. Secondly, in some cases parallel bodies created by some statutes impinges upon the legitimate functions of local bodies. Lastly, panchayat’s direct participation in functions specified in some of the subject laws would contribute towards fulfilling the objectives of such laws. Also many acts were framed before introduction of the Panchayat system in its present form and therefore require amendments to make functioning of the Panchayats harmonious with provisions of the fact.
Roadmap for the Panchayats in West Bengal In the above background, various statutes at present in force in West Bengal have been examined to find out whether the powers to be exercised, the functions to be performed and the duties to be discharged under such statutes have any bearing upon the Constitutional responsibilities vested in the Panchayat institutions and if so, how Panchayat bodies may be conferred appropriate rights, functions or duties so that they may perform the functions entrusted upon them with full justice to the constitutional obligation and to the aspirations of the people. For the aforesaid purpose, 44 Acts have been scrutinized out of which 6 are Central Acts and the other 38 are State Acts. These acts are either regulatory in nature or contain provisions having implications on local development. There is a group of legislations dwelling on regulatory functions which contain description of certain offences, penal actions for such offences and the enforcing machinery guarding against the offences. No role for the Panchayats is envisioned in such legislations. A case in point is the Rice-Milling Industry (Regulation) (West Bengal Amendment) Act, 1974. However, there are a few regulatory Acts which safeguard the interest of the general public and calls for support and co-operation of the people for their success like the Bengal Tanks Improvement Act, 1939. In such cases, it has been proposed that the Panchayat bodies should be vested with certain powers and authority without impairing the authority of the executive machinery so that both the agencies may work in tandem towards the common goal. There are some other regulatory Acts such as the Cattle Trespass Act, 1871, which are best administered by the Panchayats at the grass root level having very close touch with the people and the bureaucratic machinery may be disengaged from their administration. With respect to the Acts on development matters like the West Bengal Livestock Improvement Act, 1954, it is advisable that the Panchayat institution should play some definite role in enforcing the provisions, while the executive machinery should have its role reduced. The technical and other supports requiring specialized knowledge may however continue to be provided by such machinery. Proposals have been given accordingly. Again, an Act like the West Bengal Khadi and Village Industries Board Act, 1959 lays down the procedure for constituting an apparatus for administration of economic schemes. Within the general framework of such schemes, there are certain matters where involvement of Panchayats will be beneficial for fulfilling the objectives of the Act. One such matter, for example, is selection of the beneficiaries on priority basis. Hence, the local bodies should also be a part of the machinery for supervision and monitoring of the programme envisaged in the Act. Acts for which Amendments are proposed Within the framework of the aforesaid principles, proposals for amendment of 33 Acts (4 Central Acts and 29 State Acts) will be considered by the state government. It requires in depth analysis of those acts by the department concerned and wider consultation before making any amendment. It is difficult to state in the Roadmap what amendments will take place and by when. However the proposals mentioned below will be taken up for consideration as soon as possible by the departments concerned.
Roadmap for the Panchayats in West Bengal The Bengal Ferries Act, 1885 (Bengal Act I of 1885) – Under this Act control and superintendence of all public ferries within the district are vested in the District Magistrate. However, in terms of section 35 (inserted by way of amendment at a later stage), it is lawful for the State Government to order that a public ferry shall be managed by a local authority having jurisdiction when such local authority shall exercise all the powers of the District Magistrate. Meanwhile, in pursuance of the policy adopted by the State Government in this behalf, control and management of practically all public ferries within the State have been transferred to the Panchayat bodies of different tiers depending on the importance and the volume of traffic. Now, under the present scenario, section 35 providing the local body may exercise power of the District Magistrate appears inadequate. In the fitness of things, the Panchayat may now be directly empowered to exercise control and supervision over the ferries, which are at present under their management. With this objective in view it is proposed that – (a) sections 7, 8, 9, 11, 14, 15, 16, 18, 19, 21 and 33 may be amended to appropriately empower the Panchayat bodies for regulating the ferry service in their respective areas; (b) sections 26 and 32 may be amended to make provisions for the Judiciary to act a appellate authority and ; (c) section 35 becoming redundant may be omitted. The Cess Act, 1880 (Bengal Act 9 of 1980) – The object of this Act is to tap resources for the purpose of construction and maintenance as also related supportive and ancillary jobs of roads and other means of communications and other public works in the district. The Act lays down the methodology for valuation of land, rates for road cess and public works cess, administrative machinery for their collection, channel for utilisation of fund and penal provisions for breach of the law. It may be mentioned that most of the provisions are procedural, establishment-related and regulatory although one or two provisions deal with the role of the Zilla Parishad. When the Act was initially codified, the local bodies were non-existent either in concept or in statute. Naturally, the entire task of assessment, collection and utilisation of cess fund was left with the government machinery. Later by an amendment Act of 1963, utilisation of cess fund was made the responsibility of the Zilla Parishad. However, even now certain amendments are necessary to update the Act. For this purpose Sections 4, 91 and 109 of the Act need be amended to bring the present Panchayat set up within the fold of this Act. (a) Besides the entire corpus of funds after deduction of collection expenses is at present allocated to the Zilla Parishad. Provision should be made for apportionment of the amount with the Panchayat Samitis within the district. (b) Since commencement of this enactment the entire land tenure system as also the socio political environment have undergone major changes. Various references like intermediary and subsidiary rights on land in the Act are now outdated. It may therefore be more appropriate to introduce a new act instead and repeal the existing one.
Roadmap for the Panchayats in West Bengal Bengal Embankment Act, 1882 (Bengal Act II of 1882) and The Embankment Act, 1873 (6 of 1873) – These enactments were brought in force for the construction, maintenance and management of embankments and watercourses in the State. The Act of 1873 was repealed in part and amended by the Act of 1882. Although the Act of 1882 is in force on being adapted last by the Adaptation of Laws Order, 1950 (Constitution Order No. 4 dated January 26, 1950), apparently it has since become non-functional. There are copious references of intermediary and subsidiary right on land, which have since been abolished. Besides, the role of the collector is pivotal in this Act although the offices of the Irrigation and waterways Department are in these days discharging all responsibilities relating to construction, maintenance and management of the embankments and the watercourses. Apart from the role of general supervision, the District Magistrate and Collector steps in only when relief work or law and order issues come to the surface. It is suggested that (a) Unless the issue relating to this Act are already covered by another or more than one enactment commencing on later dates, it is advisable to frame a new Act. Various issues which are no longer relevant may then be dispensed with and certain new provisions in conformity with the concept and policy of these days may be incorporated in the new Act. Since the geo-physical condition of the State, lateral flow of surface and sub-surface water, ground water level and such other things have undergone various changes, the schedules annexed to the Act may also be modified. (b) It may also be considered whether the role of the collector shall be substituted by the similar role of the Zilla Parishad. This body arguably will be more suitable to administer this act provided it gets the available technical support/machinery and the required fund. Canal Act, 1864 (Bengal Act 5 of 1864) – This Act was framed to amend and consolidate the law relating to the collection of tolls on canals and other lines of navigation and for the construction and improvement of lines of navigation within the State. The Act was repealed in part in 1873 and 1903 and was amended in 1981. The Act empowers the State Government to extend the provisions of this Act to any navigable channel by notification and may fix the rates at which tolls may be levied for any vessel entering or passing along the said channel. The State Government is also empowered to appoint any person (the word includes any company, association or body of persons, whether incorporated or not) for administration of any provision of this Act. The State Government shall also have power to authorise a person to widen or deepen any channel or close or take any action to improve it or remove any obstruction or encroachment to the channel. It is neither practicable nor desirable for the State Government to control and manage or collect tolls in respect of all channels within the State. The Act itself provides for delegation of all such responsibilities by the State Government. For this reason, (a) It is advisable to vest the powers and responsibilities under the Act to the Zilla Parishad. For this purpose Sections 3, 8 and 13 may be amended so that the state government and the Zilla Parishad may share the responsibilities for administration of this act.
Roadmap for the Panchayats in West Bengal The Bengal General Clauses Act, 1899 (Bengal Act 1 of 1899) – In section 3, in clause(23) defining the word ‘Local authority’, the word ‘District Board’ may be substituted by the words ‘Panchayat as defined in clause (15b) of section 2 of the West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973). The Bengal Money-Lenders Act, 1940 (Bengal Act X of 1940) – Despite perceptible growth of banks and other financial institutions in rural areas, it is a sad reality that the ordinary village folks depend willy-nilly on private money-lenders. It is not difficult to visualise that there are some unscrupulous money-lenders and the illiterate semiliterate and gullible persons are taken by them for a ride. Considering this scenario, representatives elected in Panchayat bodies may be assigned some role for assisting the people in relation to this Act. In this connection, it is proposed that sections 6 (A) and 14 may be suitably amended to empower the appropriate Panchayat functionary to inspect and control the functions of the money lenders and also to debar the Panchayat functionaries themselves to act as moneylenders. The West Bengal Public Land (Eviction of Unauthorised Occupants) Act, 1962 (West Ben. Act XIII of 1962) – The Act centres around empowerment of the collector to order eviction of an unauthorised occupant from any public land, which includes land under a local body (section 4), after serving a notice (section 3) if necessary on using force (section 5). Panchayat Samiti, Zilla Parishad and the Municipal bodies may be given some authority under this Act at least in respect of lands under their control. West Bengal Land Reforms Act, 1955 – This is an Act to codify afresh, under the present context, the laws relating to land tenure system, right and obligations of the land holders, maintenance of records of land holdings, land revenue system and certain laws relating to land reforms. Since the Act lays major emphasis on various procedural matters relating to rayati right, change of character of land, land revenue, designs for maintenance of record of rights, the provisions are rigidly systematised, methodology-oriented and somewhat technical in nature. There are, however, certain provisions in the Act which have some social impact with a human angle where closer participation of the Panchayat bodies may be considered desirable. On this view It is proposed that sections 4(2A), 14C(1), 21D, [entailing amendment of rule 141(1) (a) (ii) of the West Bengal Land reforms Rule 1965], Chapter V (Sections 39 to 48A), and 49(1) and (2) [entailing amendments of Land Reforms Rules 1965] are amended so as to assign definite roles to the Gram Panchayats and the Panchayat Samitis in the matters of distribution of khas and vested lands, changes of characters of land, according permission for transfer of land belonging to the scheduled tribes persons, consolidation of land holdings and cooperative farming. (a) Besides, Block level Land Reforms advisory committees may be dissolved and all its functions may be assigned to the Bon O Bhumi Sanskar Sthyaee Samiti (Standing committee on Forest and Land Reforms) of the Panchayat Samitis on enlarging its composition if necessary. Annulment of the settlement of Khas /vested land should also be the responsibility of this body by changing the present system where the appointed bureaucracy has been made entirely responsible.
Roadmap for the Panchayats in West Bengal West Bengal Primary Education Act, 1973 – Primary education in general is administered by the West Bengal Board of Primary Education and the District Primary Education Council constituted under the provisions of the West Bengal Primary Education Act, 1973. The responsibility of guiding, supervising and controlling the primary education in the State including determining the curriculum, approving or preparing text books, mode of teaching, training of teachers, conducting examination etc. rests with the State Council. Day-to-day management of primary schools is the responsibility of the District Council and this includes appointment and transfer of teachers, opening of new schools or expansion of existing schools, awareness building for enrollment, development of infrastructure etc. Primary education is traditionally a local government subject. This is one of the important functions under Eleventh Schedule of the Constitution reserved for the Panchayats. In many states, this function has been given to the panchayats. Even in West Bengal, Panchayats have been given major responsibility from for implementation of Shishu Shikshs Karmasuchi. But when it came to the subject of managing the mainstream primary schools, District Councils of Primary Education were created under the West Bengal Primary Education Act. By creating this parallel body, this Act has made an unnecessary intrusion into the functional domain of the Panchayats. It is accordingly necessary to make major amendments of the Primary Education Act of West Bengal. The objective of such amendment should be to abolish District Primary Education Councils and transfer all their powers and functions to the Panchayat system. While the major responsibility of the existing functions of the District Primary Education Council concerning non academic matters will have to be borne by the Zilla Parishad, some of the functions may be decentralised among the Panchayat Samiti and Gram Panchayat. For efficient management of primary schools such decentralisation will be necessary. In fact, the Panchayat bodies have already been assigned certain responsibilities (as distinguished from authority) in these matters. In view of the above, Chapters III to VIII of the Primary Education Act containing sections 19 to 74 need to be amended. Consequent upon the abolition of the District Council, needs may arise for amendments in some other sections also. The West Bengal Animal Slaughter Control Act, 1950 (West Bengal Act XXII of 1950) – This enactment aims at controlling and regulating animal slaughter in the State of West Bengal. Section 4 read with sub clause (b) of clause (iii) of section 3 shows that the Sabhapati (which expression includes any person nominated by him) of the Panchayat Samiti is a signatory of the certificate declaring an animal fit for slaughter (the other signatory is Veterinary Surgeon). Again under the authority of section 6, the Sabhapati is empowered to inspect any premises to prevent violation of any provision of this Act. In the circumstances no further empowerment of the Panchayat bodies or any of their functionaries may be necessary. There is, however, one issue that merits consideration. Although the Act has not clearly stipulated, the authority for nomination under clause (iii) (b) of section 3 should not advisedly be exercised by the Sabhapati individually since a Panchayat should be run on the basis of collective wisdom. There is one Matsya O Pranisampad Vikash Sthayee Samiti under Panchayat Samiti. (Standing Committee on fishery and animal resource development). This Sthayee Samiti may be empowered to nominate such person, if any, from among the elected members including the Karmadhyaksha of the Panchayat Samiti or any of its officers. Such explicit provision may be made either in the Act itself or in the rules framed under Section 14 of the Act. 82
Roadmap for the Panchayats in West Bengal The Bengal Diseases of Animals Act, 1944 (Bengal Act of 1944) – This piece of legislation had been framed to prevent the spread of diseases among animals. Under the Act, specified diseases and some other diseases as may be notified by the State Government from time to time have been declared as contagious diseases. There are provisions for identification and segregation of the diseased animal(s), declaration of infected areas, imposition of certain restrictions to prevent spread of disease and some penal provisions. It need not be mentioned that since the time of original enactment in 1944, the situation has undergone vast changes. The administrative machinery has been transformed to a considerable extent. The Panchayats and Municipalities have been recognised by the constitution as the institutions of self-government. Communication facilities have vastly improved rendering total segregation very difficult. Also, People are more educated and conscious and medical Science has also advanced tremendously. Notwithstanding all such changes, the Act has not totally lost its relevance especially in the context of any outbreak of epidemic. But it requires adjusting itself with the new realities. In the circumstances, either a new Act may be drawn up or this Act may be amended to make it more effective. Accordingly, It is felt that in consonance with the aforesaid observations especially sections 2(6), 3, 5, 6, 10 and 16 require major changes. A new provision may also be inserted accentuating the role of the Panchayat Samiti on outbreak of an epidemic. The West Bengal Livestock Improvement Act, 1954 (West Ben. Act XXXIV of 1954) – This Act has been framed for the purpose of improvement of livestock in the state. Provisions have been made in the Act to declare an area as specified area, to identify and mark certain bulls as approved bulls and to disallow continued stay or import of any other bull in that area. There are also provisions for enforcement of statutory directions and for punishment for violation of lawful direction. Since this enactment deals with functions based on specialised knowledge and prevention of certain actions, there is very little scope for involvement of the Panchayat or any other representative bodies. There is however one provision which may be taken up for consideration. Sub-section(1) of section 5 empowers the State Government to declare, under certain circumstances an area as specified area. It is proposed that in this provision a definite role of the Zilla Parishad may be introduced. The Bengal Tanks Improvement Act, 1939 (Bengal Act XV of 1939) – This statute had been formed for the purpose of improvement of tank for its meaningful utilisation for irrigation. It empowers the State Government to requisition derelict tank and to improve it either with the help of its district machinery or through any other local body or person. Although there are at present other statutes and projects under which a derelict tank/ water body may be reclaimed and fruitfully utilised, this Act has not yet outlived its efficacy. It is however true that the socio-economic scenario at the time of its enactment in 1939 is widely divergent from that obtaining today and some conceptual and functional changes need be incorporated in the existing provisions. In order to make the statute more people-oriented and dynamic, the Panchayat institutions may be empowered and made proactive, role of bureaucracy may be eliminated, pisciculture may be accepted as one of the objectives of the programme and agriculture may be taken to encompass orchard cultivation as well. With these views
Roadmap for the Panchayats in West Bengal (a) Sections 2(a1), (1), (2), (7) and section 6 may be suitably amended. Besides sections 27 may be redrafted to make the Zilla Parishad and the State Government to act as the appellate authorities as may be appropriate. Section 34 may also be amended to enable the Zilla Parishad to delegate its authority to other Panchayat bodies and/or the officers. West Bengal Inland Fisheries Act, 1984 (West Bengal Act XXV of 1984) – Successful implementation of any programme for development of inland fisheries calls for various technical inputs by the persons having specialized knowledge on one hand and unstinted support and participation of the people on the other. Such popular support and participation can be ensured through the representatives in the Panchayat bodies constituted in the locality. It is therefore proposed that the Panchayat Samiti functionaries be involved in the task of implementation of the provisions of this Act. On these view (a) it is proposed that Sections 8,9,14, 17A, 17B and 17C may be suitably amended to bring in the role of Panchayat Samiti and the Gram Panchayat in the functions envisaged in development of Inland Fisheries. Indian Forest Act, 1927 (16 of 1927) – This is an Act to consolidate the laws relating to forest, protection of its flora and fauna and for maintenance of ecological balance. The Act empowers the State Government to notify the forest as reserved forestry, village forest or protected forest as may be deemed appropriate. It enunciates powers and authority of the State Government vis-à-vis private persons in relation to forest, codes for control of timbers and other forest produces and regarding imposition of various fines and penalties for breach of any law. While importance of such a piece of legislation for the benefit of the community at large cannot be trivialised, it is necessary to ensure that the human aspect is not lost sight of while framing its provisions. There is no denial that the people living in the fringe of the forest (majority of them also live in the fringe of the society) are for generations depending on forest not only for their livelihood but for their cultural, religious and social life. Their close affinity with the forest is such that while they enjoy usufruct, they are psychologically and customarily attuned to desist themselves from damaging any flora or fauna or bring any ecological imbalance in the forest. Based on this, it may be concluded that the marginalised people in the neighbourhood of a forest as well as the Panchayats representing them have considerable stake in the management and control of the forest and its problems. So it is suggested that apart from certain amendments in the Act effecting involvement of the Panchayats in the people oriented issues, local inhabitants may be allowed some space for enjoyment of a few minor benefits from the forest without causing any damage to the forest. With such consideration, (a) Sections 10(5), 16, 25, 28, 29, 30, 31, 35 and 36 may be amended in order to allow the people in and around the forest to have access to certain forest produces without any damage to the forest. The proposed amendment shall also allow the Panchayat Samiti and the Gram Panchayats to effectively play their expected roles, enable the forest people to strengthen their livelihood opportunities and shall contain their sense of deprivation and animosity for loosing their age old traditional rights. On ultimate analysis such measures will improve the forest wealth.
Roadmap for the Panchayats in West Bengal Forest (Conservation) Act, 1980 – This Act is in reality supplemental to the Indian Forests Act, 1927. It has total five sections among which there are only three operative sections. There is only one issue which may be mentioned its relation to this Act. Section 3 provides for constitution of an Advisory Committee to advise on grant of approval under section 2 and on other matters on conservation of forest. Now, forest area and the rural areas under the Panchayat system are interrelated and inter-dependent. So, it is proposed that this Committee should have members with insights of forest-Panchayat interface and expectations and problems of the people. The West Bengal Private Forests Act, 1948 (West Ben. Act 14 of 1948) – This Act provides for conservation of forests and for afforestation of wastelands in the State when such forests and wastelands are not under the ownership of the Government. Apparently, private forests and vast tracts of wastelands can be visualised normally under the intermediary rights on land. After abolition of intermediary rights, such forests and lands are likely to have been vested and so application of this Act is very limited. Albeit this limited role section 7 may be amended to enable the Gram panchayat and Panchayat Samitis to control and maintain small forests with their rights and obligations clearly defined. Sections 8, 9 and 10 may be amended to delineate the role of Panchayats. Section 11 may also be amended so that the rights and obligations of different parties in the matter of social forestry, strip plantation and similar other ventures undertaken by the Panchayats in recent times may be clearly spelt out.
Roadmap for the Panchayats in West Bengal The West Bengal Wild Life Preservation Act, 1959 (West Ben. Act, XXV of 1959) – Any venture for preservation of wild life cannot reach its desired goal without active participation of people residing in the neighborhood. Officials of the Forest Department are aware of this necessity and have taken up multifaceted programme to secure the cooperation of people particularly of those whose livelihood as also their social and cultural norms are interwoven with the flora and fauna in the forest. Accordingly, the Panchayats in the vicinity may play a significant role in the preservation of wild life by, among other things, enlisting the cooperation of local people. With this object in view, it is proposed that sections 8(2), 11, 12 and 15 may be sutably amended to define the role of Panchayat Samiti [which includes the role of Bon o Bhumi Sanskar Sthayee Samiti (Standing committee on Forest and Land reforms)] to ensure participation of the Panchayat Samiti in the matters involving the local people for safeguarding their interests. The Bengal Public Parks Act, 1904 (Bengal Act II of 1904) – The Act contains provisions, for declaration by the State Government of a new public park in addition to those enumerated in the schedule appended to the Act and for superintendence and management of such park. The enactment envisages, although not specifically stated, establishment of such park within urban areas. Under the rules framed in terms of West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973), the Gram Panchayat is empowered to establish parks within its area. Since, necessity of park in some rural area cannot be ignored. Considering the said position, it is proposed that a new provision may be inserted after section 3 (or any other suitable place) providing that in the rural area, any such park declared as such shall be transferred under the control and management of the Gram Panchayat, area of which comprises the Park and the said Gram Panchayat may take measures for maintenance of the parks. The West Bengal Preservation of Historical Monuments and Objects and Excavation of Archaeological Sites Act, 1957 (West Ben. Act XXXI of 1957) – This enactment provides for preservation, restoration and maintenance of historical and antiquated monuments and objects as also empowerment of the State Government, for excavation of archaeological sites in West Bengal. There are instances where a state-protected monument or object may not require continuous supervision or support from experts or other persons with specialized knowledge in diverse fields or need considerable fund for maintenance and up keep. On the other hand, such object or monument may signify past glory and pomp of the locality and may be a source of local pride. On such occasions, the owner as also the local Panchayat may be interested in undertaking the responsibility for preservation and maintenance of the said monuments and objects. On this view it is advisable to allow some space for the Panchayat bodies to play their legitimate role in the effort for preservation of ancient monuments and relics. With this object Sections 2, 4, 5, 7, 12, 13 and 15 may be amended in appropriate manner for defining their role.
Roadmap for the Panchayats in West Bengal The West Bengal Children Act, 1959 (West Ben. Act XXX of 1959) – This act enables the state government to establish and run the reformatory or Borstal schools. Since its efficacy lies in proper running of these establishments, flawless management by well structured machinery is the essence of the system. There is however a human and social aspect for which involvement of local body representatives will be advisable. Sections 8, 9 and 11 may therefore be suitably amended to bring in the role of the Panchayat Samiti or its representative in appropriate manner when such establishments are located in the rural areas. The West Bengal Khadi and Village Industries Board Act, 1959 (West. Ben. Act XIV of 1959) – This Act provides for organisation, development and regulation of khadi industries and village industries and also other matters supplemental and incidental thereto. For this purpose, the Act has made provision for constitution of a Khadi and Village Industries Board. Now, the aims and objectives of this Board are noticeably in concurrence with those of the three tiers Panchayats constituted under the mandates of the Constitution of India and in pursuance of the State Panchayat Act. In fact, the objectives of the Panchayat subsumes the objectives of the Khadi and Village Industries Board and a close liaison between their activities shall not only help both the organizations in implementation of their respective schemes and programmes but shall satisfactorily serve their central purpose of socio-economic upliftment of the people. Considering the significant role of the Board in organizing Khadi and Village industries mainly in the rural area and of the Panchayat bodies conversant with and responsive to the needs and expectations of the community, a functional integration between them is necessary. In order to achive this objective it is proposed that Sections 4 and 12 may be suitably amended so that the Panchayats may have some definite say in the matters encompassing the interest of the local people. There is however one specific matter that merits consideration. District Industries Centre (DIC) referred to in section 14 A (admittedly, this centre is not created under this Act) and other officers implementing the programmes of the WBKVI Board (eg. Handloom Development Officer) may be more closely linked with the Zilla Parishad. Without prejudice to the distinct identity of the DIC or other officers, the Zilla Parishad particularly Khudra Shilpa, Bidyut O Achiracharit Shakti Sthyee Samiti (Small Industries, Power and Non-Conventional Energy Committee) may have greater symbiotic relationship with the DIC and other officers. The General Manager, DIC (and other officers if deemed necessary) may have an Zilla Parishad related additional designation unless such designation has already been assigned. While granting assistance to the artisans, groups and institutions under different programmes, local Panchayat bodies / members may be consulted for identification and prioritisation of beneficiaries and in the matter of implementation of various stages of the programme.
Roadmap for the Panchayats in West Bengal The Essential Commodities Act, 1955 (Act 10 of 1955) – This Act has been brought into force in order to ensure steady and adequate supply of the commodities essential for sustenance of life by controlling their production, supply and distribution. Obviously, the Act is of regulatory nature and aims at keeping the production and marketing channel of certain specified commodities in proper condition on one hand and also keeping unscrupulous businessmen on leash so as to prevent them from manipulating marketing channels. It is felt that enforcement of such law will be easier if the Panchayats are involved in the administration of certain provisions of the Act. Besides, under the 11th schedule, public distribution system is one of the functions that have been entrusted to these bodies. In consideration of this, Sections 3 (3b) and section 5 may be amended in appropriate manner. The Act mainly dwells on different ingredients of the offences dealt with, penal provisions and composition and jurisdiction of different penal authorities. Obviously, it has been framed from regulatory point of view. The approach obfuscates the role of people who are not only beneficiaries but have a major role in production or processing of the commodities in question. The objective will be served more satisfactorily if the Act provides space for participation of people in safeguarding their own interest. If this idea is accepted on principle, then the Act should have enabling provisions to utilise the services of the panchayats and the urban local bodies effectively. The Dowry Prohibition Act, 1961 (28 of 1961) – Object of this piece of legislation is to prohibit the evil practice of giving and taking of dowry in connection with marriage. The measures in the Act are regulatory in nature with penal provisions. However, the issue dealt with is actually a social malady stemming from the syndrome of male chauvinism prevalent in the society coupled with lack of economic independence of women in the society. Eradication of this affliction can be achieved only by creating social awareness in the society and through economic and social empowerment of women. However, some modification in the framework of the existing law may be helpful in achieving the goal. In this connection, it is proposed that subsections (1) and (2) of Section 8B may be amended to involve the Panchayat bodies in the administration of this act. Besides, a district-level advisory committee may be constituted with the Sabhadhipati as chairmen with the District Magistrate, Superintendent of Police and a number of social workers with high proportion of women as members. It will monitor the progress in this regard and may also guide other advisory committees in their efforts.
Roadmap for the Panchayats in West Bengal The Bengal Water Hyacinth Act, 1936 (Bengal Act XIII of 1936) – This Act provides for the steps to contain propagation and ultimately to destroy the water hyacinth growing on any river, watercourse, tank, pound or any other land or water-body. Under the Act, most authority is vested in Collector or any person authorised by him. Certain decisions are left with the State Government. In terms of section 27 of the West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973), the Gram Panchayat is vested with the power to direct any person to prevent growth of water hyacinth and destroy all water hyacinth already grown from any land or waterbody. Although the Act of 1936 is more elaborate with some minor details, the provision in the State Panchayat Act is adequate to meet the situation. Although water hyacinth no longer poses serious menace like earlier days, partially because of considerable shrinkage of water area, the problem still persists. It is therefore advisable that both the provisions should run parallelly. However, in the Act of 1936, the entire role of enforcement should preferably be vested with the Panchayats and since the Gram Panchayat is adequately armed through the Panchayat laws, Panchayat Samitis may be vested with all powers under the Act and for this purpose – (a) both the definitions of ‘Authorised Officer’ and ‘Collector’ may be substituted by the term ‘Panchayat Samiti’ and the term may include any office bearer, member or officer of the Panchayat Samiti as may be authorised by it; (b) the terms ‘Authorised Officer’ and ‘Collector’ wherever they may occur in the Act may be substituted by the expression ‘Panchayat Samiti’ and following this modification, whatever amendment in the recital may be considered necessary, may be effected. The Bengal Local Self Government Associations (Recognition) Act, 1936 (Ben. Act XVI of 1936) – Aims and objects of this Act are to extend recognition by the State Government to an association formed by the local bodies. It was also envisaged that the association would run primarily with contributions from the local bodies. At present, such an association may be utilised as a platform for exchange of views and experiences among different local bodies, rural and urban, and for building up common strategies and approaches on issues of mutual interest. To achieve this purpose, it should be necessary to make this association a representative body (in the present Act, there is no mention about composition of the body). The following suggestions are made for amendment of the Act: (a) In section 2, it may be provided that the association should be a representative body consisting of maximum (say 80%) members nominated by various member bodies. (b) A new section may be inserted laying down the composition of the general body. The executive committee may be formed by the members of the general body by electing persons from among them. The members of the executive committee may have a term of two years and may be elected on rotational basis. (c) The association shall have a right to be heard by the State Government and may be sponsored to represent at the national level. (d) Apart from contribution from the municipalities and the Panchayats, the association shall be eligible for grant from the Government. If the aforesaid proposals are accepted, suitable new provisions may be made and the existing provisions may be amended to conform to the policy adopted.
Roadmap for the Panchayats in West Bengal The West Bengal Vaccination Act, 1973 (West Ben. Act XXXVII of 1973) – This is an Act to make vaccination compulsory for the purpose of eradication of small-pox. The provision of the Act, inter alia, enjoins upon every resident and every traveller coming to this State to get himself and the children under his or her care vaccinated unless they are already protected. This statute also enunciates the authority, duty and responsibility of the medical and para-medical personnel associated with the programme and also contains some penal provisions for breach of law. However, one lacuna in the present Act needs to be eliminated. There is little scope in the statute for participation of the Panchayat bodies or members in the campaign although mass awareness and participation cannot be realised without support of grassroot level representative bodies. With this end in view, it is proposed that sub-section (2) of section 10, may be suitably amended to bring participation of the Panchayat bodies in the matter without eroding the authority and responsibility of the government machinery. The West Bengal Acquisition of Homestead Land for Agricultural Labourers, Artisans and Fishermen Act 1975 (West Ben. Act XL VII of 1975) – This is an Act to provide for the acquisition of land in rural areas on which homestead has been constructed by any person who is an agricultural labourer, an artisan or a fisherman and conferment of title of such land in favour of such person. This Act has been framed practically to empower the executive machinery to perform certain quasi-judicial functions. Since, however, the disadvantaged section of the community is the target group of this Act, it is imperatively necessary to disseminate the scope of this legislation, motivate and support the target group people to come up with their legislative claims and to assist the families after acquisition of land for construction or repair of pucca houses, where necessary, under rural housing programmes. Panchayats have appropriate roles to play in these directions. It is proposed that suitable provisions may be inserted in this Act reflecting the aforesaid objectives. The Cattle Trespass Act, 1871 (Act 1 of 1871) – The Act aims at preventing stray cattle from damaging crops. The punitive measures relating to any damage caused by the cattle left by the owner to move freely, not only checks quarrels and feuds in the countyside, but assures safety of the standing crop thereby contributing to food production. Obviously this is a matter very much within the functional ambit of a local body instead of the Collector or any other government officer. It is, of course, admitted that the role of the State Government in certain matters cannot be dispensed with. Now, although section 31 empowers the State Government to transfer to any local authority all or any of the functions under this Act, this does not appear adequate to create an atmosphere conducive to achieving the objects of the Act. On analysis of the ground realities, it may appear most effective to empower the Gram Panchayat in the statute to take all actions under the Act. With this object in view it is proposed that sections 3, 4, 5, 6, 12, 14, 17, 19 and 27 may be amended to bring in the role of Gram panchayat and Panchayat Samiti by abrogating those of the District Magistrate and other government officers. On introduction of such amendments section 31 will become redundant and may be omitted.
Roadmap for the Panchayats in West Bengal The West Bengal Comprehensive Area Development Act, 1974 (West Ben. Act XXXIX of 1974) – This piece of legislation prepared a structure for development of the state through area-based development programme for increased agricultural and allied activities and maximization of benefits of the cultivators. After commencement of 73rd Constitutional amendment, the Panchayat bodies have emerged as the major vehicle for area-based as also family-based development programme in the country side. The Panchayats are also playing a big role in the efforts for capacity building and creating livelihood opportunities for the rural people especially the marginal farmers, farm labourers and poor rural artisans. In the context of this changed scenario, the interventions envisaged in this Act, may be profitably utilized by the Panchayat bodies in their efforts for alround development. Besides, the machinery created under this Act is still in existence. Although its independent existence is no longer relevant, it may provide much-needed personal support to the Panchayats. In view of the above, it is proposed that this Act may be appropriately amended in order to provide statutory support to the programmes undertaken by the Panchayats in various fields of development activities and to transfer the existing set-up under this Act to the appropriate Panchayats bodies. The West Bengal Tanks (Acquisition of Irrigation Rights) Act, 1974 (West Ben. Act XXIII of 1974) – This is an Act to provide, in the public interest, for acquisition of the right of using water of derelict tanks for the purpose of irrigation and incidental matters. All powers and authorities under the Act are vested in the collector. Section 4 of the Act empowers the collector to acquire the right of using water of a tank for the purpose of irrigation when such tank is derelict and the public has no right to use its water for irrigation, although the tank if excavated is capable of irrigating adjoining lands. In terms of section 5, the collector after such acquisition, may excavate and improve the tank in any manner for irrigation or authorise any person or persons to perform these jobs. Again, under section 6 of the Act, collector is empowered to take any action in terms of section 5 in respect of a tank where the public has the right of irrigation and the owner or owners are not providing the facility. Instead of employing the bureaucratic machinery, it is more advisable to vest the entire right and responsibility to a representative body or to one of its authorised members. In the circumstances, it is proposed as follows: (a) After acquisition under section 4, the collector may authorise the Panchayat Samiti concerned under section 5 to perform all or any function under the Act with liberty to assign any job to the Gram Panchayat having jurisdiction, or (b) Amend section 4 in such manner that the collector shall acquire the right of irrigation on requisition by the Panchayat Samiti and hand over the right to the requiring body. There are other enactments as well for acquiring and utilising the irrigation facility in public interest. Apparently, it will serve people better if the laws are consolidated and framed into one piece of legislation.
Roadmap for the Panchayats in West Bengal West Bengal Agricultural Produce Marketing (Regulation) Act, 1972 (West Ben Act XXXV of 1972) – In order to safeguard the interests of the producers and prevent nefarious trade practices, this Act sets forth the codes for regulating the process of marketing agricultural produces in West Bengal. It endeavours to regulate transactions entered into by the traders. It also provides for constitution of a Market Committee and the State Market Board, their powers and authority and functional domains. The 11th schedule of the Constitution enumerates, inter alia, agriculture including agricultural extension and markets and fairs as subjects on which the panchayats as institutions of self-government should formulate and implement plans for economic development and social justice. By logical interpretation of the mandate of the Constitution, marketing of agricultural produces also comes within the functional domain of the panchayats. Although such powers vested in the Panchayats are not exclusive, constitution of another authority for the same task gives rise to unnecessary dissipation of energy and resources with occasional incidence of conflicting measures adopted by different agencies in the field. Such situations may be avoided if closer ties are built between the Panchayat and such Authority. After commencement of the 73rd Constitutional amendment and introduction of matching provisions in the State Panchayat Act, certain provisions in the Act need be revisited. In view of the above, sections 2(f), 3(1) and (2), 4 and 5 may be appropriately amended in order to bring closer ties between the Panchayats and the Local Market Committee. Besides, it may be mentioned that under section 117 of the West Bengal Panchayat Act, 1973, an owner or a lessee of a hat or market or an owner or a lessee of land where a hat or a market is intended to be set up, is required to take a license from the Panchayat Samiti of the area. This provision should have clear recognition in this act under discussion.
Roadmap for the Panchayats in West Bengal The West Bengal Town and Country (Planning and Development) Act, 1979 (West Bengal Act XIII of 1979) – Object of this Act is to constitute a body adequately equipped with expert knowledge for identification of a planning area, preparation of a spatial plan for the area and execution of related development schemes. At the time of commencement of this Act, there was no other planning body in existence. The scenario has meanwhile undergone vast change. In terms of Article 243G of the constitution, a Panchayat institution (Gram Panchayat, Panchayat Samiti and Zilla Parishad) is endowed with the authority to prepare plan for its area and execute schemes in pursuance thereof. In terms of Art 243W, a Municipality, which includes a Municipal Corporation also, is endowed with similar authority. Again under Article 243ZD, there will be a District Planning Committee (DPC) empowered to consolidate the plans prepared by the Panchayats and the Municipalities and for preparation of a draft development plan for the district as a whole. Similarly, Article 243ZE mandates constitution of a Metropolitan Planning Committee (MPC) for each metropolitan area with the responsibility for preparing a draft development plan for the metropolitan area as a whole. Both these bodies are also endowed with the responsibility of preparing spatial plans for the district and metropolitan areas respectively after taking into consideration the needs and interests of rural and urban areas. This Act of 1979 has created confusion in the matter. The entire area of the State is now encompassed by either an urban or a rural local government institution (3-tier Panchayats have overlapping jurisdictions) and a DPC or MPC. They are empowered under the constitution to prepare and execute development plan. A planning and development body as envisaged in the 1979 Act, can hardly find area left for their preparation and execution of development plans and they cannot subsume or control the institutions created by the constitution. It is felt necessary to address this anomalous situation to resolve the impasse. Otherwise, different development agencies will be working at cross-purposes and may soon be vying with each other for their authority in the planning process. Besides, it is clear that the panchayats, municipalities, DPC and MPC are constitutional authorities for preparing local level plans, including spatial plans. Another planning body cannot take away this authority. Even if a separate body is created, it has to function within the framework envisaged in Part IX and IXA of the constitution. It cannot exercise any power or authority independent of this constitutional framework. Apparently, this Act in the present form is unconstitutional and, hence, needs thorough amendments. In the circumstances, specific proposal on this Act is not suggested. Amendment of Panchayat Act / Rules Initiatives for Further Amendment of Panchayat Act – In recent times, quite a few amendments have been made in the State Panchayat Act in order to make the Panchayat bodies more representative, people-oriented and transparent, to improve their accountability and functional ethos. Further amendments are also under contemplation which are mentioned below: (1) Reframe the powers and functions of the Gram Panchayat, Panchayat Samiti and Zilla Parishad so as to clearly define their respective roles in different fields of activities with convergence among different tiers.
Roadmap for the Panchayats in West Bengal (2) Build an internal audit system in different tiers for the purpose of monitoring utilization of fund and maintenance of accounts by the institution itself in a regular manner and also to ensure timely reply to statutory audit paragraphs. Change of composition as also functional procedures of the District Council for Panchayats may also be considered for this purpose. Constitute a Block Council for Panchayats in the pattern of District Council. It is not possible for the District Council to reach out to all the Gram Panchayats within district. Naturally, the District Council has so far created very little impact on the activities of the Gram Panchayats. Hence we introduce the idea of Block Council. The Council shall be chaired by the leader of the major opposition party at the Panchayat Samiti level and shall have members drawn from the ruling party as also from other opposition parties. Block Council shall look into the matters relating to the Gram Panchayats. If Block Council is constituted, functions of the District Council shall usually be confined at the Panchayat Samiti level although it will be at liberty to look into the affairs of any Gram Panchayat as well. Incorporate functions relating to public health including environmental sanitation, preventive and prophylactic measures, prevention of food adulteration and contamination and control of epidemics. Build up an institution in the nature of Ombudsman to supervise and monitor different activities of the three tier Panchayats and make recommendations for remedial/punitive measures. A provision may be incorporated to the effect that the State Government or nay prescribed authority notwithstanding any empowering provision in the Act, shall not supersede any elected body or remove any elected member or office bearer from the office without consulting the Ombudsman in the matter. This institution may also be empowered to look into the grievances of the people relating to service delivery of the Panchayats and advise remedial actions. The Panchayats have been allowed very little space for generating its own resources. The Gram Panchayat may raise some amount of revenue through imposition of tax on land and buildings. Even this meager source is not available to the Panchayat Samiti and the Zilla Parishad. All three of them are mostly dependent on the non-tax revenue for which the existing net is not very wide. Efforts will be made to explore new avenues for all the three tiers for augmenting their resources. In such efforts, however, it will be necessary to ensure that the interest and the sensitivity of the common people are not jeopardized. As an alternative route, the State Government may consider sharing a good portion of land revenue receipts with the Panchayats. For another consideration, agricultural income tax for the affluent section of the agriculturists may be reintroduced and the Zilla Parishad may be empowered to assess and collect such tax. There may be other avenues as well. However, all these initiatives demand intensive discussions at multiple level and will require considerable time for specific action. It is felt that the State Government should have some supervisory role over the Panchayats as facilitator. The latter may also require guidance and support on different issues. The State Government should derive all such authorities through legislative process. However, authority of the Government should not gravitate towards precipitating a crippling effect on their endeavours for economic development and securing social justice for the people. Distinction between these
Roadmap for the Panchayats in West Bengal two aspects is not easily discernable and tends to overlap. It is however necessary to ensure that the self-government status of the Panchayats are not eroded. A careful scrutiny of the existing provisions in the Act and Rules shall be made for specific actions in this direction. Incorporate provisions as may be necessary in the wake of amendment of various subject laws.
Roadmap for the Panchayats in West Bengal Framing/amendment of Rules – Gram Panchayat Administration Rules [The West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004] has very recently been amended extensively. The Accounts Rules for the Gram Panchayats [The West Bengal Panchayat (Gram Panchayat Accounts, Audit and Budget) Rules, 2007] in substitution of the existing rules framed in 1990, have since been drawn up and is expected to be published shortly. There are proposals to freshly prepare the Panchayat Samiti Administration Rules and the Zilla Parishad Administration Rules, Rules relating to publication of bye-laws and some other issues. All these works will be completed by the year 2007-08. ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS Introduction The chapters above describe the various aspects for improving the Panchayat system and is evident that the road ahead is not a journey on a linear path. All the issues related to improved rural local governance are to be addressed by each of the Panchayat body as well as the State Government to play their respective roles as per a common understanding keeping the local context in mind. That makes the process complex and diverse and different components of the same, which are strongly interrelated, are to be understood and acted upon by all concerned. Another important aspect is that the journey ahead has to be undertaken by each of the Panchayat of the State and the road ahead for the State will essentially consists of the sum total of journey to be undertaken by all the Panchayats, each of which will be different from the other. The major components will be the goals in terms of certain outcomes, the institution that has to be developed to own and work upon the goals, strengthening the institutions to follow the processes for good governance, the capacities to be developed for the institutions to take up the journey, the services those are to be delivered to the citizen and means to be followed including personnel and the infrastructure which will be required to accomplish the task and ultimately the people who judge the services and benefit in terms of outcome as the ultimate goal for constantly giving their feedback for keeping the process on track. Those aspects along with the strategy to be followed are briefly described below. Sharing the vision in terms of human outcomes and setting goals locally
Roadmap for the Panchayats in West Bengal The vision should be in terms of outcomes related to human development. While there is no end to further improve the status in respect of education, health and income but some minimum level of achievement across all Panchayats should be the immediate milestones to be achieved. There should also be ways to measure the outcomes directly or through proxy indicators at the local level. In terms of education the milestones will be what are already accepted as rights in terms of ensuring elementary education for all. Thus the milestone that each GP will be required to be achieved is that every child in its jurisdiction completes class VIII standard of education and are in schools up to the age of 14 years. It should also be ensured that no child at that age is working as child labour. The other related outcome should be to improve literacy rate through adult and continuing education as well as to reduce the gender gap in literacy. There cannot be a common goal like the first two components but each GP will have to work out its target based on ground realities. The outcome in the field of health will be reduction in IMR and MMR, which is the culmination of multi-dimensional interventions in the field of public health. It will not be easy to calculate IMR or MMR at the GP level and to set goals for all those bodies but what is possible is to monitor all events of death of infants and pregnant mothers and to work for reducing the figures through the interventions described in chapter III. In respect of income the immediate goal will be to take all the families out of poverty, which may take different time in different GPs to achieve the same, though it may in general take a long time. The goal is to be achieved through several types of interventions. The immediate outcome to be observed is to augment the income of the unskilled wage earners, who are in the lowest step of the economic ladder and the same will be measured by a combination of number of days they get employment from market and out of government programmes as well as the difference in wage between the peak rate and the lean season in a year, which should continue to get reduced. The other observable phenomenon to be monitored is the extent of reduction of migration out of the area in distress, which should be brought down to nil. The worst victims are those who are not able to perform manual labour and are out of employment. Those are destitute families and the goal will be to provide them social security through various social security measures like providing pensions and food security. The goal will be to provide social security to all such families. All those are important goals of the State and it is utopian to think that simply assigning those goals on the Panchayats will result in improvement. On the contrary achievement on all those fronts will depend on contribution from every level of government and the Panchayats will actively share the vision to work out what they can contribute in achieving those ultimate goals. The task of the State Government is to make the Panchayats internalize those basic goals related to human development, make all their plans and programmes to pursue those goals and based on the local context set their goals of what is achievable and in what time frame so that all their actions follow the goals to be set by themselves. Thus every GP will have their own Roadmap for achieving milestones related to the said outcomes, which they will monitor locally and mobilize all their resources and actions for pursuing the same. The outcome has to be assessed annually and shared with the people for their participation in achieving the goals. Those activities which can be planned and implemented locally will be the responsibilities of the Gram Panchayats and those are to be undertaken by them when the higher level the Panchayats will play a stewardship role and will mediate with higher tiers of government and other institutions on behalf of their
Roadmap for the Panchayats in West Bengal citizens for the desired outcome. This is easier said than done and the task will be to strengthen the institution and let them acquire capacities for accomplishing the tasks. Strengthening the Panchayat institutions Several institutional aspects of the Panchayats have been discussed in chapter II. The Roadmap for the State will be to let the Panchayat functionaries internalize the institutional aspects of good governance as process of development and work out their own goals including the time frame and measurable parameters for assessing the progress. The aspects which are to be covered are participation of the people, horizontal sharing of responsibilities, ensuring rule of law including financial disciplines and integrity, inclusiveness in participation of members from political parties in opposition in various Standing Committees, responsiveness to the poorest sections, developing partnership with civil society organizations, promptness in decision making, transparency and accountability to the people, efficient mobilization of resources and effectiveness in use of available resources. It is difficult to set goals by the State Government for the Panchayats in terms of those parameters. The role of the State will be to take up intensive advocacy for self monitoring of those processes and continuous improvement out of their own. The process has been started and every Panchayat has been asked to evaluate various institutional aspects through a self-evaluation schedule (shown in Annexure). The same are being filled up by all the Panchayats and will be assessed by themselves for working out their own goals. The role of the State Government will be to facilitate the process and to identify the weak Panchayats in terms of those parameters so as to make more intensive facilitations by sending teams of experts on a regular basis. However, the major strategy will be to allow the Panchayat to assess various aspects of their own, internalize the process and set goals for themselves and seek the help of experts if they so want for strengthening their own institutions.
Roadmap for the Panchayats in West Bengal Role of Panchayat in the process of economic development of the people especially those belonging to disadvantaged section of the society and also ensuring social justice for them is finding increasingly more space in the whole spectrum of development interventions of the State. It is found that they can play significant role in the field of health, education, agriculture and other allied activities like pisciculture, animal resources development, cottage industries and mini-industries, empowerment of women, development of children, social welfare including welfare of backward classes, destitute and physically challenged persons. It shall also have major role in development of infrastructure in the countryside that will have a sustaining effect on development. It shall create new employment opportunities for the people and expand the existing opportunities. In short, Panchayat shall have an accentuated role in holistic development in its area. The proposed amendment of the State Panchayat Act referred to earlier in paragraph 1.5.1 shall encapsulate this role of the Panchayat in the development matrix. Now, trivializing the role of the Panchayat in the projected development efforts, it cannot be expected to achieve this uphill task on its own. The State Government shall have a major role in building up higher capacity of the Panchayat in various fields. It will require functional improvement, technical capability, augmented resources and the capacity to utilize such resources. Besides, left alone, Panchayat cannot be expected to look after, say, promotive and preventive health care, pre-school or primary education or promotion of agriculture including building up irrigation facilities and such other fields. The role of Panchayats shall be supplemented and consequential to the role of the State Government in the related field. Panchayats shall perform especially such functions that require local knowledge and responsibilities to the demands of the local community and shall identify the schemes, their locations as also the beneficiaries of different schemes and shall create awareness among the people about the programmes and schemes and shall facilitate easy access to various benefits and their equitable distributions. Such functions of the Panchayats have been captured in the matrix showing implementation strategy placed in Appendix 9.1 of this document.
Roadmap for the Panchayats in West Bengal Either in implementation of the development programmes or in the process of evaluation, trust and confidence of the citizen takes the centre-stage. On ultimate analysis, the coin test of success of a Panchayat is the extent to which it has earned the acceptability and the faith of the people. With this objective in sight, a Panchayat body is required to interact as frequently as possible with the people. For a Gram Panchayat, the forum of Gram Sansad is a dependable platform to measure the acceptability of the citizens in the matter of various functions performed by the Panchayats. Since meetings of Gram Sansads are held statutorily twice in a year in the month of May and November and additionally as may be felt necessary by the Gram Panchayat or as may be required, by order, by the State Government, the Gram Panchayat has adequate scope for assessing the views of the people and also respond to such views. In case of Panchayat Samiti and the Zilla Parishad, it is not possible to interact directly with the people. As an alternative, Block Sansad and Zilla Sansad have been constituted where the Panchayat Samiti and the Zilla Parishad may get their performances audited. Block Sansad is composed of all members of the Gram Panchayats within the Block and all members of the Panchayat Samiti that is all people’s representatives within the area whereas the Zilla Sansad is composed of the Pradhans of all Gram Panchayats, Sabhapatis, Sahakari Sabhapatis and all Karmadhyakshas of the Panchayat Samitis within the district and all members of the Zilla Parishad that is some selected representatives and most of the office bearers. Although admittedly representatives of the people cannot be any substitute for the people, the Panchayat Samiti and the Zilla Parishad may utilize the respective forum to assess the quality and acceptability of their performance. On this view, it is statutorily provided that the Panchayat body concerned shall hold meetings of the respective Sansads compulsorily twice every year, place their performance report for deliberations, collate and consider their views, advices and recommendations and shape their future plans and actions accordingly. These Sansads shall not only act as watchdogs and whistle blowers but also as guides and philosophers for achieving their goal of alround development. Untied fund has a major role in the functional domain of the Panchayat bodies. Since the Panchayats are recognized in the Constitution as units of self-government and have been endowed with the responsibility for economic development and securing social justice for the people within their respective jurisdiction, they should have access to reasonable quantum of fund for discharging their responsibilities. Their own resources are meagre and there is little scope to augment this resource base to much higher order. Again, schematic funds devolved on them have restricted application. The problem can only be addressed through generous inflow of untied fund. Such fund may be used as supplemental to various scheme funds allotted to them as also for execution of schemes and programmes drawn up by them for demand-driven programmes for development. Delivery of services for social justice & economic growth
Roadmap for the Panchayats in West Bengal The Panchayat institutions are to deliver a range of services and should also mediate with higher tiers for proper delivery of services to be arranged by those bodies for reaching the same to all for whom the services are designed. The details of the services have been described in Chapter III and Chapter IV. The outcome to be achieved in various aspects of human development will depend on the access and quality of services available to the citizen. Each GP will be required to assess the availability of services to be delivered by the Panchayats and the State Government to find out the gap in access and quality and work out plan for improving the same. In respect of services delivered by the State Government the Panchayats will mediate for bridging the gap and making best use of available resources to reach the same to the most marginalised families. In this case also it is difficult to prescribe roadmaps of individual Panchayats from above. The same has to be worked out by each Panchayat by assessing their present status, the constraints and the possibilities for improving the same. An exercise for self assessment of available services by the Panchayats themselves has been initiated as per a self-evaluation schedule, mentioned in section 8.3 and shown in the Annexure. The schedule is being filled up by all the Panchayats and the same will be completed by 2006-07. This self-evaluation exercise will serve the dual purpose of sensitizing the Panchayats on the importance of availability and quality of those services as well as to identify the deficiencies for working out the plan for improving the same. It will also help the State Government to rank the Panchayats in terms of delivery of those services so that more facilitation could be provided to the least performing Panchayats. This exercise will also be utilized by each Panchayat to work out their Roadmap for planning and implementing various interventions in improving both social and economic services towards the citizen. One important component of the exercise will be to also identify gap in basic infrastructure related to services needed for human development and economic growth so that the same could be bridged by proper planning and deployment of resources available with the Panchayats. The exercise for self-assessment will be carried out annually and since the status will be assessed on a score-based ranking, the progress can be to some extent quantified. However, being self assessment there could be tendency for over rating the performance, which will become more objective in due course, making it easier to follow a definite course of planned actions for improvement. The process will be helped by preparing citizen’s charter by the Panchayats to publicly announce the quality and extent of services for which they are responsible and taking feedback of the citizen for evaluation of delivery of those services. Such a charter should not be imposed from above but should come out of own exercises by respective bodies for which no time frame can be prescribed by the state Government. However, the State Government will advocate to have such charter adopted by each Panchayat and assist those to acquire capacities to honour the charter. Acquiring capacities by the Panchayat institutions
Roadmap for the Panchayats in West Bengal While the goals can be set, and may be uniform for all, the achievement will vary widely depending on the maturity of institutional process and ultimately on the capacity of the Panchayats. The issue of capacity building is extremely important and the most crucial in influencing the outcome. This has again various components like capacity for mobilizing people and taking up decentralized planning exercises including internalizing the issues and focusing on the right priorities, capacity for mobilizing and effectively utilizing resources, managing delivery of various services and implementation of various programmes assigned on those bodies, evaluation of the output and the outcome and building up necessary social capital and economic infrastructure for sustaining growth. In this case also it is impossible for the State Government to set target and chart a Roadmap for all the Panchayats. The same has to be carried out by each Panchayat based on their local context. Even when it comes to building up the manpower resources by training the official and elected functionaries the same training input may lead to different learning outcome based on many factors. The strategy will be to plan certain activities related to training and capacity building, as has been described in Chapter VI, for all the Panchayat functionaries to reach some minimum level of understanding. More emphasis will be given on identifying best practices in each district and organize extensive exposure visit for peer learning. The same will be facilitated by hand holding support to the weak Panchayats as already described. The state Government will also provide necessary infrastructure and allied supports as mentioned in Chapter VI for developing training infrastructure, providing computer and train personnel for use of ICT, which will enable the Panchayats to function more efficiently. Monitoring and Evaluation One of the responsibilities of the State Government will be to closely monitor the progress of strengthening of the Panchayats. As already mentioned the Panchayats will be made to assess their performance through self evaluation formats. That will help the State Government to rank progress on various aspects of performances of the Panchayats to plan more facilitation and other interventions. However, apart from self evaluation there will be studies and evaluation by expert organizations to evaluate the progress. The evaluation reports will be shared with the Panchayats for internalizing the findings and taking corrective measures of their own. In respect of the existing programmes and services effort will be made to understand the achievement and failures by compiling figures GP wise. In order that census and similar other data, which are collected revenue mouza-wise by other agencies can be compiled for each GP it is necessary to ensure that no GP contain a part of the mouza. At present there are around 16% of the mouzas which are spread over more than one GP which makes it difficult to compile data GP wise. Steps will be taken to split those mouzas before the next census so that census data can be complied GP-wise. That will help to verify locally compiled data with data from census or similar other operations. The citizen and the Panchayat
Roadmap for the Panchayats in West Bengal Inherent value of Panchayat governance system, its efficacy and justification are derived from its closer proximity to the people, particularly its weaker sections. Various interventions of the Panchayat also centre around their aims and aspirations, their deprivations and needs and their weaknesses and strengths. In pursuance of this concept, the role of Panchayat is not confined merely to build up a sustainable delivery mechanism for opportunities created by it or by the Government and other agencies. It is also necessary for the Panchayats to create consciousness among the people about their right for better livelihood in one hand and their duties and responsibilities in realization of their rights on the other. It is therefore necessary for the Panchayat to sensitise and motivate the people through spread of information, education and communication so that they may raise their demands on their primary needs of life in an informed and effective manner. They should also be made conscious and responsive about their duties and responsibilities in the process of realization of these demands. In other words, the citizens should be brought to have participatory role in the whole process of development. In order to concretize this endeavour, Panchayats should draw up a Citizens’ Charter incorporating therein Peoples’ rights and obligations relating to various fields of activities for development with holistic approach. Such fields should include education, health, nutrition, expansion of livelihood opportunities in agriculture, mini and household industries and service sectors. Such charter shall be widely circulated and discussed in different forums so that people may realise their rights and duties. It is ultimately the people, who are the most important stakeholder of the Panchayats. The success of establishing a more responsive and efficient Panchayat system has to be ultimately judged by the people, who have the ultimate power to take corrective measures for improving the system. However, most of them are not so aware of their roles and responsibilities in developing the Panchayats as their own institutions and do not feel encouraged to contribute unless they have some expectation of private gains. The State Government will carry out advocacy measures for wider dissemination of information related to functioning of the Panchayats and how interest of the poorest sections as well as overall welfare of the society could be ensured by developing stronger local government. The strength should be derived primarily from the people and not merely from the statute or the upper tiers of government for better functioning of the Panchayats to function as institutions for self government. It should be the citizen who should own the Roadmaps of all the components to participate actively for realizing their goals and the Panchayats carry out the process as their elected body.
Roadmap for the Panchayats in West Bengal
THE APPENDICES Benchmark for Implementation Strategy of Roadmap
Issues 1. Assessment of present status of Panchayat functioning and follow-up intervention Self (a) evaluation of (b) institutional functioning of the three tier Panchayats Implementing Strategy State Government Level Activity Responsibility Timeframe Developing schedule (a) SRD Cell (a) May 2006 for for the three tiers (b) Panchayat Development GP, Circulating and Officer (PDO) and Panchayat September explaining self Accounts & Audit Officer 2006 for PS evaluation formats to (PAAO) [Block level officials] and December all Panchayat bodies for GP, District Panchayat & 2006 for ZP and facilitating PRIs Rural Development Officer (b) August 2006 to complete self(DPRDO) for PS and for GP, evaluation Commissioner, Panchayats & November Rural Development along with 2006 for PS the officials of Panchayats & and January Rural Development Directorate 2007 for ZP and Department for ZP Finding out invalid (a) SRD Cell, the DPRDOs, the (a) February scores and intimating PDOs and the PAAOs 2007 those scores to (b) Block Development Officer (b) 15th March DPRDO for correction (BDO) for GP, DPRDO for PS 2007 and getting back the and Commissioner, Panchayats (c) May 2007 corrected figures & Rural Development for ZP Validation of the (c) SRD Cell along with the scores for Statistical cell of the disbursement of Panchayats & Rural Incentive Fund Development Department Analysis of the final (PRDD) and the Statistical Cell data and taking of the Directorate of necessary intervention Panchayats & Rural to uplift the strengths Development (DPRD), West and to overcome the Bengal weaknesses of the Panchayats PRI Levels Responsibility Timeframe The The process is Panchayat expected to be body as a completed whole at all and the data the three tiers to be sent to the State Government by December 2006 for GP, January 2007 for PS and February 2007 for ZP Correcting the The February invalid entries and Panchayat 2007 sending the body as a corrected figures whole at all to the State the three tiers Government Activity Understanding the objective, the schedule and taking necessary action to complete the self evaluation process involving all the elected representatives and Government/ Panchayat functionaries
Eliminating (a) the errors in the data, validating the scores and taking necessary (b) intervention for upgraded performance (c) on the basis of the scores obtained by the Panchayats
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level Activity Responsibility Timeframe 2. Strengthening Participation (a) Advocacy and facilitation in (a) PRDD, DPRD, (a) September (a) of democratic at the formation of Gram Unnayan DPRDOs, Block 2007 functioning of village level Samiti (GUS) in all the 45154 level officials (b) March 2008 the Panchayats Gram Sansads in the State and the GP level (b) Capacity building of the GUS officials members to make the GUSs (b) Same as (a) functional (b) Key Issues
PRI Levels Activity Responsibility Timeframe Formation of (a) The Gram (a) December Gram Unnayan Panchayat 2007 Samiti (GUS) with (b) March in all the necessary 2008 45154 Gram help from Sansads in the the Block State (b) The Gram Capacity Panchayat building of the with GUS members necessary help from the Block, District and State Organizing (a) Advocacy, facilitation and (a) PRDD, District (a) March 2010 (a) Organizing the (a) Sishu O Nari (a) March the poor for guidance for organizing the Rural (b) March 2011 poor, Unnayan, 2010 their poor, particularly the women, Development (c) March 2012 particularly the Janakalyan (b) March participation in Self Help Groups (SHGs) in Cell (DRDC), women, in O Tran 2011 in such a manner that every poor Block level SHGs Sthayee (c) March Panchayats rural family has at least one officials, (b) Playing proSamiti of the 2012 member included in an SHG specially Block active role in PS, Nari, (b) Special drive to improve the Livelihoods the drive to Sishu understanding of the groups Development improve Unnayan O with respect to the socioOfficer (BLDO) understanding Samaj economic situations in their (b) Same as (a) of the groups Kalyan Upaown context and services (c) Same as (a) by (c) Negotiating Samiti of the available for its improvement negotiating with with the banks/ GP and the so as to enable them to avail of the banks/ financial GUS those services and participate financial institutions to (b) Same as (a) in social and economic institutions provide access and the development of the area through to credit for all Clusters and including augmenting their State/District SHGs Federations own income Level Bankers (c) Office (c) Providing access to credit Committee bearers of from banks/ financial (SLBC/DLBC) the institutions for all SHGs Panchayats
Roadmap for the Panchayats in West Bengal
Implementing Strategy Key Issues 2. Strengthening of democratic functioning of the Panchayats Organizing the (d) poor for their participation in Panchayats (e) State Government Level Activity Responsibility Advocacy, (d) PRDD, facilitation and DRDC, guidance for Block level formation of SHG officials, Clusters in all GP specially Advocacy, BLDO facilitation and (e) Same as (d) guidance for (f) Same as (d) formation of SHG Federation in all PS Building capacities of the Panchayats to utilize the Clusters and the Federations as their agents for poverty alleviation and making social changes Facilitating the (a) PRDD, Standing Committees DPRD, and Upa-Samitis so District level that they can provide officials of input in planning the various district sector departments, schemes of line Block level departments officials of Facilitating the various Standing Committees departments and Upa-Samitis in (b) Same as (a) planning the district sector schemes to be implemented by the Panchayats PRI Levels Timeframe Activity Responsibility (d) March (d) Formation of SHG (d) Nari, Sishu 2010 Clusters in all GP and Unnayan O (e) September setting up their own Samaj Kalyan 2010 offices in the Upa-Samiti of (f) March immediate vicinity of the GP with the 2011 the Panchayat offices help of SHG (e) Formation of SHG representatives Federations in all PS (e) Sishu O Nari and setting up their Unnayan, own offices in the Janakalyan O immediate vicinity of Tran Sthayee the Panchayat offices Samiti of the PS (f) Building capacities of with the help of the next level Cluster members Panchayats to utilize (f) ZP to build the Clusters and capacity of PS Federations and PS to build capacity of GP (a) Ongoing (a) Planning the district (a) The Panchayat process sector schemes of body in general with more line departments and the effective (b) Planning the district concerned facilitation sector schemes to be Sthayee/Upafrom April implemented by the Samiti in 2007 Panchayats particular with (b) Ongoing the help of the process concerned line department officials (b) Same as (a) Timeframe (d) March 2011 (e) March 2012 (f) March 2012
Strengthening (a) functioning of the UpaSamitis and Standing Committees (b)
(a) Ongoing process with more effective role from April 2007 on release of fund and specific assignment (b) Ongoing process
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level Activity Responsibility 2. Strengthening Strengthening (c) Interactions (c) Various State (c) of democratic functioning of between the State Government functioning of the Upalevel functionaries, departments, the Panchayats Samitis and including ministers the nodal role Standing in charge of being played Committees departments and by the the elected as also Development appointed and Planning (departmental Department officials) members (d) District level of the Standing officials of Committees of the various State Zilla Parishads at Government least once in a departments quarter for guiding and apprising them of the State policy and development programmes highlighting area of functions of respective Standing Committees (d) Interaction on the same issues between the district level officials and (d) the members of the Standing Committees at the Block level Key Issues PRI Levels Timeframe Activity Responsibility Timeframe (c) Ensuring that the (c) Karmadhyaksha (c) Ongoing The process elected members of and Secretary of process, to for Standing the Standing the concerned be Committees on Committees of the Standing completed Health, Zilla Parishads Committees by March Nutrition has effectively (d) Karmadhyaksha 2010 already started. participate at the and Secretary of (d) Same as The process interaction the concerned (c) for Standing programmes and Standing Committee on fully realise the Committees Education is task ahead being devised. (d) Ensuring that the The process elected members of for these SCs the Standing will be Committees of the operationalised Panchayat Samitis by 2007-08. effectively For the other participate at the Standing interaction Committees programmes and the process fully realise the will be task ahead completed within the first three years of 11th Five year plan period. Ongoing process, all Standing Committees to be covered by March 2010
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 2. Strengthening of Strengthening (e) Integration (e) Block level (e) All Upa- (e) Ensuring that the PSs (e) Karmadhyaksha (e) Ongoing democratic functioning of between the Block and higher Samitis to organize quarterly and Secretary of process, to functioning of the the Upalevel Standing level officials be meeting between the the Sthayee be Panchayats Samitis and Committees and of various covered Sthayee Samiti and Samiti (SS) and completed Standing the GP level UpaState by March the related Upathe Sanchalaks of by March Committees Samitis with Government 2010 Samitis and also the related Upa2010 members of related departments ensuring that the Samitis (US) functional elected members of with the help of committees or the Upa-Samitis of the office bearers related members the GPs effectively of the PS and where there is no participate in those GPs respectively. functional meetings and fully committee, of the realise the task ahead GUS as much as along with ensuring possible participation of the members of the functional committees of the GUS as much as possible (f) Facilitating the (f) PRDD, DPRD, (f) 2007-08 (f) Determination of (f) The concerned (f) 2007-08 Panchayat bodies District and for ZP, Sthayee/Upa-Samiti Panchayat body for ZP, to determine likely Block Level 2008-09 wise prior allocation in general and 2008-09 allocation of Officials of for PS and in different sectors of the respective for PS and programme/activity various State 2009-10 activities and Sthayee/Upa2009-10 wise fund from Government for GP preparation of Samiti in for GP State budget during Departments Sthayee/Upa-Samiti particular the next year along wise budget on the with advocacy, basis of such data capacity building and facilitation for preparation of Sthayee/UpaSamiti wise Budget Key Issues
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 2. Strengthening of Defining the (a) Taking steps for (a) PRDD, (a) March (a) Ensuring that the (a) The concerned (a) Ongoing democratic roles of defining their roles as DPRD, 2009 members join the Panchayat process functioning of the members who people’s DPRDO and capacity building body as a Panchayats are not office representatives for Block level programme through an whole and the bearers constructive appraisal officials, interactive process and office bearers of the functions of the specifically remain faithful to their in particulars Panchayat body PDOs and roles emphasizing their PAAOs rights and responsibilities and setting up mechanism for their capacity building and monitoring of the process Increasing (a) Capacity building of (a) PRDD, (a) March (a) Ensuring that the (a) The concerned (a) Ongoing participation the members of the DPRD, 2010 members join the Panchayat process of the political majority to pay heed DPRDO and (b) March capacity building body as a (b) Ongoing parties in to the voice of the Block level 2010 programme and practice whole and the process opposition minority, accept good officials, to create conditions for office bearers suggestions and place specifically participation of the in particular all facts before them PDOs and members from the (b) The concerned to justify decisions, if PAAOs political parties in Panchayat taken with disregard (b) Same as (a) opposition with body as a to the suggestions of freedom, mutual respect whole and the the minority opinion and dignity office bearers (b) Capacity building of (b) Ensuring that the in particular the members of the members join the minority so that they capacity building do not feel programme and try to discouraged and participate effectively frustrated and may continue to participate meaningfully and effectively Key Issues
Roadmap for the Panchayats in West Bengal
Key Issues 2. Strengthening of democratic functioning of the Panchayats Increasing (c) participation of the political parties in opposition
Functioning of (a) the District Council
Implementing Strategy State Government Level Activity Responsibility Timeframe Activity Initiative for active (c) PRDD, (c) March (c) Creating involvement of political DPRD, 2009 conducive parties in building a consensus District and environment approach towards the Block level for consensus development process officials of building considering that the process State will be beneficial to all the Government political parties since all of them are in opposition in one or the other Panchayat bodies (at the district & block level) Initiative to make the District (a) PRDD (a) December (a) Facilitating the Council more representative (b) PRDD 2007 District by bringing in larger number (c) PRDD (b) December Council in its of members of different 2007 functioning political colours so that (c) December (b) No activity impartial and balanced 2007 (c) No activity approach in all matters may be ensured Initiative to ensure that the advices and recommendations of the District Council be enjoined upon the Zilla Parishad and the District Magistrate (when necessary, the State Government) to issue specific directions on that basis Initiative to ensure that the advices and recommendations of the Council be placed before the auditors at the time of their inspections for their consultation
PRI Levels Responsibility (c) The office bearers of ZP and PS
Timeframe (c) March 2009 for creating a discernable desired ambience although this will be a continuous process
(a) The Panchayat (a) Ongoing bodies in process general and the (b) No Zilla Parishad timeframe in particular (c) No (b) No timeframe responsibility (c) No responsibility
Roadmap for the Panchayats in West Bengal
Key Issues 2. Functioning (d) Strengthening of the District of democratic Council functioning of the Improving (a) Panchayats accountability
(b) 2. Other ethical (a) Strengthening steps for good of democratic governance functioning of the Panchayats (b)
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe Initiative to strengthen its staff support (d) PRDD (d) March (d) Maintaining a conducive (d) Office (d) Onfor augmenting its delivery mechanism 2010 atmosphere following the bearers of going rules and procedure laid ZP process down in this behalf Improving upon the institutional (a) PRDD, (a) March (a) Ensuring that all concerned (a) The (a) March mechanism for organizing Gram DPRD 2009 attend the capacity building respective 2010 Sansads, Block Sansads and Zilla (b) PRDD, (b) March programme, own the Panchayat Sansads by working out the essential DPRD, 2010 mechanism and practice it body in disclosures to be made in those District & effectively in reality general meetings, format for disclosures and Block and the standardization of some of the essential level office items to be included in the discussions officials bearers of including performance reporting, that body planning procedure, budget preparation in process, audit observations and action particular taken reports on audit observations and District Council notes Capacity building of all concerned to ensure quality transactions in such forum. Developing citizen’s report card to (a) PRDD, (a) March (a) No activity initially, but (a) The (a) March judge the ethics being followed in the DPRD, 2010 after the card is introduced respective 2010 affairs of the Panchayat along with District & (b) March the task of accepting it and Panchayat (b) March appropriate advocacy programmes for Block 2009 acting accordingly body in 2009 the people to demand highest standards level (c) March (b) Facilitating awareness general (c) March of honesty, integrity and objectivity officials 2010 generation among people, and the 2010 Taking initiative so that there is access (b) Same as creating conducive office to all information for upholding the (a) environment in the bearers of spirit of Right to Information and (c) Same as Panchayat offices and that body encourage the people to share it to (a) inculcating right spirit in ensure informed participation in all among the office bearers particular deliberations and the members (b) Same Capacity building of citizens to sift and (c) Capacity building of as (a) evaluate available information in the citizens by making available (c) Same light of rules and procedures and the the rules and procedures as (a) ground realities and also constraints, if any
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level Activity Responsibility Timeframe 2. Strengthening Interface (a) Encouraging civil society (a) PRDD, DPRD, (a) Ongoing (a) of democratic between to meaningfully participate in District & process, a functioning of Panchayat the functioning of the Block level significant the Panchayats and civil Panchayats through promotion officials development society of civil societies and creation (b) Same as (a) is expected (b) of an ambience so that they by March may mutually reinforce each 2011 other in better understanding (b) Launching of the issues and strengthening by the processes of good December governance 2007 and (b) Launching Civil Society then a Support Programme (CSSP) in continuous the state primarily with the process purpose of supporting a more accountable civil society influencing the policy of governance and its practices to ensure better access to services by the poor 3. Improving Water (a) Capacity building for (a) Water (a) March 2009 (a) core civic supply conservation of water and Investigation services and regulation for use of ground and sanitation water Development Department (WIDD), Public Health Engineering Department and PRDD Key Issues
Activity Facilitating the initiative taken from the State Government level Same as (a)
PRI Levels Responsibility Timeframe (a) The (a) Ongoing respective process, a Panchayat significant bodies development (b) Same as is expected (a) by March 2011 (b) A continuous process after December 2007
Conservation of (a) Jana(a) Ongoing water for swasthya process, a sustainability of O significant drinking water Paribesh development sources and & Krishi, is regulation of use of Sech O supposedly ground water for Samabay expected by use in industry/ SS of March 2010 agriculture to be ZP/PS and undertaken by both Shiksha O the GP and the Janahigher tiers swasthya depending on the & Krishi geographical O Prani contours of the area Sampad and the technology Bikash US
Roadmap for the Panchayats in West Bengal
involved Implementing Strategy Key Issues 3. Improving core civic services Drinking (b) water supply and (c) sanitation State Government Level Activity Responsibility Monitoring water (b) Public supply to all the Health habitations Engineering Facilitating in Department establishment of more (PHED) and laboratories and PRDD monitoring the running (c) PHED and laboratories for water PRDD testing along with (d) WIDD and taking initiative so that PRDD the PS utilizes the Rural (e) PRDD, Sanitary Marts (RSM) District & for surveillance of Block level water quality officials Facilitating in (f) PHED, development of a data PRDD, base for habitations District & with seasonal shortage Block level of supplies and those officials having water quality (g) District and problems Block level Advocacy for setting up engineers of water source based user PHED committees Promotion of habitation based small piped water supply schemes under Swajaldhara Capacity building of the Rural Sanitary Marts (RSM) to also deliver water supply engineering related services Timeframe (b) Ongoing process (c) Ongoing process (d) March 2009 (e) Ongoing process (f) Ongoing process (g) March 2010 PRI Levels Activity Responsibility Ensuring water supply to all (b) Janaswasthya O the habitations Paribesh Sthayee Arrangement for testing of Samiti of PS with water by the laboratory or support from the RSM on payment same of ZP Developing data base for (c) Janaswasthya O habitations with seasonal Paribesh Sthayee shortage of supplies and Samiti of PS with those having water quality support from GP problems for collection of Setting up water source samples based user committees for (d) Same as (b) and in maintenance of installations addition the GP through regular collection of level data to be user charges and acquisition compiled by the of skills by selected Janaswasthya O (women) users Paribesh Sthayee Providing habitation based Samiti of PS small piped water supply (e) Shiksha O schemes under Swajaldhara Janaswasthya Upawith connection to every Samiti of GP and family and group stand post Gram Unnayan in certain cases with Samiti recovery of at least 50% of (f) Janaswasthya O the running cost and Paribesh Sthayee assigning maintenance Samiti of ZP and liabilities to the user group PS with support Taking initiative so that the from the Shiksha O Sanitary Marts attend the Janaswasthya Upacapacity building Samiti of GP programme and then (g) The office bearers utilizing their service for of the PS and the water supply engineering Janaswasthya O works Paribesh Sthayee Samiti of PS Timeframe (b) March 2009 (c) March 2010 (d) March 2009 (e) March 2009 (f) March 2012 (g) March 2010 of GP
(b) (c) (d)
Roadmap for the Panchayats in West Bengal
Implementing Strategy Key Issues 3. Improving core civic services Drinking (h) water supply and sanitation State Government Level Activity Responsibility Setting-up surface (h) PHED water based water (i) PRDD, supply DPRD, arrangements in District & areas with arsenic Block contamination/ level salinity or officials exhibiting seasonal (j) PRDD, problem because of DPRD, excess drawal of District & ground water Block Advocacy, level facilitation and officials monitoring for (k) PRDD, 100% access to DPRD, safe sanitary toilets District & in all the Block habitations level Advocacy, officials facilitation and monitoring to ensure sanitation facilities at all public places Capacity building of the PRI functionaries for sewerage and solid waste management and also for providing conservancy services in the areas where it is necessary Timeframe Activity (h) March (h) Promotion of 2009 surface water based (i) March water supply 2010 arrangements in (j) March problem areas with 2010 assistance from (k) March PHED 2009 (i) GP/Block wise plan for such 100% coverage in each district depending on the present progress and keeping the area free from open defecation (j) Providing sanitation facilities at all public places along with maintenance (k) Planning to ensure sewerage system in each habitation, planning for solid waste management in the habitations, planning for conservancy services in the required areas and implementing the plans PRI Levels Responsibility Janaswasthya O Paribesh Sthayee Samiti of ZP for settingup, Janaswasthya O Paribesh Sthayee Samiti of PS with support from GP for distributing water to the households after receiving water in bulk from the PHED Janaswasthya O Paribesh Sthayee Samiti of PS, Siksha O Janaswasthya Upa-Samiti of GP and the entire progress to be monitored by the Janaswasthya O Paribesh Sthayee Samiti of ZP Janaswasthya O Paribesh Sthayee Samiti of ZP, Janaswasthya O Paribesh Sthayee Samiti of PS and Siksha O Janaswasthya Upa-Samiti of GP following the principle of subsidiarity and the monitoring the progress of the entire ZP area to be done by the Sthayee Samiti of ZP Preparation and implementation of the plan by the Siksha O Janaswasthya Upa-Samiti of GP securing support from Gram Unnayan Samiti (GUS) with facilitation and monitoring the progress of the GPs by the Janaswasthya O Paribesh Sthayee Samiti of PS and the progress of the PSs by the same Sthayee Samiti of ZP Timeframe March 2010 March 2009 March 2010 March 2010 for sewerage system, March 2011 for solid waste management and conservancy
(h) (i) (j) (k)
Roadmap for the Panchayats in West Bengal
Implementing Strategy Key Issues 3. Improving core civic services Services (a) related to public health (b) (c) State Government Level Activity Responsibility Advocacy and (a) PRDD, Health campaigning for cent and Family percent registration of Welfare birth and death Department Capacity building and (HFWD) and facilitation to maintain Information and and analyse vital statistics Cultural Affairs Ensuring that basic Department immunization of 6 (ICAD) diseases are available at (b) PRDD, DPRD, the Primary Health SubSIPRD, District Centres (PHSC) and at and Block level the Primary Health officials Centres (PHC) on at least (c) HFWD, Block two fixed days in a week Medical Officer Campaign and awareness (Health) building for cent percent [BMOH], Health immunization of new workers of PHC born babies and PHSC Ensuring availability of (d) Same as (c) and tetanus vaccination and PRDD, Block provision for pre-natal and GP level and post-natal check-ups officials and at the Primary Health workers Sub-Centres (PHSC) and (e) HFWD, Block at the Primary Health Medical Officer Centres (PHC) on at least (Health) two fixed days in a week [BMOH], Health Campaign and awareness workers of PHC building to ensure cent and PHSC percent pregnant women (f) Same as (e) and take the tetanus PRDD, Block vaccination and avail of and GP level the pre-natal and postofficials and natal medical check-ups workers Timeframe (a) Ongoing process (b) Ongoing process (c) March 2008 (d) Ongoing process (e) March 2008 (f) Ongoing process PRI Levels Activity Responsibility Cent percent registration of (a) Gram death and birth Panchayat Maintaining vital statistics (b) Gram properly and analysing it for Panchayat as a reaching services related to whole and family planning, mother Artha O care and child health Parikalpana interventions, campaigning Upa-Samiti in for following the legal particular provision related to the age (c) Monitoring by at marriage the Siksha O Monitoring whether the Janaswasthya service is available and if US of GP and not, mediating with BMOH mediating with to ensure the service BMOH by the Mobilizing the support and Janaswasthya participation of the parents O Paribesh SS and the community to take of PS benefit of the services and (d) Siksha O keeping child-wise track of Janaswasthya the actual coverage by US of GP and taking help of the ANMs, the GUSs ICDS workers and GUSs (e) Monitoring by Monitoring whether the the Siksha O service is available and if Janaswasthya not, mediating with BMOH US of GP and to ensure the service mediating with Mobilizing the community BMOH by the with the help of Accredited Janaswasthya Social Health Activists O Paribesh SS (ASHA), women SHGs and of PS GUSs to ensure cent percent (f) Siksha O coverage and keeping Janaswasthya records US of GP and the GUSs Timeframe (a) March 2010 (b) Ongoing process, expected progress by March 2010 (c) March 2008 (d) March 2010 (e) March 2008 (f) Ongoing process, full or near-full coverage is expected by March 2010
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity 3. Services (g) Ensuring (g) HFWD (g) March (g) Monitoring the arrangements and mediating (g) Improving related to arrangements (h) PRDD, 2009 with the HFWD officials at the block level if core civic public for at least Women & (h) Ongoing necessary, developing infrastructure in the GP services health 80% Child process head quarter PHSC or in other suitable places institutional Develop- (i) Ongoing for safe delivery of mothers in the areas where deliveries ment and process delivery institution is far off with the help of (h) Ensuring that Social the ANMs and arranging skilled birth all Welfare attendant in those areas where no option for nutritional Departinstitutional delivery is available support ment (h) Ensuring that all the children of the area up to programmes (WCDSW the age of three years are brought under operate with D) regular surveillance through the ICDS full efficacy (i) HFWD programme or otherwise, monitoring, (i) Ensuring that aggregating and analyzing nutrition related all initiatives data, mostly collected in the ICDS centres for of the all possible interventions, monitoring and Government analysis of the weight at birth and latter (h) to prevent months of all the babies, identifying the communicab malnourished children and ensuring that they le diseases get adequate supplementary nutrition, operate with increasing awareness of the people for full efficacy promotion of adequate nutrition for all, spreading awareness related to breast feeding (i) and promotion of low cost nutrients including motivating the poorer families for developing kitchen garden (i) Awareness building and skill training for control and home management of water-borne diseases, awareness building on AIDS, Thalasemia and other diseases, intimating HFWD officials on any incidence of communicable diseases, providing local supports to government in containing the same, along with taking up local measures for preventing recurrence of such incidents Key Issues
Responsibility Timeframe Monitoring and (g) March 2009 mediating by GP (h) March 2010 with the help of for PS, developing perceptible infrastructure at achievement PHSC by GP but the with support process will from State continue government, (i) Ongoing arranging skilled process, due birth attendant by progress is Siksha O expected by Janaswasthya US March 2010 of GP with participation of GUS Nari, Sishu Unnayan O Samajkalyan US of GP with the help of GUSs, ICDS workers Awareness building by Janaswasthya O Paribesh SS of ZP/PS and Shiksha O Janaswasthya US of GP, initiatives at the time of outbreak by the GP as a whole
Roadmap for the Panchayats in West Bengal
Implementing Strategy State Government Level Activity Responsibility 3. Improving Services (j) Ensuring that vector (j) HFWD core civic related to control measures be (k) HFWD, services public available in the needPRDD and health based areas Cabinet (k) Ensuring that the (l) Health Panchayats be legally Supervisors empowered for food of HFWD safety (m) HFWD, (l) Conducting audit of PRDD with death of children and support from pregnant mothers and the reporting the causes Panchayats to the GP (n) HFWD, (m) Ensuring that Doctors PRDD are available in each GP (either there is a BPHC or a PHC within the GP area or a dispensary at the head quarter subcentre where doctor facility is available at least once a week) (n) Support to develop proper infrastructure at the head quarter sub-centres along with labour room facilities at those places where Government health centres are far away Key Issues PRI Levels Timeframe Activity Responsibility (j) Ongoing (j) Taking local measures for (j) Shiksha O process vector control and ensuring Janaswasthya (k) As may be participation of the people in Upa-Samiti of decided by all such measures and keeping GP in the Cabinet the area free from open convergence (l) Ongoing defecation with GUSs process, (k) Control in the sale of (k) The GP as a significant readymade food in the areas whole coverage to where incidence of (l) Shiksha O be ensured communicable diseases have Janaswasthya by March been found, linking issuance Upa-Samiti of 2009 and renewal of trade license the GP in (m) March 2008 certificates for food related general and the (n) March 2009 business with hygienic safety mediating role (l) Acting on the basis of such to be played by reports by taking up suitable the GP office interventions locally as well as bearers and mediating with the higher tiers higher tiers of as well as the officials of the Panchayats Health & Family Welfare where Department for initiating necessary possible measures in (m) Shiksha O preventing such deaths Janaswasthya (m) Running and managing the Upa-Samiti of dispensaries along with GP sharing the expenditure of (n) The GP as a doctor and medicine with the whole and the State Government Shiksha O (n) Developing proper Janaswasthya infrastructure at the head Upa-Samiti in quarter sub-centre along with particular labour room facilities at those places where Government health centres are far away, managing and maintaining it Timeframe (j) March 2010 (k) March 2009 (l) March 2009 for significant coverage although the process will continue (m) March 2008 (n) March 2009
Roadmap for the Panchayats in West Bengal
properly Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe Devolving all the non(a) School (a) March (a) Developing and (a) Partial responsibility (a) March academic functions related Education 2010 maintaining buildings and is already being taken 2012 to school education to Dept. (b) Preferother physical by the GP/PS, but full (b) March Panchayats (SED) ably by infrastructure like water responsibility with 2010 Placing the services of field (b) SED March supply and sanitation respect to primary and (c) September functionaries of SED to (c) SED and 2010 facilities, play grounds etc. upper primary 2008 Panchayats and giving them Ministry (c) Expecin schools and alternative education centres to (d) March a related designation of Human tedly by education centres be taken by the 2008 Devolving responsibilities in Resource March (b) Utilisation and monitoring Shiksha, Sanskriti, (e) (i) respect of activities being Develop2010 of services placed Tathya O Krira SS of Ongoing taken up under the Sarva ment (GoI) (d) March (c) Making the concerned PS process, to Shiksha Abhiyan to the (d) Facilita2008 SS/US more effective to (b) Shiksha, Sanskriti, be Panchayats (Shiksha, tion : (e) Ongoing discharge the Tathya O Krira SS of completed Sanskriti, Tathya O Krira SS PRDD, process responsibilities of SSA PS under guidance of in every at ZP/PS level and Shiksha Facilitaeffectively ZP Gram O Janaswasthya US at GP tion and (d) Opening SSK/ MSK on (c) The SS/US itself with Sansad by level) and dissolving District speedy the basis of the proposals facilitation from SED March SSA Committee approval : from the community and and PRDD officials 2009, Facilitation for opening up implement forwarding proposals for (d) SSK/MSK – GP to (ii) Same alternative education centres -ing EGS, BC and RMV send proposals to PS, as (i), (Shishu Shiksha Kendra, agency of centres PS to ZP and ZP to (iii) Madhyamik Shiksha SSA at (e) (i) Preparation of Child approve in September Kendra) and apart from State and Register consultation with 2008, facilitation for opening up, District (ii) Identifying out of PRDD (iv) speedy approval of the levels school children by name EGS/BC/RMV – GP Ongoing proposals of other (e) SED, (iii) Enrolling all the out to send proposals to process, alternative education centres Implement of school children through PS and PS to District significant (Education Guarantee -ing house to house campaign SSA Committee progress is Scheme centre, Bridge agency of at institutions with suitable (e) (i) – (iii) : VEC with supposed Course centre and Rabindra SSA and timing the help of GUS, to be Mukta Vidyalaya) to ensure PRDD (iv) Monitoring attendance monitoring by GP achieved access at all habitations involving (v) Mediating parents(iv) GP with the help by March Campaign and provisioning Panchayats teacher interface of VEC/GUS 2008 enabling environment for and (v) Same as (iv) (v) Same universal enrolment and commuas (iv)
Key Issues 3. Improving core civic services Services (a) related to universal literacy and elementary (b) education (c)
Roadmap for the Panchayats in West Bengal
retention nity Implementing Strategy State Government Level Activity Responsibility 3. Services (f) Devolving the (f) SED and Improving related to responsibility of the Ministry of core civic universal Mid Day Meal Human services literacy and programme totally to Resource elementary GP including local Development education procurement of rice (GoI) (g) Devolving activities (g) Mass related to adult, nonEducation formal and Extension continuing education Department to Panchayats (MEED) and National Literacy Mission Key Issues PRI Levels Responsibility Timeframe (f) Shiksha O (f) Ongo Janaswasthya US ing of GP with the help (g) 80% of GUS and VEC, literacy monitoring and to be supervision by achieved Shiksha, Sanskriti, by March Tathya O Krira SS 2011 of PS and ZP (g) Shiksha O Janaswasthya US of GP, to be monitored by Shiksha, Sanskriti, Tathya O Krira SS of PS and ZP Road (a) Capacity building of (a) PRDD, DPRD, (a) March 2008 (a) Preparing list of existing (a) ZP & PS – Purta, (a) March connectivity the Panchayat bodies SIPRD, (b) To start after roads (in the Road register Karya O Paribahan 2009 to prepare a list of District and Panchayat with necessary details, SS, GP – Shilpa O (b) To start roads already owned Block level election in which to be updated each Parikathama US after by them or required officials 2008 and year) owned by their body (b) Same as (a) Panchayat to be constructed by (b) Same as (a) expected to or proposed to be election in them to provide be constructed by them, 2008 and effective connectivity completed showing the roads in map expected to all the habitations by March and making the maps to be along with showing 2009 public for their knowledge completed them in map and comments by March (b) Capacity building of (b) Preparing a perspective 2009 the Panchayats for roads plan showing the preparation of list of roads to be perspective roads constructed or upgraded plan to satisfy the specifications, approving it in the general body Timeframe Activity (f) Desirable : (f) Running and managing March 2008 Mid Day Programme (g) Desirable : effectively (ensuring full March 2008 coverage, quantity and quality) encouraging community contribution and community monitoring (g) Bringing the entire citizenry from out of illiteracy through local initiatives involving the GUS
Roadmap for the Panchayats in West Bengal
considering the comments and implementing it Implementing Strategy Key Issues 3. Road (c) Improving connectivity core civic services State Government Level Activity Responsibility Capacity (c) PRDD, DPRD, building for SIPRD, proper and District and effective Block level maintenance of officials roads with (d) Same as (c) specific budget (e) PRDD, provision for the District and same from TFC, Block level SFC and Own officials funds along with preparation and regular updating of Road Maintenance Register Capacity building of the Panchayats for introducing road safety measures Advocacy for street lighting in the roads owned by the Panchayats Capacity (a) Water building for Investigation watershed and development to Development create maximum Department irrigation (WIDD), potential in PRDD, Timeframe (c) Ongoing process (d) March 2009 (e) Ongoing process PRI Levels Activity Responsibility Maintenance of roads owned by (c) ZP & PS – Purta, the Panchayats in such a manner Karya O that value of the total road assets Paribahan SS, does not get reduced and there is GP – Shilpa O no need for fresh capital Parikathama US investment to reconstruct the road (d) Same as (c) within its life span, preparing Road (e) ZP & PS – Purta, Maintenance Register Karya O incorporating physical and Paribahan SS, financial details of all maintenance GP – Shilpa O and updating it regularly and Parikathama US sharing it with the people as a part of Annual Report Introducing road safety measures such as putting up proper road signs particularly in sharp turns, controlling traffic speed in congested areas, educating the inhabitants about all safety measures and monitoring if there is any place where accidents are occurring repeatedly for taking necessary action Street lighting on their roads where it passes through habitation or require lighting on safety ground (i) Installing small irrigation (a) (i) Krishi, Sech sources, O Samabay SS (ii) developing watershed and of PS and Krishi (iii) provisioning field channels for O Prani Sampad irrigation Bikash US of GP, (ii) & (iii) Krishi Timeframe (c) Ongoing process, complete Road Register to be prepared by March 2009 (d) March 2009 (e) March 2011
(e) (a) Ongoing (a) process, significant progress expected to be achieved
Irrigation, drainage and flood protection
(a) (i) & (iii) Ongoing, (ii) ongoing, good coverage is
Roadmap for the Panchayats in West Bengal
sustainable manner District and Block level officials by March 2009 O Prani Sampad Bikash US of GP expected by March 2012
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 3. Improving Irrigation, (b) Advocacy for (b) PRDD, (b) Ongoing (b) Providing appropriate (b) Shilpa O Parikathama (b) March core civic drainage and appropriate drainage District and process drainage facilities for US of GP, Purta, Karya 2012 services flood facilities for each Block level (c) Ongoing each habitation O Paribahan SS of PS if (c) Ongoing protection habitation officials process (c) Maintaining the the scheme is beyond process (c) Taking major flood (c) Irrigation traditional Zamindary the technical protection measures and and embankments and competency of GP or it providing support to Waterways taking up other local spreads beyond one GP local flood protection Department measures for flood (c) Purta, Karya O measures taken by the (IWD) protection Paribahan SS of PS Panchayats with technical support from ZP and IWD and same SS of ZP when the scheme is beyond the competence of PS Housing and (a) Advocacy, campaign, (a) PRDD, (a) Ongoing (a) Providing durable (a) Shilpa O Parikathama (a) March development assistance and District and process, houses to all US of GP 2012 of habitat monitoring to ensure Block level significant households (including availability of durable officials progress those who do not have houses to all households expected any homestead land) and development of by March and developing proper proper habitat for 2012 habitat for healthy healthy living living Sanctioning (a) Capacity building of all (a) PRDD, (a) Ongoing (a) Sanctioning building (a) Shilpa O Parikathama (a) Ongoing building the technical staffs of DPRD, process, plan and enforcing US of GP or Purta, process, plan and the Panchayats in the SIPRD, strong other regulations for Karya O Paribahan SS apprecienforcing context of growing trend District and capacity to community living in of PS/ZP (for bigger able other for construction of Block level be view of the growing structures as per progress is regulations multi-storied buildings officials developed trend for construction specification) supposed for to cope with the by March of multi-storied to be community increasing density of 2009 buildings to cope with achieved living population keeping in the increasing density after mind the need for of population keeping March Key Issues
Roadmap for the Panchayats in West Bengal
protecting environment in mind the need for protecting environment 2009
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 3. Improving Marketing (a) Advocacy and (a) PRDD, (a) March (a) Promoting one marketing (a) Shilpa O Parikathama US (a) March core civic and other capacity DPRD, 2010 centre cum business hub in of GP in convergence 2012 services facilities for building of the SIPRD, every GP for meeting the with Krishi O Prani promotion of Panchayats to District and local needs of the area Sampad Bikash US of GP economic promote Block level (unless the area is catered by to promote GP level activities marketing officials one or more bigger centres cnetres, bigger centres to centre cum promoted by PS/ZP) be promoted by Purta, business hub Karya O Paribahan SS of for meeting the PS/ZP in collaboration local needs of with Krishi, Sech O the area Samabay SS of PS/ZP Issuing trade (a) Capacity (a) PRDD, (a) Ongoin (a) Issuing trade registration (a) Artha O Parikalpana US (a) Ongoing registration building of GP DPRD, g certificates and licenses of GP except for offensive process, certificates and PS for SIPRD, process systematically not only for and dangerous trades and more than and licenses issuing trade District and augmenting resources but Artha, Sanstha, Unnayan 90% registration Block level also for providing required O Parikalpana SS of PS coverage certificates and officials services through the for offensive and is licenses network of trades and dangerous trades expected systematically businesses in the locality, by March to reach ensuring environmental 2010 optimum level sanitation and eco-friendly of trading ambience, preventing activity in the unlawful business and area keeping tab on trades and businesses in the area Special (a) Capacity (a) PRDD, (a) March (a) Providing improved civic (a) GP as a whole and (a) March requirements building of the DPRD, 2008 services like solid waste particularly the concerned 2010 of the urbanised GPs SIPRD, management, drainage and USs in charge of the urbanised to make them District and street lighting in subjects Gram more equipped Block level convergence with the Panchayats to meet the officials with development authority (if demands for support from the GP falls within the area Key Issues
Roadmap for the Panchayats in West Bengal
solid waste management, drainage and street lighting development authority (if the area is under it) of development authority)
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility 3. Improving core Manage(a) Capacity building of (a) PRDD, (a) Ongoing (a) Better preparedness to (a) Artha O (a) civic services ment of the Panchayats for DPRD, process, minimize loss of human Parikalpana disaster better preparedness to SIPRD, perceptive life and property by taking US of GP minimize loss of District and progress is preemptive measures and with total human life and Block level expected tackling such situation involvement property and to impart officials by March with total involvement of of GUS and management skills for 2009 the community for early community tackling such situation restoration of normalcy 4. Decentralised Land (a) Advocacy for (a) PRDD, (a) Ongoing (a) Improving land of the (a) Krishi O (a) planning and reforms improvement of land DPRD, process beneficiaries of land Prani implementation and facilitating other SIPRD, reform so as to improve Sampad for economic requirements for District and their productivity and Bikash US development and cultivation to the land Block level helping those beneficiaries of GP social justice reforms beneficiaries officials for accessing other inputs by the Panchayats like irrigation water, fertilizer and bank credit etc. Better (a) Agriculture and allied (a) (i) & (ii) (f) (i) & (ii) (a) (i) Providing support and (i) & (ii) Krishi (f) management sector – State, Ongoing infrastructure so that every O Prani Sampad of natural (i) Capacity building, District and process plot of land excluding the Bikash US of GP resources facilitation and block level water bodies are either in convergence and providing technical officials of covered with crop or if the with Krishi, Sech improved support for maximum Agriculture land is not suitable for O Samabay SS land use utilization of available Department cropping the same have of PS land resources for (AD) and tree cover, intensifying PRDD (ii) Developing paraagriculture, professionals to utilize the (ii) Providing state assistance, providing assistance for micro and minor improving cropping irrigation, providing miniintensity and kits, assessing crop yield Key Issues
Timeframe March 2010
Significant coverage is expected by March 2010
(i) Gradual process, expected coverage by March 2011 (ii) Paraprofessionals by March 2009 and the others are ongoing process, which will gather necessary momentum
Roadmap for the Panchayats in West Bengal
diversification of crop and mediating with the State Government machinery for improving agronomic practices for improving yield with the progress of (i)
Key Issues 4. Decentralised planning and implementation for economic development and social justice Better (b) management of natural resources and improved (c) land use
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Promotion of agro-forestry (b) PRDD and (g) Ongoing (b) Preparing own nurseries with (b) Kris and social-forestry – Forest process the help of SHGs and hi O Prani Advocacy for taking up Department (h) Ongoing plantation of variety of species Sampad plantation in all possible with District process preferred by the community to Bikash US areas and Block (d) March ensure tree cover in all of GP Development of water Level 2009 possible areas (c) Kris bodies and promotion of officials of (e) (i) & (ii) (c) Development of water bodies hi O Prani fishery – Advocacy for both Dept. Onand leasing it out to SHGs or Sampad development of water bodies (c) District and going fishermen’s group for Bikash US along with providing block level process composite culture of fishery, of GP technical support for officials of (iii) To duckery and plantation along (d) Kris pisciculture PRDD and be with ensuring irrigation in the hi O Prani Water and soil conservation Fisheries decided command area Sampad measures – Providing Department by (d) Taking up water and soil Bikash US technical support for soil (FD) ARDD conservation measures in all of GP conservation and (d) Soil conserrequired areas out of various (e) (i), strengthening the technical vation wing programmes including wage (ii) & (iii) capabilities of the ZP of AD in employment programmes and Krishi O through the DRDC and collaboration watershed development Prani WBCADC for supervising with PRDD programmes Sampad and supporting Panchayat (e) (i) & (ii) (e) (i) Providing inputs for animal Bikash US initiatives Block and husbandry like chicks, of GP Promotion of animal GP level ducklings, kids and piglets to husbandry – officials of the poor families, particularly (i) Advocacy, support and Animal to the members of the SHGs providing skill training for Resource (ii) Developing infrastructure larger extension of improved Development (iii) Organizing the producers practices Department for having better bargaining (ii) Capacity building of the (ARDD) power in negotiating for Panchayats for intensifying with the help buying inputs and selling supply of inputs of Praniproducts and also mediating
Timeframe (b) March 2011 (c) Ongoi ng process, more than 80% coverage in 10 NREGA districts by March 2009 and rest districts by March 2011 (d) Ongoi ng process, more than 80% coverage in 10 NREGA districts by March 2010 and rest districts by March 2012 (e) (i) &
Roadmap for the Panchayats in West Bengal
(iii) Handing over day-today running and maintenance of veterinary dispensaries to Panchayats bandhu (iii) ARDD in consultation with PRDD with the large producers for linking the small producers, particularly the SHGs with them for better price realizations and marketing support (ii) Ongoing process (iii) March 2009
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 4. Better (f) Restructuring the West (f) PRDD (f) March (f) (i) Investing on the (f) (i) (f) (i) March Decentralised management Bengal Comprehensive Area 2009 available infrastructure Krishi O Prani 2010 planning and of natural Development Corporation – of the WBCADC for Sampad (ii) Contiimplementa- resources To develop it as the augmenting their Bikash SS of nuous tion for and technical support production capacities ZP with process economic improved organizations of the ZPs and engaging experts to support from with development land use (functioning under the work for that PRDD appreciaand social overall control and guidance organization (ii) The above ble impact justice of ZP for supplying inputs (ii) Creating awareness SS of ZP & PS by March and providing extension and motivation among and Krishi O 2010 support) in promoting the people for taking Prani Sampad livelihood in agriculture and benefit of the services Bikash US of allied sectors and inputs available GP Promotion (a) Promotion of livelihood (a) Block level (a) March (a) Developing appropriate (a) Artha, (a) March of opportunities in secondary officials, 2009 infrastructure, arranging Sanstha, 2010 livelihood and tertiary sectors – nodal role to (b) Ongoing skill training for the Unnayan O (b) Ongoing opportuniSupport to Panchayats be played process people, particularly Parikalpana process ties in non(providing skill by the those from the poorer SS of PS with farm sectors development trainer, Block and weaker sections of the help of mediating with the financial Developthe community, respective SS institutions for credit) for ment mediating with the of PS and with expansion of livelihood Officer financial institutions for assistance opportunities (BDO) providing better access from GP as a (b) Household and other small (b) State and to credit for expansion whole scale industries – Increasing District of livelihood (b) DRDC and the capacities of the District level opportunities Khudra Rural Development Cells officials of (b) Identifying and Shilpa, Bidyut (DRDC) for operationalising Cottage and procuring land as may O Achiracharit the initiatives of the Zilla Small Scale be necessary and Shakti SS of Parishads and creating other Industries developing ZP and PS and Key Issues
Roadmap for the Panchayats in West Bengal
enabling conditions for expansion of non-farm economic activities in all possible sectors and in every possible geographical location Department (CSSID) and PRDD infrastructure, arranging skill development training, providing marketing support and mediating with banks for credit support Shilpa O Parikathama US of GP
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 4. Decentralised Promotion of (c) Promotion of service (c) PRDD (c) Ongoing (c) Developing (c) Artha, Sanstha, (c) Onplanning and livelihood sectors – Guiding and process infrastructure for Unnayan O going implementation opportunities supporting Panchayats promotion of new Parikalpana SS of ZP process for economic in non-farm for development of economic activities with and PS development and sectors conducive larger employment social justice infrastructure for potential like the IT and growth of service the IT enabled services, sectors developing markets and rural business hubs Alleviation of (a) Providing wage (a) (i) & (ii) (a) (i) & (ii) (a) (i) NREGA districts – (a) (i) Artha O (a) (i) poverty & employment to the PRDD, Ongoing Estimating the demand Parikalpana US, March social equity unskilled workers – District process for unskilled wage Krishi O Prani 2008 (i) NREGA districts: and employment and its Sampad Bikash US (ii) Augmenting capacities Block seasonality with active and Shilpa O March of the Panchayats and level participation of the GUS Parikathama US of 2009 removing the officials and to meet the demand GP, Artha, Sanstha, constraints in realising by taking schemes Unnayan O the demand for which will boost the Parikalpana SS, employment and employment Purta, Karya O setting up a dependable opportunities Paribahan SS and machinery for (ii) Other districts – Krishi, Sech O monitoring and Identification of Samabay SS of PS supervision schemes for employment (ii) Same USs of (i) (ii) Other districts: generation for the and Shiksha O Augmenting capacities poorest section by Janaswasthya US of of the Panchayats so utilising cent per cent GP, Same SSs of (i) that they can be able to available fund and and Shiksha, fully utilize the thereby creating assets Sanskriti, Tathya O available resources for sustainable Krira SS of PS Key Issues
Roadmap for the Panchayats in West Bengal
under the SGRY strengthened by a machinery for monitoring and supervision employment through private enterprises widening the scope for the poorest people and the women for augmenting their income
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 4. Allevia- (b) Implementation of (b) PRDD, (b) March (b) Implementing watershed (b) Krishi, Sech O Samabay SS of PS (b) March Decentralised tion of area development DPRD, 2010 development and Krishi O Prani Sampad Bikash 2011 planning and poverty & programmes – SIPRD, programmes under US of GP implementation social Developing District Hariyali schemes as well for economic equity capacities of three and Block as other watershed development tier Panchayats level development and social for proper officials programmes with major justice implementation of focus on those Blocks the watershed covered under the DPAP development and other blocks facing programmes land degradation (c) Self help groups (c) (i) PRDD, (c) (i) (c) (i) Forming SHGs to (c) (i) Nari, Sishu Unnayan O Samaj (c) (i) and self DPRD, Ongoing cover all poor families Kalyan US of GP with active Ongoing, employment – SIPRD, process (ii) Formation of GSMT involvement of GUS, monitoring major (i) Advocacy, District and (ii) in each GP by concerned SS of PS and DRDC progress by campaign and Block level Ongoing (iii) Monitoring progress (ii) Nari, Sishu Unnayan O Samaj March facilitation to officials process of SHGs once in a month Kalyan US of GP, monitoring by 2010 cover all poor with the (iii) and taking necessary concerned SS of PS and DRDC (ii) March families by help of Ongoing interventions accordingly (iii) Nari, Sishu Unnayan O Samaj 2008 bringing at least DRDC process (iv) Cluster/s (of SHG) Kalyan US of GP with the help of (iii) Process one member, (ii) Same is/are formed in each GP GSMT, supervision by concerned initiated, particularly the as (i) and the Cluster/s is/are SS of PS and DRDC significant women, under (iii) State, provided infrastructural (iv) Nari, Sishu Unnayan O Samaj progress is SHG District and support for their Kalyan US of GP, monitoring by expected by (ii) Advocacy and Block level functioning concerned SS of PS and DRDC March facilitation to form officials (v) Spending out untied (v) Artha, Sanstha, Unnayan O 2008 GP SHG through the fund by all the three tiers Parikalpana SS to decide on (iv) March Management Bankers’ through providing nonspending through Sishu O Nari 2008 Team (GSMT) in Committee credit inputs to SHGs for Unnayan, Janakalyan O Tran SS in (v) Process each GP and at augmentation of their case of ZP and PS, Artha O initiated, Key Issues
Roadmap for the Panchayats in West Bengal
capacity building of GSMT (iii) Mediating with the financial institution for credit linkage of SHGs respective levels income as well as expansion of other social opportunities (vi) Ensuring that Every SHG will have access to credit through either cash credit account or schemebased lending Parikalpana US to decide on spending through Nari, Sishu Unnayan O Samaj Kalyan US in case of GP, monitoring by DRDC (vi) Nari, Sishu Unnayan O Samaj Kalyan US of GP, monitoring by concerned SS of PS and DRDC significant progress is expected by March 2009 (vi) March 2010
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 4. Decentralised Alleviation of (d) Reduction of poverty (d) (i) & (ii) (d) (i) (d) (i) Maintaining the (d) (i) The PS as (d) (i) Ongoing planning and poverty & and providing other Development Preparation list a whole process after implementation social equity support to the BPL and Planning going on, (ii) Ensuring wider (ii) The GP December for economic families – Department expected to dissemination of as a whole 2007 development and (i) Preparation of new (DPD), PRDD, be information and with the help (ii) social justice BPL list and updating District and completed consultation of the of GUS Significant the same from time to Block level by people for updating progress is time officials December the BPL list every expected by (ii) Capacity building 2007 year and helping the March 2010 of the GP for updating (ii) Ongoing Gram Sansads to the BPL list, objective process after identify new identification of December beneficiaries out of beneficiaries out of 2007 the BPL list based on the BPL list and objective criteria and sharing all providing access to information to the all the information to common people the common people for better transparency in decision making Measures for (a) Food security and the (a) Food and (a) Ongoing (a) Selecting (a) Artha O (a) Ongoing social security PDS – Advocacy and Supplies process beneficiaries for Parikalpana process, capacity building of Department, Antyodaya Anna US of GP, to significant PS and GP to ensure PRDD, District Yojana, Annapurna be facilitated progress in selection of and Block Yojana without loss and all the beneficiaries for level officials of time, installing an monitored mentioned Antyodaya Anna effective system of by Khadya milestones is Yojana, Annapurna monitoring so that the O Sarbaraha expected by Key Issues
Roadmap for the Panchayats in West Bengal
Yojana without loss of time and to install an effective system of monitoring so that the desired benefits of these and also of PDS reach the people desired benefits reach the people and sharing this information with the people along with the names of new beneficiaries SS of PS March 2009
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 4. Decentralised Measures for (b) Social security (b) Women & (b) March (b) Running National Old Age (b) For NOAPS (b) For planning and social security measures – Child 2009 Pension Scheme (NOAPS) Nari, Sishu NOAPS implementation Devolving seven Development (c) Ongoing efficiently so that every Unnayan O March for economic various pension and Social process pensioner get pension on a Samaj Kalyan 2008 and development and schemes run by the Welfare (d) March specified date or next US in for seven social justice administrative Department (3 2008 working day at the convergence other departments to schemes), beginning of every month with Artha, schemes Panchayats Fisheries (giving the money initially Parikalpana as soon as (c) Provident fund for Department, from the own fund and US of GP, for the landless Agriculture reimbursing the same with seven other schemes agricultural Department, the state government fund) schemes the are labourers and Cottage & and when devolved, same US of GP devolved unorganised Small Scale administering the fund in the with the help (c) December workers – Capacity Industries same manner in respect of and guidance 2010 building of GP/PS Department, those seven pension of Sishu O (d) Ongoing for more efficient Backward schemes and selection of Nari Unnayan, process, management of Classes new beneficiaries for those Janakalyan O desirable PROFLAL and Welfare schemes as the occasion Tran SS of PS progress SASPFUE Department may arise (c) For PROFLAL should be (d) Implementation of (c) PRDD, DPRD, (c) Ensuring more coverage, Krishi O Prani reached by the National Family SIPRD, collecting monthly Sampad March Benefit Scheme District and subscription and returning Biaksh US and 2010 (NFBS) – Block level the matured amounts or for SASPFUE Advocacy and officials extending the benefit on the Artha O campaign to cover (d) PRDD, District event of death of the Parikalpana each and every and Block participating members in US of GP eligible family level officials more efficient manner (d) Shiksha O along with (d) Generating awareness about Janaswasthya Key Issues
Roadmap for the Panchayats in West Bengal
establishing a quick fund transfer mechanism and streamlining the procedure the scheme, covering each and every eligible family under the scheme and reaching the benefit to the family within a month of receiving the application US of GP
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility 4. Decentralised Planning (a) Building up (a) PRDD, (a) Ongoing (a) (i) Holistic planning by (a) (i), (ii) & planning and from below capacities at specifically the process all Panchayat bodies in (iii) GP as a implementation for all levels of Cell in charge of 6 most backward whole (with for economic economic Panchayats Strengthening districts (Uttar active development and development through Rural Dinajpur, Dakshin participation social justice and social sustained Decentralisation Dinajpur, Malda, of GUS and justice facilitation, (SRD) Murshidabad, Birbhum, community), handholding, Programme and Purulia) PS as a showing Backward (ii) Holistic planning by whole and good Regions Grant all Panchayat bodies in ZP as a practices and Fund (BRGF) 5 other districts whole with exposure (Jalpaiguri, Bankura, active visits so that Paschim Medinipur, involvement they can Purba Medinipur, South of line prepare 24 Parganas) department bottom-up (iii) Holistic planning in officials participatory a similar manner plans through a simplified procedure in the rest districts Key Issues 4. Decentralised planning and implementation for economic development and social justice Developing (a) Advocacy (a) PRDD, District Panchayatand and Block level private campaign for officials partnership Panchayatprivate partnership for service (a) Ongoing (a) Entering in to (a) GP and PS process Panchayat-private as a whole partnership in respect of delivery of services on the principle of social marketing where the price realization from
Timeframe (a) (i) March 2007 (ii) March 2008 (iii) March 2008 [This short timeframe is because of BRGF, prolonged facilitation is required for real participatory plan which targets to cover around 300 GP by 2006-07, another 300 GP by 2007-08 and all GPs of 6 most backward districts by 2008-09 and thereby leading to preparation of PS plan and ZP plan as well. From the last quarter of 2007-08 the programme will be spread over to 6 more districts and it is targeted to cover 300 GPs in those districts by 2008-09] (a) March 2010
Roadmap for the Panchayats in West Bengal
delivery on the principle of social marketing the people to be decided in consultation with the Panchayats and the quality of the services to be monitored and its access to be ensured to all concerned Implementing Strategy Key Issues 5. Augmenting Panchayat finance and improving financial management Improving (a) collection of own source revenue (OSR) by the Panchayats (b) State Government Level Activity Responsibility Initiating self(a) PRDD, declaration form for DPRD, assessment of tax along District with capacity building and Block of the Panchayat level functionaries on the officials same (b) PRDD, Advocacy and DPRD, facilitation so that all SIPRD, Panchayat bodies adopt District Bye-Law for and Block themselves and collect level rate, fee etc. by using all officials clauses of the Bye-Law (c) PRDD, Capacity building for DPRD, identification (and SIPRD, assessment for GP) of District all potential sources of and Block non-tax revenue and level collecting the same officials Advocacy for utilising (d) PRDD, OSR for development DPRD, of that area District and Block level officials PRI Levels Timeframe Activity Responsibility Timeframe (a) Process (a) Understanding the (a) Artha O (a) Finalisation of initiated, process, reaching the Parikalpana assessment list initial forms to all the US of GP by March 2007 capacity households, getting the with the help and tax building self-declared forms back of GUS collection completed from the households, (b) Artha O throughout (b) Ongoing publishing draft Parikalpana 2007-08 process assessment list in the GP US of GP, (b) Adopting by (c) Ongoing office asking objections Artha, March 2008, process from people, finalising the Sanstha, collection by (d) Ongoing list and collecting tax with Unnayan O using all the process help of tax collectors and Parikalpana clauses is GUS SS of PS and expected by (b) Adopting Bye-Law by all ZP March 2009 GP, PS and ZP and (c) Same as (b) (c) Identification collecting revenue using (d) Same as (b) (assessment for all clauses GP) by March (c) Identification (and 2008, annual assessment for GP) of all collection is a potential sources of noncontinuous tax revenue and collecting process the same with maximum (d) Continuous efficiency process (d) Utilising OSR for the development of the area so that further collection is enhanced (a) Adapting the new (a) Artha O (a) Within three (a) Ongoing
Improvement (a) Computerisation of all (a) PRDD,
Roadmap for the Panchayats in West Bengal
of budgetary control and financial management accounting and financial management related activities, putting appropriate system for monitoring financial performance in place and organizing training of all the functionaries DPRD, SIPRD, District and Block level officials process, significant progress is expected by the end of 11th FYP period systems quickly and following the systems for better accounting procedure, budgetary control and financial management Parikalpana US of GP, Artha, Sanstha, Unnayan O Parikalpana SS of PS and ZP months from the launching of the system at the particular Panchayat
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility 5. Augmenting Improvement of (b) Monitoring financial (b) PRDD (b) Ongoing (b) (i) Monitoring (b) (i) Artha, Panchayat budgetary performance of all ZPs financial performance Sanstha, finance and control and every month of all PSs every month Unnayan O improving financial (ii) Monitoring Parikalpana financial management financial performance SS of ZP management of all GPs every month (ii) Same SS of PS Key Issues Improvement of (a) Introducing new GP (a) PRDD, (a) May accounting Accounts Rule based on DPRD, 2007 practices and double entry system and SIPRD, (b) March computerisation related capacity building District 2008 of accounts to all concerned and Block (c) March (b) Computerisation of level 2010 accounts of all PSs along officials with necessary capacity (b) Same as building (a) (c) Computerisation of (c) Same as accounts of all GPs along (a) with necessary capacity building Internal audit of (a) Filling up the vacant posts (a) PRDD, Panchayat of the Panchayat Audit DPRD accounts and Accounts Officer (b) PRDD, (PAAO), Samiti Audit & DPRD (a) March 2009 (b) March 2008 (a) Adapting to new GP Accounts Rule quickly and implementing it (b) Adapting to computerised accounting system quickly and discontinuance of manual accounting (c) Adapting to computerised accounting system quickly and stopping manual accounting (a) No activity (b) No activity (a) The GP as a whole in general and the employees in particular (b) The PS as a whole and the employees in particular (c) The GP as a whole in general and the employees in particular (a) No responsibility (b) No responsibility
Timeframe (b) Regular ity is expected by (i) March 2008 (ii) March 2009 (a) April 2008 (b) April 2009 (c) April 2011
(a) No timeframe (b) No timeframe
Roadmap for the Panchayats in West Bengal
Accounts Officer (SAAO) and the Parishad Audit and Accounts Officers (b) Establishing Audit & Accounts Cell at DPRD for proper monitoring, follow up and training of all personnel concerned on accounts and related matters of financial management Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 5. Augmenting Social audit (a) Advocacy, campaign, (a) PRDD, (a) Ongoing (a) (i) Placing all the specified (a) (i) GP as a (a) (i) & (ii) Panchayat monitoring and adopting other DPRD, process information of GP in Gram whole, Ongoing finance and measures so that all the SIPRD, Sansad and Gram Sabha Artha O process, improving specified information are District and meetings, displaying in the Parikalthe financial disseminated to people to Block level notice board or in wall pana US expected management ensure informed and effective officials painting, sending to library in condusocial auditing or making available to all particular cive person coming to office to (ii) PS/ZP atmossee it as a phere (ii) Placing all the specified whole, should be information of PS/ZP in Artha, reached Block/Zilla Sansad meeting, Sanstha, by March displaying in the notice Unnayan 2008 board or in wall painting, O Parikalsending to library or making pana SS in available to all person particular coming to office to see it 6. Employees (a) Ensuring that the Panchayats (a) Administra- (a) March (a) Utilising the services of (a) Artha, (a) Process Functionaries of the at every level get the services tive 2009 different types of employees Sanstha, going on of the Panchayats of own employees, formally departments with utmost efficiency so as Unnayan Panchayats and deputed employees, of State to ensure maximum level of O Parikalbuilding their government employees whose Government service delivery to the pana SS of capacities services have been placed for whose people ZP/PS and the functional control to be activities are Artha O Key Issues
Roadmap for the Panchayats in West Bengal
exercised by the Panchayats when administrative is retained by the departments concerned as well as professional service providers or trained paraprofessionals to bear the work load of the Panchayats setting up a mechanism for the Panchayat bodies to have adequate functionaries with reasonable accountability linked with the Panchayats Parikalpana US of GP in particular and the respective bodies in general
Key Issues 6. Capacity (a) Functionaries building of of the employees Panchayats & other and building functionaries their capacities of Panchayats (b)
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe Training all new recruits on (a) PRDD, (a) Ongoing (a) Ensuring that all the (a) Respective (a) Commenthe basic skills required at that DPRD, process to employees attend the Panchayat cing from the level as well as to orient them SIPRD, be training, utilisation of body as a next of the for working as an employee of ETCs, strengthen their acquired whole and training the local bodies, preferably District -ed after knowledge for good particularly programme within three months from their and Block March practices as also Artha, Sanstha, (b) Same as (a) joining the services level 2008 assessing their Unnayan O (c) Same as (a) Ensuring in-service training as officials (b) Ongoing acquired competency Parikalpana SS (d) No per felt need and reorientation (b) Same as process level after the training of ZP/PS and timeframe of all employees once in every (a) (c) A and giving feed back Artha O (e) Within one five year (c) Same as continuous to PRDD through Parikalpana month of the Imparting basic training to all (a) process Block and District US of GP training the members elected for the (d) Same as after every level officials (b) Same as (a) programme first time within six months of (a) Panchayat (b) Same as (a) (c) Same as (a) (f) No their election using the (e) Same as election (c) Ensuring that all the (d) No timeframe distance learning mode as well (a) (d) Same as members attend the responsibility as class room based training (f) SIRPD, (c) training, assessing (e) Sabhadhipati/ Providing appropriate training Training (e) Same as their acquired Sahakari to the important office bearers & NGO (c) competency level Sabhadhipati like Sabhapati, Sahakari Cell and (f) March after the training and and Sabhapati/ Sabhapati, Pradhan, UpaSRD Cell 2008 giving feed back to Sahakari Pradhan within six months of of PRDD, PRDD Sabhapati for their assuming office DPRD and (d) No activity KarmadhyaProviding appropriate training ETCs (e) Ensuring that all kshas and
Roadmap for the Panchayats in West Bengal
to Karmadhyakshas of SS of ZP and PS and Sanchalaks of US of GP within one year of their assuming office (f) Reviewing training materials (printed and electronic) to identifying further requirement particularly in the context of distant learning using the recently installed satellite based facilities (Loka Shiksha Sanchar) Karmadhyakshas/San Pradhan/ Upachalaks attend Pradhan for training, assessing Sanchalaks their acquired (f) No competency level responsibility after the training and giving feed back to PRDD (f) No activity
Implementing Strategy Key Issues 6. Functionaries Capacity (g) of the Panchayats building of and building their employees & capacities other functionaries (h) of Panchayats (i) State Government Level Activity Responsibility Arranging exposure visits (g) PRDD, of Panchayat functionaries District for peer learning and and Block sharing of best practices level Establishing Training Cell officials in each ZP to tie up with (h) PRDD SIPRD and ETCs to meet (i) PRDD, training requirement DPRD, Developing suitable SIPRD, training infrastructure at ETCs and the districts for residential District training, developing level infrastructure of officials WBCADC for providing (j) PRDD, livelihood related training, District developing local resource and Block pool of trainers in various level disciplines in each district officials Ensuring that each Block (k) PRDD, office have suitable Roopkala training infrastructure for Kendro, non-residential training District Developing 2-3 resource and Block persons in each Block to level Timeframe (g) A (g) continuous process from 2009 (h) March (h) 2008 (i) March 2008 (j) December 2007 (i) (k) December 2007 (l) March 2009 (m) At present, support is (j) being provided to 442 (k) GPs of 8 most backward (l) districts, the same Activity Selecting appropriate persons, and sharing their experiences after the exposure visit Providing necessary establishment support along with regular monitoring the activities of the Cell Providing necessary support for infrastructure development and in selecting persons for the resource pool Monitoring infrastructure developed Facilitating the process of selecting resource persons Providing necessary support for infrastructure PRI Levels Responsibility Timeframe (g) Artha, (g) A continuous Sanstha, process from Unnayan O 2009 Parikalpana SS (h) A continuous of ZP/PS and process Artha O during and Parikalpana after setting US of GP up the Cell (h) Artha, (i) As and when Sanstha, required by Unnayan O the State Parikalpana SS Government of ZP (j) December (i) Artha, 2007 Sanstha, (k) Ongoing Unnayan O process Parikalpana SS making the and Purtakarya set-up fully O Paribahan functional by SS of ZP December (j) Artha, 2007 Sanstha, (l) March 2009 Unnayan O (m) A continuous Parikalpana SS process
Roadmap for the Panchayats in West Bengal
facilitate distance learning officials through Loka Shiksha (l) PRDD, Sanchar District (l) Developing one classroom and Block for training in each GP level (m) Providing handholding officials support to the GP (m) PRDD, functionaries (of those District GPs who are not and Block performing at per other level GPs) at their office by officials mobile facilitators will be development scaled up (m) Creating enabling to cover environment at the all the GPs GP office on the day (where it at which the team is providing support necessary) along with ensuring by March that all concerned 2008 attend the interactive session of ZP and PS (k) Artha, Sanstha, Unnayan O Parikalpana SS (l) Shilpa O Parikathama US of GP (m) Artha O Parikalpana US of GP where this handholding support is being provided
Implementing Strategy State Government Level Activity Responsibility Timeframe 6. Capacity (n) PRDD for (n) Radio (n) (n) Wider dissemination of Functionaries building of Radio programme knowledge about the roles and of the employees & programme, ongoing and functions of the Panchayats for Panchayats and other PRDD, CSC to enabling the citizen to participate building their functionaries District and follow more effectively through capacities of Panchayats Block level National Econtinuing Panchayat O officials for Governance Gramonnayaner Asor (an CSC Plan (NEGP) interactive Radio programme broadcasted through Kolkata – A of AIR on every Saturday from 8 p.m. to 9 p.m.) and setting up Citizens’ Service Centres (CSC) in every GP and PS Strengthening (a) Strengthening SIPRD as per (a) PRDD, (a) March 2008 (a) SIPRD, the requirement to meet the capacity SIRPD (b) March 2007 (b) ETCs building need as specified (b) PRDD, (c) Expected by (c) throughout this map District level March 2010 (b) Strengthening (infrastructure officials including computer lab for (c) PRDD on computer training) the ETCs as putting in well as the facility at Rajarhat to place take up courses available (c) Developing a specialized training resources Key Issues
PRI Levels Activity Responsibility Timeframe Intimating (n) All elected (n) Continuous the representatives process community and employees about the of three tier Radio Panchayats programme and CSC and asking them to participate or to take access
No activity No activity No activity
(a) No (a) No responsibility timeframe (b) No (b) No responsibility timeframe (c) No (c) No responsibility timeframe
Roadmap for the Panchayats in West Bengal
institute to deal with training requirement of the SHGs (a) Developing websites of all Zilla (a) NIC with the (a) March 2008 (a) Parishads having PS and GP help of (b) March 2008 level information PRDD, (b) Bringing all the PS under intraDistrict and mail facility through Block level WEBSWAN officials (b) PRDD, WEBSWAN (b)
Use of Information and Communication Technology (ICT) for efficient functioning
Taking (a) active initiative for website development (b) with the help of NIC No activity
Artha, Sanstha, (a) March 2008 Unnayan O (b) No Parikalpana SS timeframe of ZP No responsibility
Implementing Strategy State Government Level PRI Levels Activity Responsibility Timeframe Activity Responsibility Timeframe 6. Functionaries of Use of (c) Establishing (c) PRDD, (c) Following (c) No activity (c) No (c) No the Panchayats and Information and connectivity with all Service setting up of (d) Procuring responsibility timeframe building their Communication GP through the service providers of CSC as per the fax (d) Artha O (d) March capacities Technology providers of CSC CSC NEGP machine Parikalpana 2008 (ICT) for (d) Providing faxing (d) PRDD, (d) March 2008 from US of GP Efficient facilities to all the GPs District and Twelfth Functioning for better exchange of Block level Finance information and easier officials Commission and timely collection of grant or reports from OSR Strengthening (a) Setting up one Audit & (a) PRDD, DPRD (a) March No activity (a) No (a) No the Directorate Accounts cell, one 2009 responsibility timeframe Office Fund Management cell, one Resource Mobilization cell, one Training cell and one Inspection cell in the directorate to give special emphasis in those areas Key Issues
Roadmap for the Panchayats in West Bengal
7. Harmonisation of Acts and Rules concerning functioning of the Panchayats Acts for which (a) 29 State Acts – (a) (i) PRDD (a) (i) September (a) No activity amendments are (i) Sending the (ii) Concerned 2007 proposed proposals to the administrative (ii) September concerned departments departments 2008 (ii) Preparing the Bills (iii) (iii) March for Amendment Concerned 2009 (iii) Finalisation of the administrative (iv) September Bills departments 2009 (iv) Decision of and Law Cabinet on the Bills and Deaperment enactment (iv) Cabinet (a) No responsibility (a) No timeframe
Key Issues 7. Harmonisation of Acts and Rules concerning functioning of the Panchayats Acts for which (b) amendments are proposed
Amendment of Panchayat Act / Rules
Implementing Strategy State Government Level Activity Responsibility Timeframe 4 Central Acts – (b) (i) PRDD (b) (i) September 2007 (i) Preparing the proposals (ii) Cabinet (ii) December 2007 (ii) Approval of the Cabinet (iii) PRDD (iii) March 2008 (iii) Sending the proposals or concerned (iv) As may be to the GOI as may be department desired by GOI approved by the Cabinet (iv) GOI (as (iv) Enacting the may be amendments desired by them) Amendment of the West (a) PRDD, Law (a) Bill by June 2007, Bengal Panchayat Act, 1973 Department, Cabinet approval by Framing the West Bengal Cabinet September 2007 and Panchayat (Gram Panchayat (b) PRDD, Law finalisation by Accounts, Audit and Department December 2007 Budget) Rules, 2007 (c) PRDD, Law (b) Drafting by March Framing the West Bengal Department 2007, finalisation by Panchayat (Panchayat (d) PRDD, Law May 2007 Samiti Administration) Department (c) Drafting by Rules, 2007 September 2007, Framing the West Bengal finalization by
PRI Levels Activity Responsibility (b) No (b) No activity responsibility
Timeframe (b) No timeframe
(a) No activity (b) No activity (c) No activity (d) No activity
(a) No responsibility (b) No responsibility (c) No responsibility (d) No responsibility
(a) No timeframe (b) No timeframe (c) No timeframe (d) No timeframe
Roadmap for the Panchayats in West Bengal
Panchayat (Zilla Parishad Administration) Rules, 2008 December 2007 (d) Drafting by March 2008, finalization by June 2008
Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the Constitution
Sthayee/ Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Corresponding Upa Samiti Departments concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Agriculture, (i) Krishi, Present 1) Fixing up target for each Panchayat 1) Fixing up target for each Gram Panchayat 1) Selecting or nominating beneficiaries (ii) Agriculture Sech O Functions Samiti for selection of beneficiaries for selection of beneficiaries 2) Organizing awareness camp and field Marketing, Samabay 2) Fixing up target for holding awareness 2) Fixing up target for holding awareness demonstration in consultation with (iii) CoS.S. / camp and campaign and monitor and camp and campaign and monitor and supervise ADO / SAO operation (i) Krishi O supervise the same, if necessary the same, if necessary 3) Identify and select farmers for (iv) Food and Prani 3) Involving the Sub-divisional Select venue and faculty for training 3) training Supplies Sampad Agricultural Officer and Specialist 4) Supervise and monitor training 4) Identify & select beneficiaries for (v) Sundarban Bikash Officers in the campaign, if necessary 5) Fix target for distribution of minikits / seeds distribution of minikits / seeds / bioAffairs U.S. 4) Initiating Block wise awareness / bio-fertilizer (at subsidized price) to Gram fertilizer / pesticides / farm machinery / campaign at the beginning of each crop Panchayats plant protection equipments season 6) Monitor proper and timely distribution 5) of Field-training and visit system 5) Sub-allot minikits/seeds/ bio-fertilizer Agricultural equipments on the basis 6) of Popularization of new varieties and (at subsidized price) to Panchayat Samitis technical possibilities and field situation package of practices through distribution for distribution among farmers 7) Integrated programme for cereal of Minikits. 6) Fix target for each Panchayat Samiti for development 7) Selection of farmers for the study distribution of Agricultural equipments 8) Seed supply and development – subsidized tours 7) Fix target in consideration of technical sale of quality seeds / seeds for green manuring 8) Selection of farmers' for new variety possibilities and field situation and Fertilizer and manure – making sale points, cultivation 9) monitor timely distribution balanced use of fertilizer and micronutrients, Distribution of certified seeds and 9) 8) Monitor & supervise Block wise Transport subsidy. minikits distribution of farmers’ old age pension. 10) Development of pulses (State plan and 10) Construction of pucca manure pits
Subjects in the Eleventh Schedule 1. Agriculture, including agricultural extension
Roadmap for the Panchayats in West Bengal
9) Distribute financial assistance under Centrally sponsored National Pulses 11) Promotional work for producing centrally sponsored programme for development Project) organic manure, green manure and bioinfrastructure development 11) Development of Oil seeds – supply of mini fertilizers 10) Const. & maintenance of Agricultural kits (State and Centrally Sponsored Seed 12) Field demonstration for transfer of Training Centres, Government Production programme)/ Seed village scheme technology and distribution of minikits Agricultural Farms and Seed Testing Demonstration center/ supply of nutrient 12) 13) Distribution of equipments viz, row Laboratory minikits seed drills and wheel hoe, hand sprayer, 11) Selection of hats, markets, link roads, 13) Development of sugar cane—nursery plot power sprayer etc. godowns etc for development demonstration, 14) Distribution of plant protection 12) Sanction of subsidy for improved 14) Development of Maize— Supply of equipment, Crop cutting experiment etc. storage structure, bullock cart, van improved seed minikits / training of farmers 15) Dry land / Rain fed crop rickshaw to small and marginal farmers 15) Development of Jute cultivation – supply of demonstration 13) District Level competition on the improved variety seeds, marketing support. 16) Demonstration centers of improved production of organic manure. 16) Monitor and supervise GP wise distribution seeds 14) Drought Prone Area Programme in 36 of farmers’ old age pension 17) Selection of Old aged farmers for Blocks – linked with the Water Shed Organizing credit support for farmers. 17) pension from Gram Sansads according to Development Programmes of P&RD Dept the norms
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Subjects in the Eleventh Schedule 1. Agriculture, including agricultural extension
Sthayee/ Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Corresponding Upa Samiti Departments concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Agriculture, (i) Krishi, Additional 15) Identifying the training need 18) Collect Agricultural data from all Gram 18) Send all agriculture related data and (ii) Agriculture Sech O Functions 16) Preparing action plan for enhancing Panchayats and forward to the District Office for special need or necessities to the ADO Marketing, Samabay skill and field demonstration and future use in training and skill upgradation 19) Collect data and jointly survey loss of (iii) CoS.S. / executing the same 19) Organize awareness camp with the support of crop and assist the Department in operation (i) Krishi O 17) Preparing action plan for information Gram Panchayat for maintenance of eco-system estimation of amount (iv) Food and Prani dissemination and motivation of farmers and reuse of implements/equipments/inputs 20) Collect soil for sample survey and Supplies Sampad and executing the same 20) Fix up GP wise Action Plan for crop organize awareness camp on this issue (v) Sundarban Bikash 18) Prepare Block wise Action Plan insurance and Kishan Credit Card distribution 21) Estimate need-based requirement of Affairs U.S. involving Agricultural Officers working 21) Prepare Action Plan for quality seed seeds at Sub-division level and monitor & production in Agri-farm 22) Take active role in production of supervise crop insurance and Kishan Take action for supply of Agri-labour in quality seeds and their distribution 22) Credit Card distribution Agri-farm 23) Collect data on use of seeds and their 19) Prepare Action Plan for quality seed 23) Maintain quality of seeds impact production 24) Arrange for proper utilization of seeds in the 24) Allocation of space in cold storage 20) Take initiative for supply and locality 25) Issuing recommendation for setting up utilization of human resources in Agri25) Settlement of dispute between owners and new cold storage farm hirers regarding allocation of space in cold 26) Identification of hats, markets, link 21) Periodical supervision of cold storage storage roads, godowns etc for development 22) Inspection of ware houses 26) Assessment of need for further cold storage, 27) Awareness campaign among farmers 23) Supervision & monitoring of Hat / identification of opportunities and execution of for using cold storage markets in Panchayat areas scheme 28) Collection of raw data on market
Roadmap for the Panchayats in West Bengal
24) Circulation of market information 27) Monitoring sale prices of commodities in prices to State Govt. & other organizations rural hats and markets 29) Circulation of market information to 28) Circulation of market information to ZP & Panchayat Samiti other organizations Identification of benami lands, 1) Distribution of vested lands 1) Identification of big land owners monitor vesting & distribution of vested Identification of big land owners & vesting 2) 2) of Identification of cultivators for lands ceiling surplus land recording names as Bargadars Short term settlement of River- Identify Bargadars for recording 3) 3) Identification of beneficiary for fisheries, Ferries and Jalkars, 4) Solution of harvesting & sowing disputes distribution of vested agri-land Settlement of sowing and harvesting Exemption of land revenue for eligible raiyats 4) Exemption of land revenue to eligible 5) disputes, 6) Identify eligible homestead beneficiaries under raiyats including issue of certificates Steps for increased collection of Acquisition of Homestead Lands Act 1975 5) Identify cases of dispute during sowing Royalties and Cess on mines-minerals, 7) Protection of tribal raiyats & share croppers or harvesting Utilization and maintenance 8) Joint survey of char lands vested in the State 6) Initiate legal action against illegal felling of Khasmahal lands, 9) Preventing operation of illegal brick fields & of trees Survey and vesting of char land, filling of tanks / water bodies 7) Identify illegal brick fields, queries & Legal steps against illegal brickfields illegal conversion of land and filling of tanks / water bodies. 8) To initiate legal action against in respect Protecting interest of tribal raiyats and of above cases share croppers 9) Inspect & report illegal filling up tanks / water bodies
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2. Land improvement, implementation of land reforms, land consolidation and soil conservation
(i) Land and Land Reforms, (ii) Panchayats and Rural Development (iii) Agriculture (iv) Irrigation and Waterways
(i) Krishi, Present 1) Sech O Functions Samabaya S.S., 2) (ii) Bon O Bhumi 3) Sanskar S.S. / 4) (i) Krishi O Prani 5) Sampad Bikash 6) U.S. 7) 8)
Subjects in the Eleventh Schedule 2. Land improvement, implementation of land reforms, land consolidation and soil conservation
Sthayee/ Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Corresponding Upa Samiti Departments concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Land and (i) Krishi, Additional 9) Management of Ferry / Fishery 10) Supervision of Barga recording 10) Display of notice containing names of Land Reforms, Sech O Functions / Tanks transferred to ZP 11) Management of Ferry / Fishery / Tanks Bargadars cultivating land in that mouza (ii) Panchayats Samabaya 10) Co-ordination in collection transferred to PS 11) Management of Ferry / Fishery / Tanks and Rural S.S., efforts of land revenue and Cess 12) Pre-distribution survey of undistributed agri- transferred to GP Development (ii) Bon O in peak collection season land 12) Identification of vulnerable areas relating to (iii) Agriculture Bhumi 11) To communicate opinion Preparation of a priority list of beneficiaries cultivation & harvesting dispute 13) (iv) Irrigation Sanskar regarding Amalgamation 14) Performing function of Land Reforms Creation of public awareness regarding or 13) and Waterways S.S. / splitting up of mouzas Advisory Committee at Block level payment of revenue and Cess through suitable (i) Krishi O 12) Suggesting name of ‘char’ Distribution of Patta 15) leaflets and other means of publicity Prani land 16) Organization of collection camp for 14) Identification of beneficiaries for institutional Sampad 13) Management of road side land collection of land revenue and Cess during peak finance to Bargadars and Patta holders Bikash of roads maintained by the State collection season, i.e., the Bengali months 15) Assistance in filling up application forms by of U.S. Govt. through the ZP Poush, Magh, Falgun and Chaitra beneficiaries (Bargadars and Patta holders) 14) Supervision of the functions 17) Fixing target of institutional finance 16) To attend loan disbursement programme to of in GP and PS relating to land Panchayat Samiti area to Bargadars and Bargadars and Patta holders matters Pattadars in consultation with BLBC (Block 17) To communicate opinion regarding 15) Settlement of different types of Level Bankers’ Co-ordination Committee) Amalgamation or splitting up of mouzas vested or part-vested fisheries18) Supply of application forms to GPs for /
Roadmap for the Panchayats in West Bengal
tanks / water bodies institutional finance to Bargadars and Patta holders 19) Drawing up programme for disbursement of loan to Bargadars and Patta holders in consultation with concerned bank 20) To communicate opinion regarding Amalgamation or splitting up of mouzas Drilling and installation 1) of Construction of Jorh Bundh and Sech Bundh 1) Deep TWs / Mini Deep TWs above 2 lakh rupees Electrification of DTWs 2) Revival of traditional water sources 2) Extension of canal line 3) Installation of dug wells Installation of River Lift 4) Construction of field channel Irrigation (Major / Minor) 5) Site selection of schemes above 2 lakh rupees 3) Policy decisions and sub- Seeking technical vetting of Executive 6) allotment of fund Engineers (AI / AM) through ZP for MI schemes 4) beyond the competence of Panchayat Samitis
3. Minor irrigation, water management and watershed development
(i) Water Investigation and Development (ii) Panchayats and Rural Development (iii) Agriculture (iv) Sundarban Affairs
(i) Krishi, Present 1) Sech O Functions Samabaya 2) S.S. / 3) (i) Krishi O 4) Prani Sampad 5) Bikash U.S.
Construction of Jorh Bundh and Sech Bundh below 2 lakh rupees Management of all DTWs / Mini DTWs / RLIs and installations through Beneficiary Committee Formation of Watershed Development Teams / User Groups Identification of beneficiaries under various programmes for MI Projects through Gram Sansad 5) Site selection of schemes upto 2 lakh rupees 6) Construction of percolation tanks, field channels within the GP Additional 6) Scrutiny of the schemes Joint supervision and monitoring of progress 7) 7) Encouraging farmers for on farm Functions received from GP / PSs and of the schemes development and development of field channels / recommendation to DSSC for delivery system for proper utilisation of water final selection 7) Joint supervision, monitoring and review of the progress
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Subjects in the Eleventh Schedule 3. Minor irrigation, water management and watershed development
Sthayee/ Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Corresponding Upa Samiti Departments concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Water (i) Krishi, Additional 8) Co-ordination between various 8) Organizing farm demonstration for 8) Maintaining MI schemes, collecting water Investigation Sech O Functions departments and agencies funding modern water management techniques & charges through User Committee for new and Samabaya projects conservation of water in field projects handed over to PRI Development S.S. / 9) Propagation of modern water (ii) Panchayats (i) Krishi O management & delivery methods and Rural Prani Development Sampad (iii) Agriculture Bikash (iv) Sundarban U.S. Affairs
Roadmap for the Panchayats in West Bengal
4. Animal husbandry, dairying and poultry (i) Animal Resources Development (ii) Panchayats and Rural Development (i) Matsya Present 1) Fixing up target for each Panchayat 1) O Prani Functions Samiti for selection of beneficiaries Sampad 2) Identification of training need 2) of Bikash S.S. farmers / (i) Krishi 3) Selection of trainees for training 3) O Prani program at dist. Level 4) Sampad 4) Allotment of fund to Panchayat 5) Bikash Samitis for training 6) U.S. 5) Distribution of improved variety 7) of livestock to Blocks 6) Drawing up action plan of Vaccination program and Artificial 8) Insemination program for the Dist 7) Policy decision on execution of work 9) and release of fund Fixing up target for each Gram 1) Identification and selection of beneficiaries Panchayat for selection of beneficiaries 2) Initiate Animal Health Campaign in Selection of trainees for Block level villages for awareness generation training program 3) Organization of self-help groups Selection of venue for GP level training 4) Identification of training need and selection Supervision of GP level training of trainees for GP level training program Celebration of PRANI SAPTAHA 5) Organization of health camp at villages on Release of fund to Gram Panchayats ARD issues Collection of improved variety 6) of Organization of awareness camp on livestock from Dist. Farm and determining preventive measures scale of distribution to GPs 7) Celebration of PRANI SAPTAHA Monitoring of the situation to prevent 8) Distribution of improved variety birds / out break of epidemic small animals to farmers Monitoring of Artificial Insemination 9) Providing facility of hatching program; identifying problem areas and Vaccination of animals against epidemic 10) covering gap 11) Execution of Artificial Insemination with the help of Prani Bandhu at fixed price 12) Assessment of need for infrastructure development 13) Mobilizing farmers for actual vaccination of cattle and buffalo Nil Nil
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Additional 8) Preparation and analysis of dist. Level Functions data base
Subjects in the Eleventh Schedule
Sthayee/ Corresponding Upa Samiti Departments concerned
Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Division Zilla Parishad Panchayat Samiti Gram Panchayat
Roadmap for the Panchayats in West Bengal
5. Fisheries (i) Fisheries (i) Matsya Present 1) Development of Aqua-culture and 1) Organization of training 1) Selection of farmers and supervision of (ii) Backward O Prani Functions planning, monitoring, supervision, Selection of training venue 2) works and arranging for long-term lease of Classes Welfare Sampad evaluation of the activities. 3) Liaison with NGO for training ponds. Bikash S.S. 2) Action plan for all sorts of training and 4) Intensive culture in perennial ponds.2) Motivating farmers for the prawn culture. / (i) Krishi awareness camp in consultation with the 5) Training to the fish farmers. 3) Identification & selection of beneficiaries O Prani Asstt. Director of Fisheries 6) Tie up with schemes of BCW Deptt. for GP or village level training Sampad 3) Train-up fish farmers in inland fisheries 7) Marketing of produce etc. 4) Holding awareness camp Bikash sector and construction /maintenance 8) of Excavation of ponds to the extent of 1 5) Arranging for training activities. U.S. district level training centers ft, 2 ft, 1 meter and pisciculture therein. 6) Distribution of minikits to the fish farmers 4) State grant to primary/ Central 9) Prawn culture in freshwater ponds and according to the needs. Fishermen's Co-op. Societies to avail of newly constructed tanks deepening up 7) to Consultation to Panchayat Samiti in NCDC assistance – Development of Beel 2.5 meters. selecting such Societies for Grants. fisheries. 10) Supply of Minikits, finger-lings to the Selection of fisher women for such 8) 5) Socio economic development of Tribal farmers’ Co-op. Societies. trainings. people through Pisciculture Scheme and 11) Selection of such societies 9) by in Air breathing fish culture (Magur and providing Dwelling houses. consultation with the GPs Singi) and selection of farmers. 6) Group Personal Accident Insurance for 12) Training of Fisher women in net 10) Identification of SC/ST beneficiaries for active Fishermen – Co ordination with making, repairing and ancillary skill dwelling houses. BENFISH. development of fishermen families 11) Developing SHGs of fisher-men / women 7) Pilot project for development 13) Promotion of Integrated Fish Farming Selection of beneficiaries for FFDA / of 12) Fisheries in the Hill areas of the State. – Duck cum fishery/ pig cum fishery – BFDA 8) Setting up District level Laboratories for Training and Extension activities. conducting Research activities. 14) Poly culture of prawn with finfish and 9) Development of market including Retail monoculture of prawn. outlets Additional 10) Release of fund for training 15) Approval of beneficiaries and ponds / 13) Identification of fisher women belonging to Functions 11) Preparation of Training Need open cast pit for pisciculture Co-operative Societies Assessment in consultation with the Asstt. 16) Approval of derelict / semi-derelict 14) Identification & selection of derelict / semiDirector of Fisheries tanks for pisciculture derelict tanks 12) Supervision of training 17) Handing over tanks to Co-operative 15) Netting and harvesting 13) Allocation of HARI, Cast net and Drag Societies or Groups on lease for 16) Collection of sample (soil and water) for net, fingerlings, lime and vending inputs for management and farming testing Blocks 18) Selection of sites for liberation 17) Supply of lime and minikits of fingerlings in river 18) Identification and selection of groups 19) Supervision of works related to /beneficiaries for distribution of HARI, Cast selection of beneficiaries for allocation net and Drag net, fingerlings, lime and of HARI, Cast net and Drag net, vending inputs fingerlings, lime and vending inputs 19) Delivery of fingerlings and other inputs
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Roadmap for the Panchayats in West Bengal
Subjects in Corresponding the Eleventh Departments Schedule 6. Social (i) Panchayats forestry and and Rural farm forestry Development Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Bon O Present 1) Fixing up target for each Panchayat 1) Fixing up target for each Gram 1) Identification and selection of beneficiaries Bhumi Functions Samiti for selection of beneficiaries Panchayat for selection 2) of Awareness generation at village Sanskar S.S. / 2) Coastal Belt Plantation to mitigate the beneficiaries 3) SHG formation (i) Krishi O fury of cyclones along the coast – new 4) Selection of areas under soil erosion and 2) Coordination, planning and Prani Sampad plantation, maintenance of older monitoring involving prospective pursuing villagers in aforestation. Bikash U.S. plantations. 5) Generate awareness of people and arrange beneficiaries. 3) For overall development of Forest cover 3) Organize Economic development environmental education at the GP level. and Socio-economic condition through Programme, Environmental awareness 6) Arrangement for socials forestry and farm forestry – planning / execution and and education campaign. forestry, their plantation and maintenance. monitoring. 4) Developing nursery at Panchayat 4) Generating rural employment through Samiti level for supply of saplings to forestry and related activities to popularize the Gram Panchayats. the use of eco-friendly inputs like bio5) Plantation of trees, distribution of fertilizer for enhancement of soil fertility. saplings Additional 5) Preparation of Action plan for (a) 6) Functions increasing forest coverage through aforestation and strip plantation (b) development of fruit garden and saplings nursery, supervision and monitoring of works 6) Preparation of Action plan for construction of village road, earthen dam, excavation of well, installation of Tube Well in forest village; supervision and monitoring of works (i) Bon O Present 1) Planning for increasing forest cover and 1) Bhumi Functions improving overall ecological condition. Sanskar S.S. / 2) Economic development strategy in and (i) Artha O around protected areas as well as villages in Parikalpana the periphery of the protected areas. U.S. 3) Promoting JFM with people’s participation, offering timber, non- timber forest produce and value added products at reasonable prices. Additional 4) Preparation of Action plan for income 2) Functions generating activities for villagers viz., distribution of Sal-leaf-plate making 3) machine / sewing machine / chicks / ducklings/ fingerlings / minikits / saplings of fruit trees in forest villages, supervision and monitoring of works Execution of Infrastructural works 7) Selection of Workers / beneficiaries in (construction of village road, earthen consultation with Forest Protection Committee dam, excavation of well, installation 8) of Selection of Workers / beneficiaries in Tube Well in forest village) consultation with Forest Protection committee for construction of village road, earthen dam, excavation of well, installation of Tube Well in forest village
7. Minor (i) Forest forest produce
Constitution of Joint Forest Selection of prospective beneficiaries and 1) Management and Forest Protection mobilization of SHGs in forest area. Committee to contain illicit collection Community mobilization through Forest 2) of fuel wood, fodder and small timber. Management Committees/ SHGs in the local areas. 3) Distribution of minor forest products among villagers and members of Forest Protection Committee. Distribution of inputs for micro4) Identification enterprise activities Providing assistance for income generating activities of income generating
Roadmap for the Panchayats in West Bengal
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Subjects in the Eleventh Schedule 8. Small scale industries, including food processing industries
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Cottage and (i) Khudra Present 1) Establish and identify Training Select beneficiaries for Training or Skill 1) 1) Identification of artisans for skill up Small Scale Shilpa, Functions Centers for Skill Development. development and nominate them in training gradation training Industries Bidyut O 2) Allocate and sanction funds for institutes, arrange for master craftsmen 2)/ Assisting in Distribution of raw material, (ii) Food Achiracharit Training and stipend to the trainees. women. equipments etc. Processing Shakti S.S. / 3) Identify appropriate technologies and Pay stipend to the beneficiaries and 2) 3) Identification of beneficiaries for old age Industries and (i) Shilpa O arrange for their transfer to the honorarium / training cost to the trainers. pension, financial support / credit under Horticulture Parikathama workers. 3) Transfer or upgradation of technology in various programmes. (iii) Agriculture U.S. 4) Tie up arrangements for marketing different areas of production. 4) Assistance to the KVIC / Bank in the Marketing of the products through Government 4) Supply of raw material, equipment and recovery of loan. and non-government marketing other inputs to the beneficiary workers. agencies. 5) To encourage artisans’ cooperative for production and marketing of products. 6) Organizing Entrepreneur Development Programmes. 7) Co-ordination between entrepreneurs and financial institutions for credit linkage Additional 8) Assessment of training need 5) Selection of trainees / venue for skill dev. 5) Identification of training need for skill Functions 9) Organization of skill development training program run by NGO dev. training Training 6) Supervision of training 6) Organization of awareness camp at GP 10) Organization of awareness camp 7) at Organization of awareness camp at Block level Dist. Level level 7) Motivation of rural artisans 11) Organization of Handicraft 8) Conducting wide publicity for competition 8) Identification of micro-enterprise / competition at Dist. Level 9) Selection of micro-enterprise / entrepreneurs 12) Action plan for development of entrepreneurs 9) Group formation & selection of activities micro-enterprise / entrepreneurs 10) Developing micro enterprise / self 10) Selection of Artisans for fairs / melas 13) Supervision and organization of enterprise with bank credit outside the district or state training program (food processing, 11) Selection of Artisans for fairs / melas 11) Awareness generation and wide publicity technical operation of cold storage, within the district 12) Organizing demonstration program (food better storing of potato) at Dist. Level 12) Promotion of bio-gas plant processing, better storing of potato) at 13) Organizing demonstration program (food village level and linkage with SHG processing, better storing of potato) at Block 13) Identification & selection of trainees level (food processing, better storing of potato) 14) Supervision of GP level training (food processing, better storing of potato) Corresponding Departments
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Roadmap for the Panchayats in West Bengal
Subjects in Corresponding the Eleventh Departments Schedule 9. Khadi, (i) Cottage and village and Small Scale cottage Industries industries
10. Rural housing
(i) Panchayats and Rural Development (ii) Fisheries
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Khudra Present 1) Establish and identify Training Select beneficiaries for Training or Skill 1) 1) Identification of artisans for skill up Shilpa, Functions Centers for Skill Development. development and nominate them in training gradation training Bidyut O 2) Allocate and sanction funds for institutes, arrange for master craftsmen 2)/ Assist in Distribution of raw material, Achiracharit Training and stipend to the trainees. women. equipments etc. Shakti S.S. / 3) Identify appropriate technologies and Pay stipend to the beneficiaries and 2) 3) Site selection for construction of (i) Shilpa O arrange for their transfer to the honorarium / training cost to the trainers. common work shed and market complex. Parikathama workers. 3) Transfer or up gradation of technology 4) in Identification of beneficiaries for old age U.S. 4) Tie up arrangements for marketing different areas of production. pension, financial support / credit under of the products through Government 4) Supply of raw material, equipment and various programmes. and non-government marketing other inputs to the beneficiary workers. 5) Assistance to the KVIC / Bank in the agencies. 5) Construction of common work sheds, recovery of loan. 5) To encourage artisans’ cooperative market complexes. 6) Formation of SHGs for artisans. for production and marketing 6) of Organizing Cooperatives / Federation for products. production and marketing of the products. 6) Organizing Entrepreneur Development Programmes. 7) Co-ordination between entrepreneurs and financial institutions for credit linkage Additional 8) Assessment of training need 7) Selection of trainees / venue for skill dev. 7) Identification of training need for skill Functions 9) Organization of skill dev. Training training program run by NGO dev. training 10) Organization of awareness camp 8) at Supervision of training 8) Organization of awareness camp at GP Dist. Level 9) Organization of awareness camp at Block level 11) Organization of Handicraft level 9) Motivation of rural artisans competition at Dist. Level 10) Conducting wide publicity for competition 10) Identification of micro-enterprise / 12) Action plan for development 11) Selection of of micro-enterprise / entrepreneurs micro-enterprise / entrepreneurs entrepreneurs 11) Group formation & selection of activities 12) Developing micro enterprise / self 12) Selection of Artisans for fairs / melas enterprise with bank credit outside the district or state 13) Selection of Artisans for fairs / melas 13) Awareness generation and wide publicity within the district (i) Purta, Present 1) Overall supervision and monitoring Consolidation of GP level plans, 1) 1) Preparation of list of prospective Karya O Functions of construction of houses and monitoring and supervision. beneficiaries from the Gram Sansads. Paribahan occupation of housing units. 2) Assignment of priority and preparation S.S. 2) Release of fund to Gram of a Master List for the entire Gram (ii) Matsya O Panchayats. Panchayat. Prani Sampad 3) Transmission to Panchayat Samiti.
Roadmap for the Panchayats in West Bengal
Bikash S.S. / 4) Release of fund to beneficiary for (i) Shilpa O construction of house. Parikathama Additional 3) Monitoring and supervising Monitoring and supervising construction 5) 2) of Identification of beneficiaries and places U.S. Functions construction of Cluster housing with Cluster housing with Community Hall for for construction of Cluster housing with Community Hall for fishermen fishermen Community Hall for fishermen
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Subjects in Corresponding the Eleventh Departments Schedule 11. Drinking (i) Public Health water Engineering (ii) Panchayats and Rural Development (iii) Sundarban Affairs
12. Fuel and fodder
(i) Forest (ii) Animal Resources Development
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Present 1) Prioritization of the areas requiring 1) Selection of areas requiring piped water 1) Identification of areas requiring piped Janasasthya Functions piped water and sending proposals to supply in consultation with Gram Panchayats. water supply. O Paribesh the PHE Dept. 2) Selection of sites for Rig bored TW and 2) Identification of sites for Rig bored TW S.S. / 2) Identify spot sources for Rig bored Ordinary TW. and Ordinary TW. (i) Shiksha O Tube well and execution through PHE 3) Sinking of Ordinary TW. 3) Construction of wells, tanks, Tube Wells Janasasthya machinery. 4) Seeking technical approval from Zilla (Ordinary Hand Pump) U.S. 3) Maintenance of Laboratories to Parishad for projects beyond the competence Maintenance of wells, tanks, Tube 4) reduce Arsenic contamination of of Panchayat Samitis Wells. drinking water in identified districts. 5) Execution of schemes (DTW / Mark-II / 5) Arrangement for water testing. 4) Execution of schemes beyond the Tara Hand Pump) beyond the competence 6) of Reporting about Arsenic contamination competence of Panchayat Samitis Gram Panchayats of drinking water. 5) Technical approval of schemes Monitoring and supervising progress and 6) 7) Periodical chlorination of open wells and beyond the competence of Panchayat quality of works disinfection of Tube wells Samitis 7) Maintaining big water supply schemes Reporting progress of schemes 8) 6) Release of fund for projects to beyond the competence of Gram Panchayats9) Maintaining drinking water schemes, Panchayat Samitis / Gram Panchayats collecting water charges for projects handed 7) Providing technical skill and fund, over to PRI through User Committee when necessary, for maintenance of 10) Awareness on use of safe drinking water water supply system Additional Nil Nil Nil Functions (i) Bon O Present 1) To select fuel deficit blocks and 1) Identification of fuel deficit areas in the Mobilizing people for plantation and 1) Bhumi Functions plantation planning in those blocks. Block – planning, implementation and fodder cultivation. Sanskar S.S., 2) Selection of trees that have some supervision etc. 2) Distribution of fodder and fuel saplings (ii) Matsya O uses other than timber. among deserving families. Prani Sampad 3) Field demonstration for fodder Bikash S.S. / cultivation on community land and vested (i) Krishi O land Prani Sampad Additional 4) Policy decision on supply 2) of Supply of minikits to different GPs and Distribution of minikits / seeds / manure 4) Bikash U.S. Functions minikits / seeds / manure to Blocks fixing scale of distribution of minikits per GP to farmers (Fodder) (Fodder) (Fodder) 5) Generation of awareness and wide 5) Fixing scale of distribution 3) of Monitoring & supervising distribution of publicity among farmers (Fodder) minikits / seeds / manure per block minikits and sale of seeds to farmers (Fodder) (Fodder)
Roadmap for the Panchayats in West Bengal
6) Policy decision on purchase of seeds (Fodder) 7) Policy decision on sub-allotment of fund to different Blocks (Fodder)
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Subjects in the Eleventh Schedule 13. Roads, culverts, bridges, ferries, waterways and other means of communication
14. Rural electrification, including distribution of electricity
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Public Works (i) Purta, Present 1) Examine technical feasibility and 1) Identify villages not having all weather 1) Selection of sites through Gram Sansad. (ii) Panchayats Karya O Functions formulating road development roads and formulate projects for 2) Construction of village link roads and Rural Paribahan projects. construction of link roads. through beneficiary committees. Development S.S. / 2) Allocation and sanction of funds for 2) Construction of pucca / semi pucca roads 3) Monitoring and supervision of quality of (iii) Fisheries (i) Shilpa O roads covering more than one block. covering more than one Gram Panchayat. works through beneficiary committee. (iv) Agriculture Parikathama 3) Acquiring land and grant 3) of Providing technical assistance to Gram 4) Construction of culverts through Marketing U.S. compensation. Panchayats for construction of roads / beneficiary committee with technical (v) Sundarban 4) Awarding contracts, for culverts. support from Panchayat Samiti. Affairs construction of roads, culverts and 4) Leasing out waterways (medium). 5) Leasing out waterways (small). (vi) Transport bridges. 5) Monitoring the specifications of roads, culverts, bridges and supervision of the quality of works. 6) Technical vetting of projects of Panchayat Samitis. 7) Leasing out waterways (big). Additional Nil Nil Nil Functions (i) Power (i) Khudra Present 1) Assessing villages / hamlets 1)/ Assisting Zilla Parishad in assessing Providing land for installing electric 1) Shilpa, Functions colonies uncovered and formulating uncovered areas and formulating transmission poles. Bidyut O projects for their electrification in electrification projects. 2) Collection of electricity charges and Achiracharit coordination with WBSEB/CESC. 2) Monitoring and reporting on progress of depositing to the concerned authority. Shakti S.S. / 2) Providing fund to WBSEB/CESC electrification of irrigation pump sets. 3) Reporting power supply position during (i) Shilpa O for electrification. 3) Conducting raid in co-ordination with prime crop season. Parikathama 3) Electrification of irrigation pump police and WBSEB/CESC for checking Vigilance and reporting against power 4) U.S. sets. power theft and illegal connections. theft and illegal connections to the police. 4) Monitoring and supervision of electrification. 5) Vigilance against power theft and illegal connection Additional Nil Nil Nil Functions Corresponding Departments
Roadmap for the Panchayats in West Bengal
15. Nonconventional energy sources (i) Power, (ii) Sundarban Affairs (i) Khudra Shilpa, Bidyut O Achiracharit Shakti S.S. / (i) Shilpa O Parikathama U.S. Present 1) Promote and popularize non1) Select beneficiary for installation 1) of Identification of beneficiary for Functions conventional energy devices/sources. community/ private source of energy. individual biogas plants and other devices. 2) Coordinate different agencies 2) Train up users in the maintenance 2) of Monitoring functioning of the devices. including NGOs for promotion of non-conventional energy devices. alternative sources of energy. 3) Monitor and supervise the operation and functioning of the projects. Additional Nil Nil Nil Functions
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Subjects in the Eleventh Schedule 16. Poverty alleviation programme
Sthayee/ Upa Samiti concerned
Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Division Zilla Parishad Present 1) Promoting Cluster and 1) Functions Federation of SHGs in the District through DRDC. 2) 2) Promotion of marketing of goods produced by Swarojgaries. 3) Monitoring and supervision of 3) SGSY Programme. 4) Organizing Group management Training and skill dev. training. 4) 5) Approving involvement of NGOs in Group formation, training. 6) Preparation of estimates for 5) schemes to be taken up by ZP. 7) Technical vetting of estimates, implementation and monitoring of 6) the Wage Employment Programmes. 8) Coordination among various agencies implementing the schemes. 7) 9) Release of fund to PSs and GPs. 10) Lifting of food grains from FCI 8) and distribution to other tiers. Additional Functions Nil Panchayat Samiti Identification of Key activities for SHGs. Grading of SHGs for releasing funds and Bank loans. Promoting Cluster of SHGs and Federation of SHGS in the local area. Training of SHGs with the support of NGOs at Block Level. Preparation of estimates for schemes to be taken up by Panchayat Samiti and GPs. Technical vetting of estimates, implementation and monitoring of the Wage Employment Programmes. Selection of storing place for food grains. Release of fund to GPs. Nil Gram Panchayat 1) Formation, Nurturing of SHGs in the GP area. 2) Promotion of SHG cluster. 3) Identification of beneficiaries at GP from Gram Sansad. 4) Identification, implementation and monitoring of schemes for the poor families in GP area.
(i) Panchayats (i) Artha, Sanstha, Unnayan and Rural O Parikalpana S.S., Development (ii) Janasasthya O Paribesh S.S., (iii) Purta, Karya O Paribahan S.S., (iv) Krishi, Sech O Samabaya S.S., (v) Sishu O Nari Unnayan, Janakalyan O Tran S.S., (vi) Bon O Bhumi Sanskar S.S., (vii) Matsya O Prani Sampad Bikash S.S., (viii) Khadya O Sarbaraha S.S. / (i) Artha O Parikalpana U.S., (ii) Krishi O Prani Sampad Bikash U.S. (iii) Shiksha O Janasasthya U.S., (iv) Nari, Sishu Unnayan O Samajkalyan U.S. (v) Shilpa O Parikathama U.S. 17. Education, (i) School (i) Shiksha, Sanskriti, Tathya including Education O Krira S.S. / primary and (ii) Panchayats (i) Shiksha O Janasasthya secondary and Rural U.S. schools Development
Present 1) Release of fund for construction 1) Construction of New School 1) Construction of Additional Classrooms Functions of New School Buildings and Buildings and Additional in Primary Schools / Sishu Shiksha Additional Classrooms. Classrooms. Kendras through Village Education 2) Release of fund for construction 2) Construction of toilets and Committee / Managing Committee. of toilets and drinking water drinking water facilities at 2) Construction of toilets and drinking
Roadmap for the Panchayats in West Bengal
(iii) Backward Classes Welfare, (iv) Minorities Development and Welfare (v) Relief facilities at schools. Compiling proposals from Panchayat Samitis for opening all the alternative education centres and forwarding them to the respective agencies. 4) Setting up computer education center for school children. 5) Supervision and management of Mid day meal Programme 3) schools. 3) Compiling proposals from Gram Panchayats for opening all the alternative education centres and forwarding them to the Zilla Parishad. 4) Approval of list of students for mid day meal in schools. 5) Management and supervision of the Mid day meal Programme. 6) Improvement of school library – purchase of books for library through Managing Committee. water facilities in Primary Schools / Sishu Shiksha Kendras through Village Education Committee / Managing Committee. Preparation of list of students for Mid day meal Programme in convergence with the Village Education Committee and engaging SHGs for cooking. Sending proposals for opening all the alternative education centres to the Panchayat Samiti. Helping Managing Committee of SSK to select Sahayika. Supervision of SSK by Gram Panchayat.
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4) 5) 6)
Subjects in the Eleventh Schedule 17. Education, including primary and secondary schools
Corresponding Departments (i) School Education (ii) Panchayats and Rural Development (iii) Backward Classes Welfare, (iv) Minorities Development and Welfare (v) Relief (i) Technical Education and Training (i) Mass Education Extension
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Shiksha, Additional 6) Selection of sites for establishment 7) Supervision and monitoring of VECs 7) Mobilization of VEC Sanskriti, Functions of new school 8) Counseling, guidance & monitoring Tathya O 7) Recommendation for up-gradation of VEC Krira S.S. / of schools 9) Formation of Parents – teacher (i) Shiksha O 8) Supervision and monitoring of association Janasasthya Village Education Committees 10) Organizing teacher-community U.S. interface
18. Technical training and vocational education 19. Adult and non-formal education
(i) Shiksha, Sanskriti, Tathya O Krira S.S. (i) Shiksha, Sanskriti, Tathya O Krira S.S. / (i) Shiksha O Janasasthya U.S.
Present 1) Extension and maintenance of ITI, Functions Polytechnic. Additional Nil Functions Present 1) Planning, Monitoring & 3) Functions Supervision by the ZSS 2) Convergence of development schemes with CEP
Monitoring & supervision of Continuing 1) Running of literacy centers at Gram Education Centre Sansad level 2) Selection of Prerak and Sanchalak 3) Regular contact with Literates / Neo-literates for attendance in Continuing Education Centre Additional 4) Consideration of proposal for 1) Convergence of Literacy with income 4) To treat nodal Continuing Education Functions opening of new Adult High School generating activities, SHGs & community Centre as Rural Information Centre
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[To impart education up to health initiative 5) Publicity and Supervision of Adult Madhyamik level to interested Adult 2) Publicity and Supervision of Adult High High Schools learners who are not enrolled in any Schools formal school] (To be forwarded to the MEE Deptt. / Dte. with recommendation or otherwise) 20. Libraries (i) Mass Education Extension (i) Shiksa, Sanskriti, Tathya O Krira S.S. / (i) Shiksha O Janasasthya U.S. Present 1) Release of fund for Rural Library Functions Additional 2) Supervision of the activities 1) of Functions District Libraries 3) Sending copies of guidelines 2)/ booklets for all development programs to Dist. Library for general information of public 3) 4) Sending copy of Annual Report / Budget / Annual Plan of ZP to Dist. 4) Library 5) Sending data / information 5) on social issues to Dist. Library 6) Nil Supervision of the activities of Sponsored 1) Libraries Sending copies of guidelines / booklets for all development programs to Sponsored 2) Library for general information of public Sending copy of Annual Report / Budget / Annual Plan of PS to Sponsored Library Sending data / information on social issues 3) to Sponsored Library Disbursement of salary to organizer of CLIC 4) Audit of CLIC by PAAO Nil Supervision of the activities of Rural Libraries / Library cum Information Centre Sending copies of guidelines / booklets for all development programs to Rural Library / CLIC for general information of public Sending copy of Annual Report / Budget / Annual Plan of GP to Rural Library / CLIC Sending data / information on social issues to Rural Library / CLIC
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Subjects in the Corresponding Eleventh Departments Schedule 21. Cultural (i) Information activities and Cultural Affairs (ii) Backward Classes Welfare
Sthayee/ Upa Samiti concerned (i) Shiksha, Sanskriti, Tathya O Krira S.S. / (i) Artha O Parikalpana U.S.
Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Division Present Functions Zilla Parishad 1) Construction of Auditorium. 2) Organizing folk festival, film festival, drama festival and youth festival at District level. 3) Release of fund for Block Youth festival. 4) Selection of blocks for Cultural Programs, speech, film etc. 5) Release of fund for Cultural Programs, speech, film etc. 6) Selection of subject for essay writing competition in schools 7) Fund release for essay writing competition in schools 8) Releasing fund and selection of blocks for Panchayat Samiti 1) Organizing Block Youth Festival. 2) Organizing folk campaign for social motivation. Gram Panchayat 1) Selection of local talents in cultural activities through booth level youth and cultural festival. 2) Conduct awareness campaign for social cause. 3) Selection of Venues for Cultural Programs, speech, film etc. 4) Wide publicity & campaign for celebration of important dates and selection of venue 5) Selection of venue for folk festival 6) Identification of beneficiaries / participants for folk festival 7) Distribution of entry tickets / cards for children’s film festival
3) Selection of Gram Panchayats for Cultural Programs, speech, film etc. 4) Organizing Cultural Programs, speech, film etc. 5) Contact with teachers & students of schools for essay writing competition 6) Checking of answer scripts of essay writing competition 7) Organizing campaign for celebration of important dates and organization of celebration program keeping liaison with GPs 8) Selection of GP for folk festival
Roadmap for the Panchayats in West Bengal
celebration of important dates 9) Organization of festival 9) Selection of theme for 10) Infrastructural support for folk folk festival festival 10) Selection of block for 11) Selection of venues for children’s folk festival film festival and contacting schools for 11) Fund release for folk publicity among students festival 12) Supply of Musical instruments for folk festival 13) Fund release for children’s film festival, contacting Cinema Hall owners and fixing up time for film show 22. Markets and (i) Land and (i) Artha, Sanstha, Present 1) Construction of market complex Arrangement for sanitation, drinking water, Management of Hat 1) 1) fairs Land Reforms, Unnayan O Functions and leasing out. lighting etc. at fair grounds. transferred to GP (ii) Information Parikalpana S.S. 2) Organizing famous fairs like Management of Hat / Bazar transferred to 2) and Cultural (ii) Bon O Bhumi Gangasagar Mela, Sunderban Mela, PS Affairs Sanskar S.S. / Bishnupur Mela etc. (i) Artha O 3) Management of Hat / Bazar Parikalpana U.S. transferred to ZP Additional Nil Nil Nil Functions
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Subjects in the Eleventh Schedule 23. Health and sanitation, including hospitals, primary health centres and dispensaries
Sthayee/ Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Upa Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Health and (i) Present 1) Establishment and 1) Maintenance and Maintenance and upgradation of Sub-centers 1) Family Welfare Janasasthya Functions maintenance of RCH. upgradation of BPHC and Generate awareness for promotive & preventive health care. 2) (ii) Panchayats O Paribesh 2) Supply of medicines, PHC 3) Visit each family in a month with health related issues. and Rural S.S. / equipments to RCH. 2) Distribution of medicines Educate people about immunization & motivate them. 4) Development (i) Shiksha O 3) Training of Nursing and Paraand equipments to the Monitoring immunization and vaccination coverage of 5) Janasasthya medical functionaries. centres. children and pregnant women and taking follow-up action. U.S. 4) Coordinate with 3) Assistance in organizing Enlist eligible couples, spread message of RCH programs & 6) state/International Agencies for immunization camps. provide follow up services. sanitation & health related 4) Organization or supervision Identify communicable diseases, carry out control measures 7) issues. of sanitary marts. in affected areas. Corresponding Departments
Roadmap for the Panchayats in West Bengal
Organizing immunization 5) Formulating plan for the 8) Meet & distribute Iron / Vitamin Tablets to pregnant & camps. assistance in the lactating mothers, children. 6) Identify and approve NGOs construction of sanitary Awareness generation for sanitation and organizing house to 9) for Sanitation & RCH. latrines. house campaign for targeting uncovered households and 7) Promote school health 6) Coordination & supervision making arrangements for equipments through sanitary marts. programmes. on construction of sanitary 10) Promote use of sanitary latrine & safe drinking water. 8) Training of ANMs and others. latrines. 11) Birth & death Registration. 7) Construction of community Preparing proposals for community toilets at public places, 12) toilets at public places, Sub- schools, AWC, Health Sub-Centres. Centres under TSC and toilets in schools, AWCs under School Sanitation Programme Additional 9) Civil works for improvement 8) Supervision and monitoring Supervision and monitoring of utilization of funds and 13) Functions of infrastructure (large size of utilization of funds and materials by Sub-centers outlay) materials by BPHCs and Local Purchase of non-medical items required by the sub14) 10) Fund allotment for PHCs centers as may be authorized by H&FW Department procurement of materials 9) Local Purchase of non- Monitoring most important public health indicators 15) 11) Lifting of materials from medical items required 16) Planning for focused interventions by State Hqtrs and supply to the PHCs and BPHCs 17) Involving Self-Help Groups in monitoring community health as different block may be authorized 18) Updating ECCR by 12) Compilation of reports and H&FW Department 19) Conducting Baseline Survey on status of community health returns from Block-level and 10) Compilation of monthly Surveillance and rapid response issues 20) analysis for monitoring crucial reports from Sub-centers and Arrangement of referral transport in serious cases 21) public health indicators GPs, and analysis for Promotion of concepts of nutrition and best dietary practices 22) 13) Planning for focused monitoring crucial public Ensuring nutrition supplement for mother and child through 23) interventions health indicators ICDS / AWC 14) Supervision of secondary 11) Supervision of Primary 24) Ensuring nutrition supplement in schools curative services and standing curative Services 25) Awareness for taking preventive measures against common committees of the Panchayat 12) Supervision of GP level diseases like malaria, kalajar, TB, leprosy and monitoring Samiti Upa-Samitis on Health. follow-up practices by patients. 15) Devising IEC Strategy for 13) Planning for focused 26) Promotion of demand for latrines in every household. involving community in interventions 27) Ensuring environmental sanitation including prevention of promotive and preventive health 14) Planning and organizating open defecation, protection of water source, drainage, care management IEC activities for involving cleanliness of habitat 16) Developing IEC materials community in promotive and preventive health care management
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Subjects in the Eleventh Schedule
Sthayee/ Upa Samiti concerned
Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Division Zilla Parishad Panchayat Samiti Gram Panchayat
Roadmap for the Panchayats in West Bengal
23. Health and sanitation, including hospitals, primary health centres and dispensaries (i) Additional 17) Organizing campaign for Janasasthya Functions safe motherhood, best child O Paribesh care practices S.S. / 18) Fund allotment, monitoring (i) Shiksha O and supervision of Janasasthya immunization program U.S. including pulse polio 19) Development of infrastructure for Institutional delivery 20) Monitoring availability of medicine at PHCs 21) Allotment of fund for training 22) Sending resource persons for training 23) Organizing and conducting skill development training for Health workers 24) Organizing cataract operation camps 24. Family (i) Health and (i) Present 1) Planning for Family Welfare 1) welfare Family Welfare Janasasthya Functions Programme O Paribesh 2) Organizing campaign for 2) S.S. / planned family (i) Shiksha O 3) Organizing sterilization Janasasthya camp for eligible couple 3) U.S. Additional Nil Functions 25. Women (i) Women & (i) Sishu O Present 1) Organize Legal Aid Camp and child Child Nari Functions at District level with the development Development Unnayan, assistance of District and Social Janakalyan O Legal Aid Committee. Welfare Tran S.S. / (i) Nari, Sishu Unnayan O Samajkalyan U.S. (i) Health and Family Welfare (ii) Panchayats and Rural Development 15) Organizing campaign for planned family, safe 28) Ensuring Timely Spraying of Vector motherhood, best child care practices control chemicals 16) Implementation of immunization programme 29) Identifying clienteles for training 17) Promotion of Institutional delivery 30) Capacity building for SHGs for 18) Monitoring availability of medicine at sub- developing a surveillance system through centres SHGs 19) Organizing training of school teachers on eye 31) Up-gradation of HQ sub-centers for care delivery of additional services including 20) Organizing training of Traditional Birth development of a Panchayat owned Labour Attendants (Dai) Hut 21) Ensuring timeliness and quality in delivery of household latrines by Rural Sanitary Marts 22) Organizing training of School Teachers in School Sanitation, Environmental Sanitation and Personal Hygiene 23) Monitoring School heath programme 24) Organizing and conducting sensitization Training 25) Selection of clientele for training Distribution of family planning materials to the centres. Organize & Coordinate in monitoring and supervision of family welfare and family planning services. Assistance in organizing family planning camps. Nil 1) Organize Legal Aid Camp at Block level with the assistance of Sub-divisional Legal Aid Committee. 2) Monitoring coverage and quality of ICDS programme. 3) Supervision of construction of Anganwadi Centers 4) Co-ordination to ensure availability of facilities / benefits to SHGs of Swayamsiddha & convergence with other SHGs formed under different programmes 5) Convergence of activities of ICDS and reporting of functioning of Anganwadi Centers to the Sthayee Samiti of Panchayat Samiti 1) Educate people about family planning & promoting planned family norms and practices.
Nil 1) Maintaining basic database like IMR, MMR, malnourished children, immunization status, vaccination status, dai etc. 2) Taking necessary preventive and promotive measures for women and children. 3) Monitoring ICDS centres and Primary Health Sub-Centres 4) Recommendation of sites for AWCs 5) Construction and maintenance of AWCs 6) Convergence of ICDS activities and reporting of functioning of AWCs in the convergence meeting at GP level
Roadmap for the Panchayats in West Bengal
with the Supervisors and the ANMs
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Subjects in Corresponding the Eleventh Departments Schedule 25. Women (i) Women & and child Child development Development and Social Welfare
Sthayee/ Upa Samiti concerned Division (i) Sishu O Additional Nari Functions Unnayan, Janakalyan O Tran S.S. / (i) Nari, Sishu Unnayan O Samajkalyan U.S.
Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Zilla Parishad Panchayat Samiti 2) Selection of 6) Recommendation of beneficiaries for Nonbeneficiaries for Noninstitutional care of children up to 18 years institutional care of children up to 18 years Gram Panchayat 7) Supportive role in survey of beneficiaries availing facilities of AWCs 8) Identification of beneficiaries for NPAG & Kishori Shakti Yojana 9) Issue of BPL certificate for beneficiaries of Balika Sambriddhi Yojana 10) Awareness generation in villages to motivate parents for pre-school education & immunization of their children 11) Mobilize community participation to improve quality of cooked food in AWCs Release of pension to aged / infirm persons, 1) Assisting Panchayat Samiti for selection of widows. handicapped people for equipment Selection of handicapped people for distribution of distribution. equipments in consultation with the Gram 2) Identification of Beneficiaries for old age Panchayats. pension, family pension, maternal benefits etc. Distributing equipments to handicapped people. Recommendation of names of beneficiaries for 3) Organization of Publicity campaign for Pension Schemes to the DM for approval scholarship for handicapped students of class Sponsoring names of students through school for IX onwards scholarship for handicapped students of class IX Holding awareness camp for handicapped 4) onwards students & their parents Monitoring disbursement of scholarship 5) to Identification of handicapped students for handicapped students of class IX onwards through scholarship school 6) Recommendation of applications for Supervision and monitoring of the Institutes for admission to Social Welfare Homes the disabled (Special Schools) 7) Publicity and Supervision of Social Recommendation of applications for admission to Welfare Homes Social Welfare Homes Publicity and Supervision of Social Welfare Homes
26. Social welfare, including welfare of the handicapped and mentally retarded
(i) Women & Child Development and Social Welfare (ii) School Education (iii) Mass Education Extension
(i) Sishu O Nari Unnayan, Janakalyan O Tran S.S. / (i) Nari, Sishu Unnayan O Samajkalyan U.S.
Present 1) Distributing equipments 1) Functions for handicapped people to Panchayat Samitis. 2) 3) Additional 2) Supervision and 4) Functions monitoring of the Institutes for the disabled (Special 5) Schools). 3) Consideration of the proposals for academic 6) recognition / sponsorship of Institutes for disabled (to be forwarded to the MEE 7) Dept. / Dte. with recommendation 8) or otherwise) 4) Publicity and supervision 9) of Social Welfare Homes
Roadmap for the Panchayats in West Bengal
27. Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes (i) Backward Classes Welfare (iv) Minorities Development and Welfare (i) Sishu O Present 1) Release of fund for selfNari Functions employment of SC/ST/OBC Unnayan, people. Janakalyan O 2) Fixing up targets of Tran S.S. / beneficiaries / pensioners / (i) Nari, SHGs for each Panchayat Sishu Samiti Unnayan O 3) Fixing up target for credit Samajkalyan inputs for each Panchayat U.S. Samiti 1) Release of stipend and Book Grant for SC/ST students. 2) Conducting enquiry and processing application for SC / ST / OBC caste Certificates. 3) Selection of Beneficiaries for self employment and financial assistance. 4) Co-ordination with Bank, Finance Corporation for availability of credit. 5) Supervision for selection of beneficiaries / pensioners / SHGs 6) Credit linkage for SHGs / farmers / individual beneficiaries under SCP or TSP or other programs 7) Disbursement of pension to old age pensioners 1) Sending application for SC / ST certificates to Block Office. 2) Identification of Beneficiaries for self employment and financial assistance 3) Contact with Bank for loan disbursement and assist in recovery. 4) Identification of farmers for Minor Irrigation schemes 5) Identification & selection of pensioners / beneficiaries at Gram Sansad for Poverty Alleviation Programs
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Subjects in the Eleventh Schedule 27. Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes
28. Public distribution system
Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping Samiti concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat (i) Backward (i) Sishu O Additional 4) Selection of Gram Panchayats 8) Supervision for selection of new sources of 6) Site selection for new sources of drinking Classes Welfare Nari Functions for Minor Irrigation schemes, drinking water water (iv) Minorities Unnayan, augmenting sources of drinking 9) Selection of Gram Panchayats with 7) Organization of grain-gola / grain-bank Development Janakalyan O water concentration of weaker sections for 8) Holding awareness / motivation camp and Welfare Tran S.S. / 5) Release of fund for training awareness camp, wide publicity 9) Hand holding support to SHGs / women (i) Nari, 6) Action plan for all sorts of 10) Organization and supervision of training groups Sishu training and Awareness camp for women / SHGs / farmers 10) Reporting to Panchayat Samiti about Unnayan O 7) Assessment of Training Need 11) Release of fund to Gram Panchayats any difficulty in getting book grant, Samajkalyan 8) Fixing up targets for different 12) Collection of names of students from stipend, scholarship from school within U.S. schools for Book Grant, Stipend schools for Book Grant, Stipend & its area & Scholarship for SC/ST/OBC Scholarship for SC/ST/OBC students students 13) Release of fund to schools for Book Grant, Stipend & Scholarship for SC/ST/OBC students (i) Food and (i) Khadya O Present 1) Approval of beneficiary list for 1) Preparation of list of beneficiaries for BPL 1) Identification & selection of beneficiaries Supplies Sarbaraha Functions distribution of food grains to BPL cards for distribution of BPL Cards, Antodaya S.S. / / Antodaya Annya Yojana & 2) Fixing quota of beneficiaries for Gram Annya Yojana Cards & Annapurna Cards (i) Artha O Annapurna Card holders Panchayats 2) Fixing quotas of beneficiaries for each Parikalpana 2) Fixing additional quota of 3) Monitoring distribution of food grains to Gram Sansads U.S. beneficiaries for blocks MR Dealers at GP level. 3) Distribution of ration cards to 3) Monitoring lifting of food 4) Monitoring preparation and distribution of beneficiaries grains from FCI Ration Cards 4) Implementing distribution through MR 4) Allocation of food grains to 5) Supervision over MR shops Shop. Blocks / Panchayat Samitis. 5) Monitoring distribution of food grains 5) Release of fund. from MR Shop to the beneficiaries Corresponding Departments
Roadmap for the Panchayats in West Bengal
Additional 6) Fixing up target for each Rice 6) Selection of Farmers’ Co-operative 6) Providing certificate confirming Functions Mill for procurement of food Societies for purchase of paddy procurement of paddy from the farmers grains at Minimum Support Price (MSP) 7) Monitoring Milling of paddy 8) Storing of rice in Godowns Present 1) Maintenance of those assets Maintenance of those assets which are either Maintenance of those assets which are 1) 1) Functions which are either developed by it developed by it or vested upon it or have no either developed by it or vested upon it or or vested upon it or have no other other agency to maintain. have no other agency to maintain. agency to maintain. Additional Nil Nil Nil Functions
29. (i) Public Works Maintenance of community assets
(i) Purta, Karya O Paribahan S.S. / (i) Artha O Parikalpana U.S.
Self Evaluation Format for GPs Telephone No. (With STD Code): District:
Gram Panchayat: Block:
A. Good Goverence
1. Peoples’ participation in GP’s activities (a) Last Gram Sansad meeting (General Meeting, not special) Subject What was the percentage of Gram Sansads where last meeting took place? What was the percentage of average attendance in the last Gram Sansad meeting? What was the average percentage of women among the total attendance? Scoring Pattern 2 if in 100% Gram Sansad, 1 if in 90-99% Gram Sansad, 0 if in less than 90% Gram Sansad 9 if 40% or more, 8 if 30-39%, 7 if 25-29%, 6 if 20-24%, 4 if 16-19%, 2 if 12-15% and 0 if 10-11% 9 if 50% or more, 8 if 40-49%, 6 if 30-39%, 4 if 20-29%, 2 if 10-19% and 0 if less than 10% Maximum Marks Marks Obtained 2
9 20 10 Maximum Marks Marks Obtained
Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) (b) Formation of Gram Unnayan Samiti and Secretary Election Subject Scoring Pattern
In how many GS, 6 if in 100% Gram Sansad, 5 if in 90-99% Gram Sansad, 4 Gram if in 80-89% Gram Sansad, 3 if in 70-79% Gram Sansad, 2 Unnayan if in 60-69% Gram Sansad, 1 if in 50-59% Gram Sansad, 0 Samiti if in less than 50% Gram Sansad has been constitut ed? How many Gram 4 if 100% Gram Unnayan Samiti have elected Secretary, Unnayan 3 if 80-99% Gram Unnayan Samiti have elected Secretary, Samitis 2 if 60-79% Gram Unnayan Samiti have elected have Secretary, 1 if 40-59% Gram Unnayan Samiti elected have elected Secretary and 0 if less than 40% Secretar Gram Unnayan Samiti have elected Secretary y? Total
2. Participation of the members in the functioning of GP (a) How many Upa-Samitis have submitted their Budget? Pattern Maximum Marks 5 No. of Upa-Samitis submitted Budget 1 Total 5 Marks Obtained
(b) How many Upa-Samitis have submitted their budget within due time? Pattern Maximum Marks 5 No. of Upa-Samitis submitted their budget within due time 1 Total 5
(c) How many meetings of the GP General Body and Upa-Samitis took place during the last one year? Maximum Marks Sector Scoring Pattern Marks Obtained 5 if no. of meetings is 15 or more, 4 if no. of GP General Body meetings is 13-14, 3 if no. of meetings is 12, 2 if no. 5 of meetings is 8-11, 0 if no. of meetings is less than 8 Finance & Planning Upa- 3 if no. of meetings is more than 6, 2 if no. of 3 Samiti meetings is 6, 0 if no. of meetings is less than 6 Agriculture & Animal 3 if no. of meetings is more than 6, 2 if no. of Resource Development meetings is 6, 1 if no. of meetings is 4-5, 0 if no. of 3 Upa-Samiti meetings is less than 4 Education & Public ,, 3 Health Upa-Samiti Women, Child Development and Social ,, 3 Welfare Upa-Samiti Industry & Infrastructure ,, 3 Upa-Samiti Total 20 10 Actual Marks Obtained (= Total Marks Obtained ÷ 2) (d) Issues regarding the General Body meeting of GP Subject Scoring Pattern Maximum Marks Marks Obtained 5 5 How many meetings of GP General Body have been 5 if 0, 3 if 1-3, adjourned during the last one year? 0 if more than 3 In how many General Body meetings opposite 5 if more than 6, views/proposals have been written in the resolution 3 if 3-6, book during the last one year? 0 if less than 3
Total Actual Marks Obtained (= Total Marks Obtained ÷ 2)
(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year? Maximum Marks Sector Scoring Pattern Marks Obtained 5 if average attendance is 80% or more, 4 if 60-79%, 3 GP General Body if 50-59%, 2 if 40-49%, 1 if 33-39% and 0 if less than 5 33% (when most meetings are adjourned meeting)
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(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year? (Continuing) Maximum Marks Sector Scoring Pattern Marks Obtained Finance & Planning 3 if average attendance is 80% or more, 2 if 60-79%, 1 3 Upa-Samiti if 33-59% and 0 if less than 33% Agriculture & Animal Resource ,, 3 Development UpaSamiti Education & Public ,, 3 Health Upa-Samiti Women, Child Development and ,, 3 Social Welfare UpaSamiti Industry & Infrastructure Upa,, 3 Samiti Total 20 5 Actual Marks Obtained (= Total Marks Obtained ÷ 4) 3. Services delivered by GP Subject Scoring Pattern Maximum Marks Marks Obtained
(a) Do the GP have list of all roads (Road Register) 1 if yes, 0 if no under its jurisdiction? (b) What percentage of On the basis of the data available from Road Register habitations has or any other source connective roads in the 2, if 75-100% habitation has connective roads GP area? 1, if 50-74% habitation has connective roads 0, if less than 50% habitation has connective roads
or data is not available (c) What percentage of On the basis of the data available from Road Register total roads in the GP or any other source area are all weather 2, if 80-100% habitation has connective roads roads? 1, if 60-79% habitation has connective roads 0, if less than 60% habitation has connective roads or data is not available (d) What percentage of On the basis of the data available from Road Register roads under the GP’s or any other source jurisdiction requires 5 if 10% or less; 4 if 11-25%; 3 if 26-50%; repairing? 2 if 51-75%; 1 if 76-85%; 0 if more than 85% or data is not available 3. Services delivered by GP (Continuing) Subject Scoring Pattern
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Maximum Marks Marks Obtained 5
(e) What On the basis of the available data percentage of tube 5 if 10% or less; 4 if 11-20%; 3 if 21-30%; wells in the GP 2 if 31-40%; 1 if 41-50%; 0 if more than 50% or area is out of order? data is not available (f) Do the GP take For those GPs where tube well is For those GPs where well attempts to used as drinking water source is used as drinking water examine the water source quality of the On the basis of the available On the basis of the drinking water data available data sources and take 5, if water of 91-100% tube well 5, if 91-100% wells have necessary action? has been examined and been cleansed or necessary actions taken disinfected 4, if water of 81-90% tube well 4, if 81-90% wells have has been examined and been cleansed or necessary actions taken disinfected 3, if water of 71-80% tube well 3, if 71-80% wells have has been examined and been cleansed or necessary actions taken disinfected 2, if water of 61-70% tube well 2, if 61-70% wells have has been examined and been cleansed or necessary actions taken disinfected 1, if water of 40-60% tube well 1, if 40-60% wells have has been examined and been cleansed or necessary actions taken disinfected 0, if water of less than 40% tube 0, if less than 40% wells well has been examined and have been cleansed or necessary actions taken or data disinfected or is not available data is not available (g) What On the basis of the available data percentage of Gram 5 if 60-100%; 3 if 31-59%; Sansads has 1 if 20-30%; 0 if less than 20% or
drainage system data is not available prepared by GP? (h) What On the basis of the available data or any realistic calculation percentage of roads 5, if 75% or more of the required roads have lighting in the GP area has 4, if 50-74% of the required roads have lighting lighting facility 3, if 30-49% of the required roads have lighting (out of the areas 2, if 10-29% of the required roads have lighting where street 1, if 5-9% of the required roads have lighting lighting is 0, if less than 5% of the required roads have lighting required)? or data not available
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3. Services delivered by GP (Continuing) Subject (i) How much time GP takes to issue birth & death certificate? (j) How trade registration certificate is issued by the Gram Panchayat? (k) What is the role of GP in house or other construction? Scoring Pattern 5, if certificate is given on the date of application 4, if certificate is given on the next day of application 3, if certificate is given on the second day of application 2, if certificate is given within four days of application 1, if certificate is given within a week of application 0, if certificate is given after 7 days of application 2 if GP issues regularly by taking initiative, 0 if otherwise 1 if renewal is done regularly, 0 if otherwise 2 if the records are maintained in a register, 0 if otherwise What percentage of house or other construction takes place by approving the plan from the GP 2, if 90-100% 1, if 80-89% 0, if less than 80% 2, if GP approves the plan within due time 0, otherwise 1, if GP monitors whether construction is taking place according to the approved plan 0, otherwise 5, if no 3, if at the time of spread information is given to BMO(H) and medicine circulated brining from him 2, if at the time of spread information is given to BMO(H) but GP did not take any initiative at its own 0, if no action taken at the time of spread 1, if no 0, if yes Maximum Marks Marks Obtained
2 1 2
(l) Whether any infectious disease like Diarrhea, Malaria, TB etc. did spread in a large scale during the last 3 years in the GP area? (m) Is there any encroachment of
public streets or public places within the GP area? (n) Does the GP manage and maintain the public tanks, common grazing grounds, burning ghats, public graveyards or other properties vested on it?
2, if 76-100% properties are managed and maintained 1, if 50-75% properties are managed and maintained 0, if less than 50% properties are managed and maintained 2
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3. Services delivered by GP (Continuing) Subject (o) Whether there are separate ladies and gents toilets and water facility in markets, busstands or other public places in the locality? (p) Whether there are separate toilets for boys and girls and water facility in the primary schools, sishu shiksha kendras and anganwadi kendras in the locality? (q) Whether there are waiting sheds in the bus stands? (q) Whether there are children parks or playground under GP management? Scoring Pattern 2, if exists everywhere 1, if exists somewhere 0, if exists nowhere 2 Maximum Marks Marks Obtained
2, if exists in 76-100% primary schools, SSKs and anganwadi kendras 1, if exists in 50-75% primary schools, SSKs and anganwadi kendras 0, if exists in less than 50% primary schools, SSKs and anganwadi kendras
1, if yes 0, if no 2, if exists in each habitation 1, if exists in more than one habitation 0, if does not exist
2 60 20
Total Actual Marks Obtained (= Total Marks Obtained ÷ 3) 4. GP Building & Office Management
Scoring Maximum Marks Pattern Marks Obtained Does the GP have own building? 1 if yes, 1 0 if no Is there sufficient space to perform all the works in the GP building? ,, 1 Is there big hall for meeting/training in the GP building? ,, 1 Do the GP have own go down? ,, 1 Is there any provision of drinking water for the people coming to GP? ,, 1 Is there any provision of good toilet for the people coming to GP? ,, 1 Is there any provision of good ladies toilet for the people coming to GP? ,, 1 Is there any system of cleaning the toilets regularly? ,, 1 Total 8 Subject 5. GP Information Management & Disposing System (a) Register related Subject Does Pradhan notice whether employees signing the Attendance Register in due time? Is Asset Register updated regularly? Is Stock Register updated regularly? Is Advance Register updated regularly? Is Project Register updated regularly? Is Works Register updated regularly? Is Register for Issue & Receipt of Letters updated regularly? Is Cheque Issue & Receipt Register updated regularly? Is Birth & Death Register updated regularly? Is there any register to note complains? Total Scoring Pattern 1 if yes, 0 if no ,, ,, ,, ,, ,, ,, ,, ,, ,, Maximum Marks Marks Obtained 1 1 1 1 1 1 1 1 1 1 10
(b) Are the following lists available at the GP office for public viewing?
BPL list 2 if yes, 0 if no IAY beneficiary list 1 if yes, 0 if no Annapurna Anna Yojana beneficiary list 1 if yes, 0 if no Antyodaya Yojana beneficiary list 1 if yes, 0 if no NOAPS beneficiary list 1 if yes, 0 if no NMBS beneficiary list 1 if yes, 0 if no Beneficiary list of other government 1 if yes, 0 if no programmes Land Reforms beneficiary list 1 if yes, 0 if no List of registered bargadars 1 if yes, 0 if no Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) (c) Regarding right to information Subject Is there any provision of providing information to people as per ‘Right to Information Act’? Scoring Pattern 2 if there is provision and some people has collected information 1 if there is provision but no people has collected information 0 if there is no provision Total
Maximum Marks Marks Obtained 2 1 1 1 1 1 1 1 1 10 5
Maximum Marks Marks Obtained 2 2
6. Transparency in GP’s work
Subject (a) How GP Placed to Gram Budget Sansad and meeting Annual Submitted to local Report library are Supplied to public on placed demand for public viewin g? (b) Is there any notice board in the GP office displaying information for public viewing? (c) Is there any provision of displaying necessary information (work details, budget & who got work) at the notice board in the workplace? (d) Is there any provision of giving copy of Master Roll if demanded?
Maximum Marks Marks Obtained
3 if all provisions are there 2 if any two provisions are there 1 if any one provision is there 0 if no provision is there
2 if yes, 0 if no 2 3 if displayed all the times 2 if displayed in maximum times 1 if displayed in some times 0 if displayed never
2 if there is provision and some people has collected 1 if there is provision but no people has collected 0 if there is no provision Total
Maximum Marks Marks Obtained 8 6
(a) What is the female literacy rate 8 if 90-100%, 7 if 80-89%, 6 if 70-79%, 5 if at the GP? 60-69%, 4 if 55-59%, 3 if 50-54%, 2 if 45-49%, 1 if 40-44% and 0 if less than 40% (b) By what percentage female 6 if less than 5%, 4 if 6-10%, 2 if 11-15% literacy rate falls short of male? and 0 if more than 15% (c) What is the percentage of 6 if 97-100%, 5 if 93-96%, 4 if 89-92%, children going to 3 if 85-88%, 2 if 81-84%, 1 if 75-80%, 0 if schools / alternative less than 75% and -2 if GP does schools in 5-14 age not have any information group? (d) What percentage of children 5 if 90-100%, 4 if 80-89%, 3 if 70-79%, admitted in Class I pass Class IV 2 if 60-69%, 1 if 50-59%, 0 if less than 50% in due time? (e) What percentage of children 5 if 85-100%, 4 if 70-84%, 3 if 55-69%, admitted in Class I pass Class VIII 2 if 40-54%, 1 if 25-39%, 0 if less than 25% in due time?
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7. Education (Continuing)
(g) How the Do VECs hold regular meeting? 2 if yes, 0 if no Vil Have Child Registers been 2 if yes, 0 if no lag prepared? e Whether household specific list for Ed the out of school children 2 if yes, 0 if no uca have been prepared by tio compiling Child Register? n Whether any attempts have been Co taken to admit those out of m school children by house to 2 if yes, 0 if no mit house or any other tee campaign? is Whether any attempts have been fun taken to open EGS / Bridge ctio Course / Rabindra Mukta nin Vidyalayas in those Gram g Sansads where there is no 2 if yes, 0 if no wit formal or alternative hin school? the GP ? What is the percentage of Gram Sansads without 5 if 0%, 4 if 1-5%, 3 if 6having any Primary School / Sishu 10%, 2 if 11-15%, 1 if 16Siksha Kendra / EGS / Bridge Course 20%, 0 if more than 20% Centres? Total Actual Marks Obtained (= Total Marks Obtained ÷ 3) 8. Public Health (a) Health Services
Maximum Marks Marks Obtained 2 2 2
5 45 15
Maximum Marks Marks Obtained
Saturday health 3 if regularly takes place in every month and report meeting in the of the meeting is regularly sent to BMO(H), GP 2 if regularly takes place in every month but report of the meeting is not sent regularly to BMO(H), 1 if the meeting takes place occasionally, -2 if the meeting takes place never. Does the GP take definite 2 if definite action plans taken in 9 or more action plan for meetings in last financial year, service 1 if definite action plans taken in 6-8 meetings in providing at the last financial year, last Saturday 0 if definite action plans taken in less than 6 health meeting? meetings in last financial year. Does the GP implements 3 if implemented in 9 or more cases, 2 if the action plan? implemented in 7-8 cases, 1 if implemented in 5-6 cases and 0 if implemented in less than 5 cases (a) Health Services (Continuing)
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Maximum Marks Marks Obtained 5
Is there any provision of Doctor 5 if yes, 0 if no coming to GP headquarter (If there is a system of doctor coming regularly sub-centre at any particular in a health centre run by the Health Department within the GP area, then also the GP will get 5 day in a week? marks) Out of the total birth cases in last 5 if 80% or more, 4 if 70-79%, 3 if 60one year what was the 69%, 2 if 50-59%, 1 if 40-49% percentage of children and 0 if less than 40% or data whose birth was registered not available within 21 days? Out of the total death cases in last 5 if 80% or more, 4 if 70-79%, 3 if 60one year what was the 69%, 2 if 50-59%, 1 if 40-49% percentage of cases where and 0 if less than 40% or data death was registered within not available 21 days? Is there any information at the GP 2 if yes, 0 if no regarding primary health sub-centre wise number of Dais (midwife)? Out of total Dais (midwife) in the 3 if 80% or more, 2 if 60-79%, 1 if 40GP area what is the 59% and 0 if less than 40% or percentage of trained Dai? data not available What is the percentage of child born 3 if 0%, 2 if 1-10%, 1 if 11-20% and 0 neither in hospital nor with if more than 20% or data not the help of a trained Dai available (midwife) during the last one year? What was the percentage of children 5 if 95-100%, 4 if 75-94%, 3 if 55-74%, covered under vaccination 2 if 40-54%, 1 if 25-39% and 0 of 6 diseases in last one if less than 25% or data not year? available What was percentage of pregnant 4 if 85-100%, 3 if 70-84%, 2 if 55-69%, women taking 2 tetanus 1 if 40-54%, 0 if less than 40% vaccinations in last one or data not available year? What was percentage of women who 5 if 95-100%, 4 if 75-94%, 3 if 55-74%, has gone through at least 3 2 if 40-54%, 1 if 25-39% and 0 health check-ups at the if less than 25% or data not pregnancy period and and available at least 1 health check-up after delivery in last one year? Total Actual Marks Obtained (= Total Marks Obtained ÷ 3)
(b) Drinking Water & Sanitation Subject Scoring Pattern Maximum Marks Marks Obtained
What is the percentage of families 4 if 100%, 3 if 95-99%, 2 if 90-94%, who do not need to go 1 if 85-89% and 0 if less than 85% or beyond 100 meters to collect data not available drinking water even in Baisakh-Jaistha (mid April to mid June) months? What is the percentage of families 4 if 80% or more, 3 if 60-79%, 2 if having access to tap water? 40-59%, 1 if 20-39% and 0 if less than 20% or data not available What is the percentage of families 4 if 50% or more, 3 if 40-49%, 2 if having tap / tube well / well 30-39%, 1 if 20-29% and 0 if less than within the household? 20% or data not available What is the percentage of household 4 if 100%, 3 if 70-99%, 2 if 50-69%, having sanitation? 1 if 30-49% and 0 if less than 30% or data not available What is percentage of tubewell/well On the basis of the available data having cemented floor? 2 if 90-100%, 1 if 80-89% and 0 if less than 80% or data not available What is percentage of water source ,, having soak pit? Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) (c) Women & Child development
4 4 4 2 2 20 10
Maximum Marks Marks Obtained 4
What is the percentage of girls 4 if 0%, 3 if 1-5%, 2 if 6-12%, 1 if 13-20%, getting married under and 0 if more than 20% or data not 18 during the last one available year? What is the percentage of women becoming ,, mother under 20 during the last one year? What is the percentage of 4 if 10% or less, 3 if 11-20%, 2 if 21-30%, women having 3 or 1 if 31-40% and 0 if more than 40% or data more children? not available Is there any provision of taking 1 if yes, 0 if no weight at time of birth when the child is born neither in hospital nor with the help of trained dai? If there is provision, what 2 if 80% or more, 1 if 70-79% and 0 if less percentage of newly born child than 70% or data not available was weighted during the last one year? (c) Women & Child development (Continuing) Subject Scoring Pattern
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Maximum Marks Marks Obtained
What was the percentage of 2 if 10% or less, 1 if 11-20% and 0 if more underweight children than 20% or data not available out of the total child birth in last one year (classified in Red & Yellow category of ICDS weight chart)? Does the GP have any 3 if GP has own arrangement, 2 if GP does arrangement of not have own arrangement but helps in the supplementary nutrition arrangement of anganwadi centres for all for the underweight children, 1 if GP does not have own children below 3 years arrangement but helps in the arrangement of of age? anganwadi centres for some children and 0 if GP has done nothing or data not available Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) 9. Pro-poor Activities
Maximum Marks Marks Obtained 5
(a) What is the percentage of BPL 5 if less than 10%, 4 if 11-20%, family? 3 if 21-30%, 2 if 31-40%, 1 if 41-50%, 0 if more than 50% (b) What is the average number of man 5 if 25 days or more, 4 if 21-24 days, days generated per BPL family 3 if 17-20 days, 2 if 13-16 days, in various employment 1 if 10-12 days, 0 if less than 10 days generation programmes like NFFWP/SGRY/ WBREGS? (c) What is the percentage women 4 if 70% or more, 3 if 50-69%, belonging to Self Help Group? 2 if 30-49%, 1 if 25-29% and 0 if less than 25% (d) Is there any Cluster of SHGs at the 2 if the answer is yes and GP has GP level? made arrangement for the office of the Cluster, 1 if the answer is yes but GP has not made any arrangement for the office of the Cluster and 0 if the answer is no (e) What percentage of Untied fund has 2 if 15% or more, been spent for the economic 1 if 5-14% and development of women during the last 0 if less than 5% financial year?
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9. Pro-poor Activities (Continuing)
Maximum Marks Marks Obtained 5
(f) What percentage of BPL families has 5 if 90-100%, 4 if 80-89%, been targeted to be provided opportunities for 3 if 70-79%, 2 if 60-69%, enhancing income under various schemes in 1 if 50-59%, 0 if less than 50% the 2006-07 Annual Plan? (g) What percentage of SC & ST BPL 2 if 90-100%, families has been targeted to be 1 if 70-89% and provided opportunities for 0 if less than 70% enhancing income under various schemes in the 2006-07 Annual Plan? (h) What is the percentage of families 5 if 10% or more, expected to come out of BPL list in 4 if 8-9%, this year? [combining the 3 if 6-7%, 2 if 4-5%, opportunities mentioned in question 1 if 2-3% and (f) and other incomes from own 0 if less than 2% attempt] Total Actual Marks Obtained (= Total Marks Obtained ÷ 3)
10. Development of Economic and Social Infrastructure Subject Scoring Pattern Maximum Marks Marks Obtained 5 2 3 5
(a) What is the percentage of On the basis of the available data land in the GP area 5 if 80-100%, 4 if 60-79%, 3 if 40-59%, having irrigation 2 if 20-39%, 1 if 5-19%, 0 if less than 5% or facility? data is not available (b) What is the percentage of 2 if 60-100%, 1 if 30-59%, 0 if less than 30% mouza having electrification? (c) What is the percentage of 3 if 60-100%, 2 if 30-59%, 1 if 10-29%, 0 if households having electricity? less than 10% (d) What is the percentage of On the basis of the available data primary schools in the GP area 5 if 0%, 4 if 1-20%, 3 if 21-40%, that do not have minimum 2 if 41-60%, 1 if 61-80%, 0 if more than 80% infrastructure? or data is not available (e) What is the percentage of Sishu Siksha Kendras in the ,, GP area that do not have minimum infrastructure? (f) What is the percentage of primary health sub-centres in ,, the GP area that do not have minimum infrastructure?
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10. Development of Economic and Social Infrastructure (Continuing) Subject Scoring Pattern Maximum Marks Marks Obtained 5 30 10
(g) What is the percentage of On the basis of the available data ICDS centres GP area that do 5 if 0%, 4 if 1-20%, 3 if 21-40%, not have minimum 2 if 41-60%, 1 if 61-80%, 0 if more than 80% infrastructure? or data is not available Total Actual Marks Obtained (= Total Marks Obtained ÷ 3) 11. Housing Subject Scoring Pattern
Maximum Marks Marks Obtained 10 5 5 20 10
(a) What is the percentage of 10 if 0%, 8 if 0.1-0.5%, 6 if 0.6-1%, families without a 4 if 1.1-1.5%, 2 if 1.6-2%, 0 if more than 2% homestead? (b) What is the percentage of 5 if 0-5%, 4 if 6-10%, 3 if 11-15%, families living in dilapidated 2 if 16-20%, 1 if 21-25%, 0 if more than 25% house? (c) What is the percentage of 5 if 0-10%, 4 if 11-20%, 3 if 21-40%, families living in one room 2 if 41-60%, 1 if 61-80%, 0 if more than 80% dwelling house? Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) 12. Disaster Preparedness Subject Do the GP have any advance disaster preparedness plan? Total 13. Social Security Subject Scoring Pattern Scoring Pattern 5 if yes, 0 if no
Maximum Marks Marks Obtained 5 5
Maximum Marks Marks Obtained 4
(a) Do all the poor / Antyodaya Anna 4 if the answer is yes by asking Yojana beneficiary families directly to at least 10% beneficiaries, get sufficient food as per 2 if the answer is yes by common scheme standard quality and perception and 0 if the answer is no quantity?
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13. Social Security (Continuing) Subject Scoring Pattern Maximum Marks Marks Obtained
(b) After how many days of receiving 4 if within 7 days of receiving the last installment of NOAPS the allotment, 3 if within 15 days of money has been given to be receiving allotment, 2 if within 21 pensioners? days of receiving allotment, 1 if within 30 days of receiving allotment and -2 if beyond 30 days of receiving allotment (c) Do the GP have list of physical and 4 if yes, 0 if no mental handicapped persons? (d) What is the percentage of physical and mental handicapped 4 if 80-100%, 3 if 60-79%, 2 if 40persons provided with any 59%, 1 if 25-39%, 0 if less than 25% benefit under any scheme? (e) How many landless agricultural labourers have been brought 4 if 80-100%, 3 if 60-79%, 2 if 40under the PROFLAL 59%, 1 if 20-39%, 0 if less than 20% scheme? Total Actual Marks Obtained (= Total Marks Obtained ÷ 2)
4 20 10
B. Resource Mobilization & Its Utilisation
14. Issues regarding Bye-Law of GP Subject Scoring Pattern Maximum Marks Marks Obtained
(a) Whether 3 if new Rate, Fee etc. have been fixed and accordingly new Rate, Fee collection of Rate, Fee etc. have increased by 50% or more, etc. have been 2 if new Rate, Fee etc. have been fixed and accordingly fixed as per collection of Rate, Fee etc. have increased by 30-49%, Bye-Law? 1 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by 15-29%, 0 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by less than 15% and -2 if new Rate, Fee etc. have not been fixed (b) How Rate 2 if collected by using all sections Fee etc. are 1 if collected by using some sections collected as per 0 if not collected Bye-Law?
15. Issues regarding GP Plan & Budget Subject (a) Was any estimation Resources from Govt. Programmes done at the time of annual GP’s Own Revenue plan preparation regarding Peoples’ Contribution total resources to be Local unused or low used resources available? (b) Whether village based participatory plans are prepared? (c) Whether Annual Plan has been prepared in due time? (d) Whether Annual Budget has been prepared in due time? (e) If some expenditure is incurred beyond budget is that get approved by GP General Body meeting? (f) Before Is it checked whether the work is included in plan? giving Is it checked whether the work is provisioned in budget? work Is it checked whether exact plan & estimate exists? order Whether the supply of funds is checked? (g) If some expenditure is incurred beyond estimate is that get approved by GP General Body meeting? (h) Is there any mechanism at the time of expenditure to check whether the work is included in approved plan & budget? (i) How much time is required to 2 if 7 days or less, 1 if 8-15 days start work after receiving of fund? and 0 if 15 days or more Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) 16. Own Source Revenue in Last Financial Year Subject Pattern Tax R e v Per e n u e Scoring Pattern 7 if Per Capita Tax Revenue is more than or equal to Rs. 10 6 if Per Capita Tax Revenue is within Rs. 8 to Rs. 9.99 5 if Per Capita Tax Revenue is within Rs. 6 to Rs. 7.99 4 if Per Capita Tax Revenue is within Rs. 5 to Rs. 5.99 3 if Per Capita Tax Revenue is within Rs. 4 to Rs. 4.99 2 if Per Capita Tax Revenue is within Rs. 3 to Rs. 3.99 1 if Per Capita Tax Revenue is within Rs. 2 to Rs. 2.99 0 if Per Capita Tax Revenue is less than Rs. 2 Maximum Marks Marks Obtained Allotted Marks If yes If no 1 0 1 0 1 0 1 0 2 2 2 2 1 1 1 1 1 1 0 0 0 0 0 0 0 0 0 0 Marks Obtained
Maximum Marks : 2 20 0 10 0
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16. Own Source Revenue in Last Financial Year (Continuing)
Maximum Marks Marks Obtained
What is the perc enta ge of incre ment of tax 10 if increment is 30% or more reve 9 if increment is 27-29%, 8 if increment is 24-26% nue 7 if increment is 21-23%, 6 if increment is 18-20% in 5 if increment is 15-17%, 4 if increment is 12-14% the 3 if increment is 9-11%, 2 if increment is 6-8% last 1 if increment is 3-5%, 0 if increment is less than 3% year and -2 if last year’s collection is less than its com previous year pare Tax d to R its e previ v ous e year n ? u eWhat was the perc enta ge of Coll 13 if 100% collected, 12 if 95-99% collected, ectio 11 if 90-94% collected, 10 if 80-89% collected, n out 9 if 70-79% collected, 8 if 60-69% collected, of 7 if 50-59% collected, 6 if 40-49% collected, Asse 5 if 30-39% collected, 4 if 25-29% collected, ssme 3 if 20-24% collected, 2 if 15-19% collected and nt in 0 if less than 15% collected last finan cial year ? 8 if Per Capita Non-Tax Revenue is more than or equal to Rs. 10 7 if Per Capita Non-Tax Revenue is within Rs. 8 to Rs. 9.99 6 if Per Capita Non-Tax Revenue is within Rs. 6 to Rs. 7.99 Per capita 5 if Per Capita Non-Tax Revenue is within Rs. 5 to Non- Rs. 5.99 Tax 4 if Per Capita Non-Tax Revenue is within Rs. 4 to Reve Rs. 4.99 nue 3 if Per Capita Non-Tax Revenue is within Rs. 3 to Rs. 3.99 2 if Per Capita Non-Tax Revenue is within Rs. 2.50 to Rs. 2.99 1 if Per Capita Non-Tax Revenue is within Rs. 2 to Rs. 2.49 0 if Per Capita Non-Tax Revenue is less than Rs. 2 Non-Tax
17. Cashbook Subject On which date cashbook has been written last? Scoring Pattern 4 if yesterday 3 if within last 3 days 2 if in between 4-7 days 1 if in between 8-15 days 0 if more than 15 days ago ,, Maximum Marks Marks Obtained 4
which date subsidiary cashbook has been written last? On which date Pradhan has signed ,, the cashbook last? What is cash in hand today? (if 4 if Rs. 500 or less some money is 3 if in between Rs. 501-700 withdrawn from the bank 2 if in between Rs. 701-800 to make labour payment, 1 if in between Rs. 801-900 that amount not to be 0 if in between Rs. 901-1000 taken into consideration -2 if more than Rs. 1000 here) For how many days money is kept 4 if no such cash in hand or cash in hand for labour withdrawn today or yesterday payment as per today? 3 if cash withdrawn 2 days ago 2 if cash withdrawn 3 days ago 1 if cash withdrawn 4-5 days ago 0 if cash withdrawn more than 5 days ago Total Actual Marks Obtained (= Total Marks Obtained ÷ 2) 18. Audit Subject Scoring Pattern
Maximum Marks Marks Obtained 2
Has the report of last Statutory Audit 2 if yes, 0 if no has been placed and discussed in the General Body meeting of GP? How the measures suggested in this 3 if all measures have been taken within report have been taken? due time, 2 if some measures have been taken within due time and some after due time, 1 if all measures have been taken after due time and 0 if no measures have been taken
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18. Audit (Continuing) Subject Scoring Pattern Maximum Marks Marks Obtained 2
Has the report of last Internal Audit 2 if yes, 0 if no has been placed and discussed in the General Body meeting of GP? How the measures suggested in this 3 if all measures have been taken within report have been taken? due time, 2 if some measures have been taken within due time and some after due time, 1 if all measures have been taken after due time and 0 if no measures have been taken Total 19. Fund Utilisation
Maximum Marks Marks Obtained 40
What is the percentage of funds utilized out of 40 if 90-100%, 32 if 80-89%, the total funds received for different 24 if 70-79%, 16 if 60-69%, programmes (including opening 8 if 50-59% and balance) during the last financial 0 if less than 50% year? Utilisation What percentage of Own Fund has 10 if 90-100%, 8 if 80-89%, o been utilized? 6 if 70-79%, 4 if 60-69%, f 2 if 50-59% and O 0 if less than 50% w What percentage of Own Fund has 5 if less than 10%, n been utilized for office 4 if 10-19%, 3 if 20-29% and F expenses? 0 if more than 30% u What percentage of Own Fund has 5 if 40% or more, 4 if 30-39%, n been utilized for various 3 if 20-29%, 2 if 10-19%, d social programmes (e.g. 1 if 5-9% and o education, health, 0 if less than 5% f nutrition, women and G child development etc.)? P What percentage of Own fund has 5 if more than 15%, 4 if 13-15%, d been utilized for 3 if 9-12%, 2 if 6-8%, u education during the last 1 if 3-5% and 0 if less than 3% ri financial year? n What percentage of Own fund has 5 if more than 15%, 4 if 13-15%, g been utilized for health 3 if 9-12%, 2 if 6-8%, t during the last financial 1 if 3-5% and 0 if less than 3% h year? e What percentage of Own fund has 5 if more than 15%, 4 if 13-15%, la been utilized for women 3 if 9-12%, 2 if 6-8%, st & child development 1 if 3-5% and 0 if less than 3% fi during the last financial n year? a n ci al y e a r (i n cl u d i n g o p e n i n g b
20. Provision for sending Utilisation Certificates and Report Returns (a) Utilisation Certificates Subject When Pattern Scoring Pattern Maximum Marks Marks Obtained 7
For various 7 if sent within 3 months from the receiving of fund, G sch 3 if sent within 4 months from the receiving of fund, P em 1 if sent within 6 months from the receiving of fund, es 0 if sent beyond 6 months from the receiving of fund n For o ad r mi m nis a l trat 3 if sent within the period for which the fund is received, l ive 2 if sent within 15 days from the end of the period for y ex which the fund is received, pe 1 if sent within 1 month from the end of the period for s nse which the fund is received, e s 0 if sent beyond 1 month from the end of the period for n which the fund is received and d -2 if never sent s U C ? Total
(b) Report Returns
Annual works report 2 if within the due date, 0 otherwise G Half-yearly works report 1 if within the due date, 0 otherwise P Monthly progress report 4 if within the due date, 0 otherwise 3 if within the due date, n 2 if within 7 days after the due date, o 1 if within 15 days after the due date and r 0 if more than 15 days after the due date m a l l y s e n d s t h Data and reports edemanded by State sGovt., District, Subedivision, Block from the GP time to time r e p o r t s a n d d a t a ? Total
Maximum Marks Marks Obtained 2 1 4
21. Natural Resource Utilisation
Maximum Marks Marks Obtained 10
(a) What percentages of areas On the basis of the available data have been covered 10 if 90-100%, 8 if 80-89%, 6 if 70-79%, under social forestry out 4 if 60-69%, 2 if 50-59%, 0 if less than 50% of the total possible and -2 if data is not available space? (b) What is the percentage of 5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31tubewell/well/tank that dries out 40%, 1 if 41-50%, 0 if more than 50% in the summer? (c) What is the percentage of 5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31areas where it has not 40%, 1 if 41-50%, 0 if more than 50% been possible to prevent land erosion? Total Actual Marks Obtained (= Total Marks Obtained ÷ 2)
5 20 10
Maximum Marks Marks Obtained
A. Good Governance
1. Peoples’ participation in GP’s activities 2. Participation of the members in the functioning of GP (a) Last Gram Sansad meeting (General Meeting, not special) (b) Formation of Gram Unnayan Samiti and Secretary Election 10 10 5 5 10 5 5 20 8 10 5 2 10 15 15 10 10 10 10 10 5 10 200 5 10 20 10 10 15 10 10 10 100
(a) How many Upa-Samitis have submitted their Budget? (b) How many Upa-Samitis have submitted their budget within due time? (c) How many meetings of the GP General Body and UpaSamitis took place during the last one year? (d) Issues regarding the General Body meeting of GP (e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year? 3. Services delivered by GP 4. GP Building & Office Management 5. GP Information (a) Register related Management & (b) Are the following lists available at the GP office for Disposing System public viewing? (c) Regarding right to information 6. Transparency in GP’s work 7. Education 8. Public Health (a) Health Services (b) Drinking Water & Sanitation (c) Women & Child development 9. Pro-poor Activities 10. Development of Economic and Social Infrastructure 11. Housing 12. Disaster Preparedness 13. Social Security Total (Good Governance)
B. Resource Mobilization & Its Utilisation
14. Issues regarding Bye-Law of GP 15. Issues regarding GP Plan & Budget 16. Own Source Revenue in Last Financial Year 17. Cashbook 18. Audit 19. Fund Utilisation 20. Provision for sending Utilisation (a) Utilisation Certificates Certificates and Report Returns (b) Report Returns 21. Natural Resource Utilisation Total (Resource Mobilization & Its Utilisation)
Grand Total Actual Total Marks Obtained (= Total Marks Obtained ÷ 3)
Signature & Seal of Secretary Signature & Seal of Executive Assistant
Signature & Seal of Pradhan
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