Government of India PANCHAYAT! RAJ INSTITUTIONS GATEWAY TO SUSHASAN (GOOD GOVERNANCE) =] Visit us at: - http://panchayat.gov.in ‘e-mail: secy-mopr@nic.inTable of Contents Chapter 1 Framework of Panchayat Raj ‘The Constitutional Mandate. Panchayats and Good Governance smu Panchayats and Socio-economic Development. Structure of Panchayats... Supporting Constitutional Bodie The Role of States District Planning Committe... ‘The Provisions ofthe Panchayats (Extension to the Scheduled Areas) ACt, 199B..cuinnsonnnnS ‘Areas Not Covered under Part IX. Chapter 2 Key Issues and Thrust Areas of MOPR..-. Mandate of MoPR, Key Issues. 6 Modalities. Schemes/Programmes of MOPR sn. Knowledge Generation and Advocacy. Chapter 3 Devolution of Powers to Panchayats... Status of Devolution... ‘Advocacy with State Governments. [Activity Mapping of Functions Devolved by States to Panchayats, Schematic Interventions. Panchayat Devolution Index... Delegation of Powers under Centrally Sponsored Schemes to Panchayats WThirteenth Finance Commission Grant Chapter 4 Backward Regions Grant Fund Programme. Background... Objectives BRGF Components. Unique Features of ARGF ‘Special Provisions for Areas not under Parts IX & [KA of the Constitution. ee Centrality of Panchayats and Gram Sabhas. ‘Support for Planning. Management of the Programme. Progress of BRGF. 20 Review of BRGF... Chapter 5 Rajiv Gandhi Panchayat Sashaktikaran Abhiyan. Goals 2 Modalities. Activities. Progress and impact ing and Training. Challenge of CB &1 for Panchayats. Initiatives for Capacity Building NeBF 2014, ‘Active Panchayat Series. Capacity Building for Sani Chapter e-PanchayatIntroduction... Objectives et Activities. Key features of web-based Applications 2 Current Status 38 challenges. Key Achievements AccOlAdeS nun Road Aheaé... Chapter 8: Gram Sabha, PESA and Accountability. Gram Sabha. ‘The Provisions ofthe Panchayats (Extension to the Scheduled Areas) Act, 1996... Chapter 9 Best Practices of Panchayats and Gram Sabhas.. Panchayat Sashaktikaran Puraskar 46 Rashtriya Gaurav Gram Sabha Award... Chapter 1 Media and Action Research so..siminnisnnsnsnnnnnn ee) Media and Publicity ‘Action Research and Research Studies, Chapter 1 Plan and Budget 1 Eleventh Plan.. Twelfth Plan 2 Chapter 1 Initiatives Taken and the Proposals... Abbreviations and Acronyms.List of Annexures ‘Annexure 1: 29 Subjects Listed in the ELEVENTH SCHEDULE of the Constitution 6 ‘Annexure 2: Status of Devolution to the Panchayati Raj Institutions for Major States/UTs 8 ‘Annexure 3: Dl Awards in 2013-14. 14 Annexure 4: Status on the Revision of Guidelines and preparation of Activity Mapping by Eight Ministries/Departments ... 50 Annexure 5: BRGF: Funds released during 12" Five Year Plan Period . 52 ‘Annexure 6: List of PES Applications... 53 Annexure 7: State/ UT-wise Adoption of PES Applications... 55 Annexure 8; Allocation and Utilization of Funds in the Twelfth Plan Period and Proposed BE for 2015-16. 57Chapter 1 Framework of Panchayati Raj The Constitutional Mandate Panchayats are local self-governments in rural areas mandated in the Constitution of India. Article 40 in the Constitution under the Directive Principles provides that the State shall take steps to organize village Panchayats and endow them with powers and authority as may be necessary to enable them to function as units of self- government. With the 73 Constitutional Amendment in 1993, elected Panchayats for rural areas became mandatory as per Part IX of the Constitution. However, ‘Panchayats’ being a State subject (Article 246 read with List Il State List of the Schedule 7), detailed provisions regarding the Panchayati Raj system in a State is contained in the respective State/UT Panchayat Raj Acts. Panchayats and Good Governance Panchayats are key institutions for promoting good governance, as it is at the local level, participation and accountability can be ensured. In a Gram Panchayat, even the poorest people can take part in the meetings of Gram Sabhas and have an impact on decisions that affect their lives. At the local level, decision-makers are accessible and can be 1held accountable for specific actions. Therefore, strong and vibrant Panchayats can play a very important role in promoting participatory and responsive governance. Of special importance here is the Gram Sabha which is a key forum for people's participation and for holding local governments accountable. Panchayats and Socio-economic Development Panchayats are the key to fostering local development. At the grassroots level, plans can be made based on local needs and priorities. Strategies that are appropriate to the context can be adopted and their implementation can take care of the sensitivities of the needs of vulnerable individuals. Empowered Panchayats can promote sustainable socio-economic development in their areas and address the needs of the citizens. Structure of Panchayats As per the Constitution, three tiers of Panchayats are to be constituted, except in States with population less than 20 lakhs where Panchayats at two tiers may be created (Article 2438). Direct elections are to be held to seats at all the three tiers of Panchayats and indirect elections are to be held to the offices of chairpersons of block and district Panchayats. However, decision whether chairpersons of Gram Panchayat are to be elected directly or indirectly, is left to the States (Article 243C). The Constitution recognizes the institution of Gram Sabha, i.e. a body consisting of all the electors in a village Panchayat (Article 243A). Elections to Panchayats are to be held every five years (Article 243 €). Apart from being representative bodies, the Constitution ensures that the Panchayats are inclusive institutions. Seats and offices of chairpersons are to be reserved for the Scheduled Castes (SC) and Scheduled Tribes (ST) in proportion to their respective populations {Article 243 D(1)}, and not less than one third seats and offices of chairpersons are to be reserved for women, including within SC and ST reservations (Article 243D (2) & (3)}. States may also reserve seats or offices of chairpersons in Panchayats in favour of backward class of citizens {Article 243D (6)}Today, there are 2.51 lakh Panchayati Raj Institutions (PRIs) in the country, which include 2.39 lakh Gram Panchayats, 6405 Block Panchayats and 589 District Panchayats or Zilla Parishads, Panchayati Raj Institutions 2,51,000 There are 27.31 lakh Elected Representatives in these Panchayats, 36.9% of whom are women, 19.1% SCs and 11.8% STs. Share of Elected Representatives (~ 27.31 lakh) 36.90% ‘= Women Rep, asc ast 19.10%.Supporting Constitutional Bodies The Constitution provides setting up of State Election Commissions (SECs) and vesting them with the superintendence, direction and control of the preparation of electoral rolls and the conduct of elections to the Panchayats (Article 243K). The Constitution further provides that State Finance Commissions (SFCs) be constituted every five years. SFCs are to make recommendations to the Governor regarding the distribution between the State and Panchayats of the net proceeds of taxes, duties, toll, fees, etc., the determination of taxes, duties, tolls and fees which may be assigned to, or appropriated by, the Panchayats, and grants-in aid to the Panchayats from the Consolidated Fund of the State, as well as measures needed to improve the financial position of Panchayats (Article 2431). The Role of States Within the above broad framework, State legislature has a critical role in determining various aspects of Panchayati Raj for the State. The detailed provisions regarding the structure and functioning of Panchayats are contained in various State Acts. The decision on the extent of devolution of powers to Panchayats has been left to the State legislature. An illustrative list of 29 matters which can be devolved is given in the Eleventh Schedule (Annex I). The Constitution envisages that Panchayats will function as institutions of self- government and prepare plans and implement schemes for economic development and social justice. Powers to impose taxes by and provision of funds to the Panchayats is to be determined by State (Article 243H). The powers of Gram Sabhas are also decided by States (Article 2434). States play a critical role is building Panchayat capacities and in creating an appropriate framework for accountability and transparency. District Planning Committee Article 243 ZD of the Constitution mandates setting up of District Planning Committees (OPCs) in every district. The DPCs are required to consolidate the plans prepared by the Panchayats and Municipalities in the district and to prepare the draft development plan for the entire district. While it is up to the State legislature to determine the exact composition of the DPC, at least four- fifths of the total number of members of the DPCs are elected members of the 4Panchayats at the district level and of the Municipalities in the district in proportion to the ratio between the population of the rural areas and of the urban areas in the district. State legislation contains detailed provisions regarding the functioning of DPCs including the chairperson of the DPC. The Provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 In the Fifth Schedule areas, Panchayats have been extended through the Provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 (PESA) which was enacted on December 24, 1996. PESA envisages self- governance through the Gram Sabhas and while extending the Panchayati Raj structure as envisaged in Part IX of the Constitution, gives wide powers to the Gram Sabhas in Fifth Schedule areas. ‘Areas Not Covered under Part IX While Part IX of the Constitution applies to a vast majority of the country, as per Article 243M of ‘the Constitution, some areas are exempted from application of the provisions of Part IX. These include the States of Meghalaya, Mizoram and Nagaland, areas covered under the Sixth Schedule, the hill areas of Manipur and the district level Panchayats in the hill areas of Darjeeling in West Bengal. Various kinds of grassroots level_—_local governance structures exist in these areas.Chapter 2 Key Issues and Thrust Areas of MoPR Mandate of MoPR The mandate of the Ministry of Panchayati Raj (MPR), which was set up in May 2004, is to ensure implementation of the provisions of Part IX of the Constitution, provisions regarding the District Planning Committees as per Article 24320, and PESA by the States/UTS. The Ministry's vision is to attain decentralized and participatory local self-governments through PRis. The Ministry's mission is empowerment, enablement and accountability of PRIs to ensure inclusive development with social justice and efficient delivery of services. The Ministry does this by: + advocating greater devolution of powers and responsibilities by States and in implementation of Centrally Sponsored Schemes through systematic activity mapping; * building the capaci * promoting transparency and accountability of Panchayats s of Panchayats; and Key Issues Panchayats are evolving institutions, and MoPR needs to address a range of issues to support Panchayats in becoming empowered and effective local self- governments. The key issues in Panchayati Raj that MoPR addresses are: (i) At present, Panchayats lack adequate powers to perform their role as local governments. In most of States sufficient funds, functions and functionaries (3Fs) have not been devolved usually citing the lack of capacity of Panchayats as the reason; (ii) There is shortage of manpower and infrastructure in Panchayats, especially at the Gram Panchayat (GP) level. Many GPs lack even core staff, buildings and finances which are basic constraints in improving their effectiveness. While GPs are expected to collect taxes, plan, 6(iii) (iv) “ (vi) implement and supervise programmes, they often lack even the most basic administrative and technical capacity; Central as well as State sector schemes tend to be implemented in silos, integrated plans at the Panchayat level are not prepared and even when these are prepared, they are not made part of the State plans. DPCs are not active in many States; ‘Though there are more than 29 lakh Elected Representatives (ERs) in the country including many from marginalized groups, and many ‘first- timers’ who work in a public institution for the first time when they get, elected to Panchayats and about 10 lakh Panchayat Functionaries (PFs), the institutional structures to support the capacity building programmes for Panchayat ERs and functionaries are grossly inadequate. At the State level, State Institutes of Rural Development (SIRDs) are often the nodal institutions for capacity building of Panchayats but they usually have only one or two faculty members engaged in training of ERs and PFs. In fact, given the huge number of ERs (there are around 4,300 ERs in a district on an average), and emphasis on reservation for women, SCs and STs, trainings have to be organized at the district and block levels to facilitate participation by these groups. However the institutional arrangements at the district and sub-district levels for this are inadequate; Continued e-enablement of Panchayats is necessary for making them truly modern institutions of government and improve the delivery of services; The key to democratic and effective functioning of Panchayats are empowered Gram Sabhas. Gram Sabhas need to be made active and inclusive, and capacitated to undertake participatory planning, social audit, and acting as watchdogs for implementation of programmes; (vii) Though PESA envisages Gram Sabhas as key units of governance in Fifth Schedule areas, Gram Sabhas are not adequately empowered to play this role. There is need to take special measures to build up the capacity of Gram Sabhas so that they are enabled to assert their rights and take decisions as provided under the provisions of PESA;i) The functioning of Panchayats needs to be made more democratic and effective. This means improvement in processes such as decision- making, project formulation and implementation, revenue generation, accounting, office management; etc.; (ix) After the 73°’ Amendment, elections to the Panchayats are being held regularly through the SECs. But the general lack of requisite manpower and infrastructure with SECs constrains their ability to ensure free and fair elections; and (x) Democratic governance needs to be promoted in areas where Part IX of, the Constitution does not apply. Modalities The Ministry works to fulfil its mandate in various ways. Firstly, through its schemes, it promotes and provides funds for key activities. Secondly, it plays a strong advocacy role. MoPR fosters knowledge creation and sharing among the various stakeholders. The issues to be addressed are clearly articulated; meaningful strategies formulated and shared within the government as well as with non-government agencies and experts. ‘Schemes/Programmes of MoPR To address these issues, MoPR implements the following main schem (i) Backward Regions Grant Fund Programme (BRGF) which provides untied funds for Panchayats in 272 backward districts in the country on the basis of plans prepared by Panchayats. (ii) The Rajiv Gandhi Panchayat Sashaktikaran Abhiyan (RGPSA) which aims to strengthen Panchayati Raj in the country by building Panchayat capacities on the one hand, and encouraging and supporting States to devolve powers to Panchayats and take measures to promote transparency and accountability, on the other.In addition, MoPR has two smaller schemes: (i) Media and Publicity scheme aims at effective communication through electronic, print and other available media for advocacy and publicity regarding Panchayats as well as measures to build the capacities of Panchayats and enhance their performance. (ii) The Action Research & Research Studies (AR&RS) scheme provides financial support to academic institutions, NGOs, research organizations, etc., to undertake research to provide an in-depth analysis of long-term issues, impacts and experiences in Panchayati Raj across the country. Knowledge Generation and Advocacy The Ministry also undertakes several activities to persuade States to devolve powers to Panchayats, build their capacities and promote transparency and accountability in Panchayats. These are described in detail in the subsequent chapters. It creates and sponsors creation of knowledge about Panchayati Raj so that issues can be understood in greater depth and more effective strategies can be evolved.Chapter 3 Devolution of Powers to Panchayats Status of Devolution As mentioned in chapter 1, ‘Panchayat’ is a State subject and as per the Constitution, the devolution of powers and authority to Panchayats has been left to the discretion of States. As per Article 243G of the Constitution, the State Legislatures are to consider devolution of functions to the Panchayats including the 29 matters illustratively set out in the Eleventh Schedule. States vary in the extent to which they have devolved powers to the Panchayats. States such as Kerala, Karnataka, Maharashtra, Gujarat and West Bengal have strong traditions of Panchayats and have devolved substantial powers to Panchayats. In Kerala, 25% State plan funds are provided to Panchayats in an untied form. Panchayats can access these funds on the basis of plans prepared and approved by the DPC. Moreover, the Gram Panchayat, the lowest tier, has been empowered substantially in the State. Panchayats, especially at the district level, play a very important role in the implementation of schemes in Karnataka, Maharashtra and Gujarat. In recent years, Rajasthan, Tripura and Sikkim have taken important steps to devolve powers to Panchayats. However, in many States, the devolution of powers to Panchayats is minimal, and progress needs to be made in this regard. The status of devolution of funds, functions and functionaries to Panchayats by the States is provided at Annex Il. Advocacy with State Governments The devolution of powers, responsibilities and resources to Panchayats is considered essential for sustainable decentralization and inclusive development. The Ministry continuously advocates with and persuades the State Governments to devolve powers to Panchayats. Activity Mapping of Functions Devolved by States to Panchayats For effective devolution, there should be a clear cut delineation of functions for each level of the local government. Clarity on the role and responsibilities 10of the Panchayats of different tiers is provided by ‘activity mapping’ which becomes an important step in the devolution of functions to the Panchayats. Activity mapping means unbundling of subjects or sectors and assignment of various activities to the different levels of government on the basis of clear principles of public finance and public accountability, and above all, the governance principles of subsidiarity, democratic decentralization and citizen- centricity. A good activity mapping would clearly identify where competence, authority and accountability lie. MoPR has supported States in preparing activity maps to delineate the roadmap for devolution. Schematic Interventions The Ministry has enhanced its efforts since 2012-13 to promote devolution of Powers by States to Panchayats by linking 20% funds of the Rajiv Gandhi Panchayat Sashaktikaran Abhiyan (RGPSA) to performance on various indicators that set out an appropriate policy frame for Panchayats which include devolution. While submitting the annual plan proposals under RGPSA, States have to submit before the Central Executive Committee (CEC) of RGPSA, the status of devolution of 3Fs and initiatives taken by them. The performance of States on this count is also is assessed. Panchayat Devolution Index To encourage States to empower Panchayats, the performance of States regarding devolution is measured through a Panchayat Devolution Index (PDI) every year. The PDI is prepared by an independent agency and awards are given to the States which rank high on POL. MoPR has been continuously improving the scope and methodology of the PDI. Since 2008-09, evaluation of States has been based on a two-stage assessment. uIn the first stage, States are assessed on the fulfilment of the following fundamental Constitutional requirements: (i) Establishment of State Election Commission (ii) Holding of elections to the PRis (iii) Setting up State Finance Commission {iv)Constitution of the District Planning Committees {(v) Reservation of seats for SCs/STs and women (effective from 2013-14) States that fulfil each of these fundamental requirements, qualify for evaluation in terms of various indicators of the PDI. The indicators of the PDI aim at assessing the state of devolution in respect of the funds, functions, and functionaries by the States to the PRIs. The studies from 2010-11 to 2013-14 have assessed the States on cumulative as well as incremental PDI. The cumulative PDI measures the performance of States to date. States that have historically had strong Panchayati Raj systems tend to rank high on the cumulative PDI. The incremental PDI measures the performance of States over one year. With the introduction of the incremental PDI, States that do not have strong Panchayati Raj systems historically but have taken important measures during the year can also win prizes. This has generated a new enthusiasm among States. The list of award winning States in 2013-14 as per the PDI is at ‘Annex It. Delegation of Powers under Centrally Sponsored Schemes to Panchayats MoPR advocates a strong role for Panchayats in the Centrally Sponsored Schemes (CSSs) that aim at the social-economic development of the rural people so that these schemes can become more context specific and a greater measure of accountability and transparency can be introduced. At present, there is a great deal of variation across CSSs in the extent to which roles for three tiers of Panchayats have been envisaged. While schemes such as the Mahatma Gandhi National Rural Employment Guarantee Scheme, the Sakshar Bharat Abhiyan, National Rural Drinking Water Programme, etc., provide substantial role for Panchayats, in several other CSSs, the role of Panchayats has not been articulated and various grassroots level parallel bodies have been set up instead. 2MobR, therefore, constituted an Expert Committee under the chairpersonship of Shri Mani Shankar Aiyar, MP in 2012, to (i) review the existing policy and guidelines of relevant Central Sector/Centrally Sponsored Schemes dealing with social sector and anti-poverty programmes and to give specific recommendations on (a) appropriate roles and responsibilities of Panchayats at different levels based on the principle of subsidiarity, (b) strengthening their capacity to deliver services, and (c) making them accountable to respective Gram Sabhas; (ii) the constraints that may come up in operationalizing the delivery system through the PRls and suggest ways and means of dealing with the same; and (iii) ways to incentivize States to devolve 3Fs to Panchayats, The Committee submitted its report in April, 2013. The report contains several recommendations for empowerment of PRIs which include revision of CSS guidelines and activity mapping for CSSs for providing roles and responsibilities to the PRis. The Expert Committee has also given model “activity mapping” for the schemes administered by eight Ministries/Departments namely; Rural Development, Agriculture and Cooperation, Water Resources, Rural Drinking Water and Sanitation, School Education and Literacy, Health and Family Welfare, Women and Child Development and Tribal Affairs. The report of the Expert Committee was circulated to all the State Governments and Central Ministries for taking appropriate action. Moreover, an Inter-Ministerial Steering Committee on “Enhancing the role of Panchayats in Centrally Sponsored Scheme” headed by Secretary, Panchayati Raj met in July 2013 and reviewed the status of implementation of the recommendations of the Expert Committee in respect of CSSs. Further, the Cabinet Secretary wrote in August, 2013 to all Secretaries in ‘the Ministries/Departments to take time-bound action for revision of CSS guidelines and preparation of activity mapping based on the Expert Committee's recommendations. Meetings of the Committee of Secretaries Bwere also convened to review the progress made. All the eight Ministries/Departments have revised the guidelines of the identified schemes along with completion of activity mapping for providing appropriate roles and responsibilities to PRls. The status of the revision of guidelines and preparation of activity mapping is enclosed at Annex IV. Thirteenth Finance Commission Grant ‘An important aspect of the financial devolution to Panchayats is the grants recommended by the Central Finance Commissions (CFC) for Panchayats. These are untied grants with which the Panchayats can undertake activities as per their needs. The Thirteenth Finance Commission recommended that 2.28 % of the divisible pool (2009-14) of revenues be provided as untied grants to local self-governments. The award of the 13” FC is an important step in the devolution of finances to Panchayats, as a certain percentage of taxes are devolved to Panchayats in an untied form for Panchayats to use as per their need. The 13" FC award has two components: * Basic Grants are released subject to fulfillment of two conditions that States must have elected Panchayats in place and submission of UCs in respect of previous instalment drawn. = Performance Grants to PRis are recommended subject to fulfillment of six stipulated conditions of FC Xill in addition to above two conditions. ‘As per the guidelines of the Ministry of Finance, a Central Monitoring Committee (CMC) has been constituted under the chairpersonship of Secretary, Panchayati Raj to monitor the release of basic grants and recommend release of performance grants to PRis as recommended by the Commission. The grants are released by the Ministry of Finance. During the years 2010-11 to 2014-15, the status of release of grants to the States for the award period 2010-15 against each category of grant is as under: Rs. in crores (as on 30.11.2014) “4General Basic Grant 33464,79 Special Area Basic Grant 606.87 General Performance Grant 13875.70 Special Area Performance Grant 326.16 Grand Total 48273.52 Ministry of Panchayati Raj has submitted its memorandum to the Fourteenth Finance Commission in August, 2013 on various aspects related to the Terms of Reference of the Fourteenth Finance Commission. The Ministry has made its recommendations to further carry forward the reforms recommended by the Thirteenth Finance Commission to deepen the process of decentralization and ensure that the Panchayats have access to resources to discharge the responsibilities bestowed on them. 15Chapter 4 Backward Regions Grant Fund Programme Background ‘The Backward Regions Grant Fund Programme (BRGF) was launched at Barpeta district of Assam, on 19” February, 2007 for 250 districts. Twenty two districts were added in June, 2012, and now BRGF is being implemented in 272 identified backward districts in 28 States of the country. BRGF is a 100% centrally funded programme wherein untied funds are provided to PRIs to address local felt needs. Objectives BRGF is designed to’ a. Decentralize the planning processes through emphasis on participative planning at the grassroots level; b. Redress regional imbalances in development by providing financial assistance for supplementing and converging existing developmental inflows; ¢, Strengthen Panchayat/Municipality level governance; and d. Support appropriate capacity building programmes. BRGF Components BRGF has the following components: a. Development Grant Component in which an annual district allocation is fixed on the basis of the total funds available and criteria such as 16population and geographical area of the district, with a minimum allocation of Rs. 10 crores per district. b. Capacity Building Component in which the allocation is fixed @ Rs. one crore per annum per district for the capacity building of Elected Representatives(ERs) and Panchayat functionaries and creation of training infrastructure. For the inter-se allocation of BRGF funds to Panchayats and Urban Local Bodies (ULBs) within the districts, each State indicates the normative formula to be used. Unique Features of BRGF The unique features of the BRGF are: (i) It puts the Panchayats and the Municipalities at centre stage of planning and implementation; (ii) The grant is ‘untied’ and can be used for any work preferred by the Panchayat/ Municipality as long as it fills a development gap and the work is identified with people’s participation; (iii) t contains a special component for the capacity building of ERs and PFs; (iv) It encourages convergence of plans through integrated district plan preparation; and (v) It does not provide or enforce any schematic overlay that would be subversive of the principle of local prioritization in planning. Special Provisions for Areas not under Parts IX & IXA of the Constitution BRGF Programme has special provisions for the districts/ areas in the States of J&K, Assam, Manipur, Meghalaya, Mizoram, Nagaland and Tripura which do not have Panchayats as envisaged in the Constitution. The village level bodies and institutions in these districts constituted under local laws or executive instructions are empowered to plan and implement the Programme in these areas. 7Centrality of Panchayats and Gram Sabhas BRGF makes Panchayats and Gram Sabhas central. The annual action plan has to be discussed and ratified in the Gram Sabha and voluntary disclosure of activities undertaken under BRGF programme has to be made before the Gram Sabha, Social audit by Gram or Ward Sabhas in rural areas and Area Sabhas and Ward Committees in urban areas is required. The Gram Sabha authorizes the issuance of utilization certificates of the funds utilized for undertaking activities. The display of boards with details at worksites is mandatory under the programme. Under the BRGF, funds are transferred to the Consolidated Funds of the State Governments. Subsequently, the programme mandates that the funds are to be transferred to Panchayats and Municipalities by the State Governments within 15 days, the failure to do so leads to imposition of penal interest at RBI rates. Regular physical and financial audits of the works under the programme are carried out at the end of each financial year in each district. Support for Planning The Ministry supports the planning process of Panchayats in two important ways. Firstly, technical support for DPCs is provided to prepare district plans as per State’s requirements. The Ministry has empanelled institutions having expertise in technical and developmental matters as Technical Support Institutions (TSIs) to help preparation of district perspective plans for 2011-12 to 2016-17 and annual district plans of the corresponding period in the BRGF districts. Secondly, MoPR has promoted e-enablement of the planning process. A software application called PlanPlus has been developed which facilitates consolidation and integration of plans of all the planning units in a district. Currently, generation of plans through PlanPlus has been prescribed as one of the necessary requirements for release of BRGF funds. Monitoring of implementation of the programme is facilitated throug (i) ActionSoft which captures the work execution flow, facilitates decentralized reporting of progress of work execution, converges and 18keeps track of the flow of funds from different sources during implementation, converges the rural and urban plan units to report the physical and financial progress of works, brings about total transparency in the reporting of physical and financial progress. {ii) National Asset Directory (NAD) which acts as a repository of various assets created/controlled/maintained by — Panchayats/ULBs/Line Departments. It assigns a unique code to each asset, captures the details of an asset as it moves through its life-cycle and enables record keeping of various assets. It also generates various reports related to the list of assets, asset up-gradation and maintenance, asset earnings and asset disposal. It interoperates with other software applications so as to avoid duplication of data entry by the end users and provides browser independence and local language support. (ii) mActionSoft (being developed) wherein the users can upload the photos through smartphone directly from the site. While capturing the photo latitude, longitude of the location as well as date and time will also be recorded on the server. The Ministry’ website provides all information including details of funds released. The BRGF SMS (Scheme Monitoring System) has been developed for information on release and tracking of funds. Management of the Programme At the State level, the designated department, in most cases, the Department of Panchayati Raj, acts as the nodal department for management, monitoring and evaluation of the programme. A High Powered Committee (HPC) headed by the State Chief Secretary is constituted to review the progress of implementation of the programme. A representative of MoPR, the State Plan Adviser of the Planning Commission and other Government of India nominees as deemed necessary, are also included in the HPC. A review committee at the district level examines the peer review reports prepared by Panchayats. Monitoring is also undertaken through the District Vigilance Monitoring 19Committees. At the National level, the programmes are monitored through review meetings and field visits. Progress of BRGF The BRGF has provided substantial untied funds for Panchayats and ULBs for local development. During the th Five Year Plan, 99.98% of the total funds were released to the State Governments. During the 12" Plan, (till 31.42.2014) an amount of Rs. 9,291.20 crores has been released to the State Governments. State-wise and year wise details may be seen at Annex V. BRGF Programme has made substantial contribution in supporting the decentralized planning process. BRGF has also strengthened the functioning of the District Planning Committees. When the programme was launched in 2007, only 13 States had constituted the DPCs; now all the BRGF States have functional DPCs. Review of BRGF The first independent review of BRGF was conducted in 2009. The overall conclusion of “Seemann ra the review was that the BRGF programme has PE , stimulated a process of PRI/ULB strengthening, particularly in poor States and districts. The review found that the BRGF Capacity Building (CB) Fund has enabled States to provide relevant training for elected PRI/ULB representatives and staff through cascading models, satellite mode, helplines and engaging TSIs. 20Chapter 5 Rajiv Gandhi Panchayat Sashaktikaran Abhiyan The Rajiv Gandhi Panchayat Sashaktikaran Abhiyan (RGPSA) has been launched during the Twelfth Plan period and subsumes the earlier smaller schemes of the Ministry. Goals The main objective of RGPSA is to strengthen the Panchayati Raj system across the country and address the critical deficiencies that constrain the functioning of Panchayats. The goals of RGPSA are to: * Enhance the capacities and effectiveness of Panchayats and the Gram Sabhas; * Enable democratic decision- making and accountability in Panchayats and promote people's participation; © Strengthen the _ institutional structure for knowledge creation and capacity building of Panchayats; * Promote devolution of powers and responsibilities to Panchayats according to the spirit of the Constitution and PESA ; ‘© Specially strengthen Gram Sabhas in Fifth Schedule Areas; * Create and strengthen democratic local self-government in areas where Panchayats do not exist; and ‘© Strengthen the legal frame work on which Panchayats are founded. Modalities Funds are accessed by States as per need based and context specific plans selected from various activities permitted under RGPSA. RGPSA extends to all States and UTs of the country where provisions of Part IX of the Constitution are being implemented. The funding pattern in the scheme is 75:25 by Central and State Governments except for NE States where it is 90:10. aStates are required to fulfil some essential conditions for accessing RGPSA funds which include: a. Regular elections to Panchayats or local bodies in non-Part IX areas under the superintendence and control of the SFC; b. Atleast one third reservation for women in Panchayats or other local bodies; ¢. Constitution of State Finance Commission (SFC) every five years and placement of Action Taken Report on the recommendations of the SEC in the State legislature; and d. Constitution of District Planning Committees (DPCs) in all districts and issue of guidelines/ rules to make these functional. States that do not fulfill the above essential conditions are not eligible for funds under RGPSA. Strengthening the Panchayati Raj system involves not just provision of capital, buildings, other infrastructure, human resource, expertise, and capacity building, etc, but also adequate devolution, bottom-up planning, convergence, accountability and free and fair elections. Under RGPSA, States are expected to show appropriate progress on the above mentioned aspects, as they access funding for various components under the scheme. These deliverables encompass the following: a Articulating an appropriate policy framework for providing administrative and technical support to Panchayats including recruitment and service rules as needed; b. Strengthening the financial base of Panchayats by assigning appropriate taxes, fees, etc c. Timely release of Central Finance Commission (CFC) grants as untied grants and release of SFC grants; 24d. Ensuring devolution of funds, functions and functionaries; e. Preparing and operationalizing a framework for bottom up grassroots level planning and convergence through the DPC; f. Ensuring free and fair elections and making the SEC autonomous; g. Strengthening the institutional structure for capacity building of Panchayats and selecting suitable partners for capacity building; h, Strengthening Gram Sabhas, and creation of Mahila Sabhas and Ward Sabhas; i. Institutionalizing accountability processes such as voluntary disclosure of information and social audit; J. Strengthening the system of budgeting, accounts and audit including use of e-enabled processes; and k. Ensuring compliance of State laws and rules with PESA, Activities Acti ivities that can be undertaken by States under RGPSA for strengthening the PRIs are as follows: wo (iil Provision of core staff at the Gram Panchayat (GP) keeping in mind the size of the Panchayat and staff available; New GP buildings, repairs of existing buildings, construction of toilets wherever don’t exist (including separate toilets for women), electricity and water supply for the GPs; )) Capacity building & training for ERs and PFs; (iv) Strengthening of institutional structures for capacity building and training including setting up of State Panchayat Resource Centres, District Panchayat Resource Centres and Block Resource Centres; (v) Provision of computers to Panchayats; 2B(vi) Panchayats that lack resources for basic activities like Gram Sabha meetings, planning and social audit are supported under the scheme to carry out their basic processes; (vii) Support to strengthen Gram Sabhas in Fifth Schedule Areas and NE areas where Part IX does not apply; (vii) Innovative activities to strengthen Panchayati Raj may be included in State Plans for up to rupees two crore per annum; (ix) Information, Education and Communication (IEC) activities to raise awareness levels of Panchayats; (x) Strengthening of State Election Commissions including purchase of EVMs, process development, etc., in order to ensure free and fair elections to Panchayats; and {xi) To support the Panchayati Raj Departments of the States, Programme Management Units (PMUs) at the State and District level. The PMUs help Panchayati Raj Department in planning, implementation and monitoring of the scheme. At the National level, the following activities are undertaken: {i) The performance assessment and incentivisation of Panchayats through a rigorous process; {ii) Implementation of e-Panchayat activities; (iii) Support to resource agencies for innovative activities; and {iv) Technical support to States. Progress and Impact The scheme of RGPSA was approved in March 2013. A token provision of Rs.50 crore was kept for the scheme during 2012-13. An amount of Rs.43 crore (approx.) was released to the States. Under the BE 2013-14, a plan provision of Rs, 655 crore was provided for the scheme. Plans of 26 States were approved and Rs. 623 crore was released. In 2014-15, plans of 26 States for strengthening Panchayats have been approved so far and Rs 394.60 crore has been released.Though it is a new scheme, RGPSA has made an important intervention for strengthening the Panchayati Raj system in the country. To begin with, as States have prepared their plan proposals under the scheme, they have taken stock of the Panchayati Raj system, and set goals for strengthening it. Second, some key problems at the grassroots level can now be addressed. For example, the manpower and infrastructure sanctioned for Gram Panchayats under RGPSA so far are: ‘Administrative and Technical Support to Gram Panchayats sanctioned under RGPSA (Figures in numbers) Accountant cum-DEQs sanctioned for Gram $4753 | 30377 | 85130 Panchayats Panchayat Sachivs/ PDOs sanctioned for Gram 15290 2599 | 17889 Panchayats JEs/technical staff sanctioned 2570 | 3829 | 6399 Total Personnel sanctioned under RGPSA so far 109418 Construction of New and Repairs of Existing Gram Panchayat Bhawans (PBs) sanctioned under RGPSA (Figures in numbers) New Panchayat Bhavans sanctioned 3128 | 1251 | 4379 | Repairs of existing PBs sanctioned 7727 | 6521 | 14248 Computer infrastructure to Gram 22506 | 13310 | 35816 Panchayats In addition, as the subsequent chapters will reveal, the capacity building system is being considerably strengthened and it has become possible to take special measures for Fifth Schedule Areas. 25Chapter 6 Capacity Building and Training Challenge of CB &T for Panchayats Capacity Building and Training (CB & 7) of various stakeholders of Panchayats is a complex task as it involves large numbers. There are about 28.5 lakh ERs alone - as well as a range of other stakeholders such as Panchayat functionaries including Panchayat Development Officers, secretaries, accountants, water pump operators, etc. departmental officials that work with Panchayats, members of Gram Sabhas, as well as people who impact Panchayats in various ways such as public representatives, experts and media persons. The challenge is to reach out to this diverse group while ensuring quality, context specific CB &T. Moreover, as Panchayats are local self-governments, ‘the subjects to be covered are also large ranging from management, finance, social mobilization to 29 subject areas that are to be devolved to Panchayats. Initiatives for Capacity Building ‘MoPR has supported the CB&T of ERs and PFs as well as other stakeholders in several ways. Under RGPSA as well as the CB grant of BRGF, substantial support has been provided for setting up the training infrastructure and to impart training. In addition, MoPR arranges sharing across States and also supports knowledge based activities as described below: 6MoPR, along with States, has successfully addressed the challenge of large numbers for training by deploying the cascade mode of training as well as distance education. Around 15 lakh ERs and PFs are trained every year. The number of ERs and PFs for whom training programmes has been sanctioned under RGPSA during 2013-14 and 2014-15 is given as under: Number of ERs and PFs to be trained under RGPSA. 1096825 | 1583884 Several training institutes have also come up with interesting modes of training such as on the spot training, work books, help desks, street plays, etc. Exposure visits of ERs to well-performing Panchayats have also been ‘organized. The range of stakeholders to be trained has also expanded considerably to include various technical functionaries, Gram Sabha members, school children, etc. Concerted efforts are being made under RGPSA to strengthen the institutional structures for imparting training. The number of institutions sanctioned at various levels is as follow: State Panchayat Resource Centres B 10 23 (21 States & 2 UTs) District Panchayat Resource Centres | 136 175 311 Block Panchayat Resource Centres 338 681 1019 Faculty support to SPRC 16 16 | Support for SATCOM 0 5 5 Upgradation of Extension Training | 30 29 59 Centres 7NCBF 2014 The National Capability Building Framework (NCBF) for the capability building of Panchayats was first prepared in 2006 by the Ministry which laid out the broad principles, areas and methodologies for the capacity building of -—_-Panchayats. Subsequently, many government and non-government _ training institutes undertook training of ERs and PFs. They encountered many problems and innovated in various ways. Subsequently, MoPR decided to revise the NCBF on the basis of the lessons learned so far. With intensive involvement of State Institutes of Rural Development (SIRDs) as well as non-government resource institutions, the best practices followed in capacity building of Panchayats across the country were documented. These were discussed in regional and national works shops in which recommendations were made in the following areas: Expanding Outreach of Training Modes of Training Areas of Training Quality of Training Training of SC, ST and Women Representatives Institutional Structures and Processes 28The NCBF 2014 incorporates the recommendations made in these areas and also._ provides illustrations of best practices in capacity building and training. A workshop was also held with the States where States have examined their strategies in light of the NCBF 2014, and identified key steps that they intend to take to improve the outreach and quality of their training. Plans prepared by State ‘teams in the workshop have been uploaded on the website of the Ministry. Active Panchayat Series In 2014-15, the Ministry of Panchayati Raj is taking a special initiative to equip Gram Panchayats to play an active and meaningful role in various spheres. For this, reading materials suitable for Gram Panchayats are being prepared as itis found that reading material which specially addresses activities that can be taken up by Gram Panchayats is not available adequately. Ten books on various topics are being prepared. Of these, the following first three are ready: = Governance in Gram Panchayats dealing with issues such as planning, income generation, supervision, account keeping, Gram Sabha meetings, social audit, etc., which allow Gram Panchayats to manage their own affairs, + Sanitation in Gram Panchayats to assist Gram Panchayats in planning and ensuring sanitation in their area. = Drinking Water in Gram Panchayats to help Gram Panchayats to provide safe drinking water to households in a sustainable way. 29Subsequent books will address education, health, natural resource management, gender and issues related to children. States have already begun to translate and adapt these books in their context. In addition, resource books for trainers on these subjects as well as Gram Sabha readers are being developed. These activities are being undertaken under the UNDP project: ‘Strengthening Capacities of Panchayati Raj Institutions’. Capacity Building for Sanitation In view of the “Swachh Bharat Mission” announced by the Hon'ble Prime Minister on 15" August 2014, the Ministry has prepared its plan on sanitation. This includes intensive capacity building of Panchayats on sanitation. For this, the Ministry is in the process of setting up a National Resource Group which will train State teams who will lead the process of capacity building of Panchayats in the States/UTS.Chapter 7 e-Panchayat Introduction Government of India (GOI) with a view to. transform the governance landscape by ensuring participation of citizens in policy making and providing ease of access to information to the citizens, introduced the National e- Governance Plan (NeGP) in 2006. The vision of the NeGP is to "Make all Government services accessible to the common man in his locality, through common service delivery outlets and ensure efficiency, transparency & reliability of such services at affordable costs to realize the basic needs of the common man." e- Panchayat is one of the Mission Mode Projects (MMP) under the National e- Governance Plan that seeks to completely transform the functioning of PRIs making them more transparent, accountable and effective as last mile cutting- edge organs of decentralized local self-governance. Objectives The project aims to automate the functioning of the Panchayats and addresses all aspects of Panchayats’ functioning including planning, monitoring, implementation, budgeting, accounting, social audit and delivery of citizen services like issue of certificates, licenses, etc. The objectives of the e- Panchayat project are to use ICT as: * A decision making support system for Panchayats; * A tool for transparency, disclosure of information to citizens and social audit; «Means for better and convergent delivery of services to citizens; 31«Means for improving internal management and efficiency; and # Means for capacity building of representatives and officials. The e- Panchayat project holds great promise for the rural masses as it aims to transform the Panchayats into symbols of modernity, transparency and efficiency. It is a nationwide IT initiative that endeavors to ensure people's participation in decision making, implementation and delivery of various programmes and schemes of the government. Activities A. suite of Core Common Applications envisaged to address most areas of Panchayats’ functioning viz. from internal core functions such as planning, monitoring, implementation, budgeting, accounting, social audit, etc., to citizen service delivery like issue of certificates, licenses, etc,, has been developed under the project. Collectively, these Applications constitute the Panchayat Enterprise Suite (PES).States that have their own software applications were advised to integrate their State-specific applications with the PES Applications. A Training of Trainers (ToT) model has been adopted to build capacity up to grassroots levels. Key features of web-based Applications The list of PES applications is at Annex 6. The characteristics of PES Applications are: {i) They are web-based, workflow-enabled and UNICODE-compliant; ji) They are based on open source tools and technologies and made available free of cost to all the States/UTs; (iii) All Applications can be accessed either through a single portal (htto://panchayatonline.gov.in) or through their own independent URLs; 2(iv) All Applications can operate in single sign-on mode; (v) They are integrated with SMS and e-mail gateways; (vi) Most Applications are generic and can be used by Urban Local Bodies and other line departments; and (vii!States may operationalize PES Applications one-by-one as per their readiness. Current Status e-Panchayat was dovetailed with RGPSA scheme in the 12" Five Year Plan period. All States/UTs have been building their specific requirements for e- enablement (ICT infrastructure and manpower) in their annual RGPSA plans and funds are being sanctioned. The ten (10) PES Applications have been developed and are at different stages of adoption by States/UTs as shown at Annex VII. The GIS — er Application is under review. In order to enhance the usage of the PES Applications under the project, the Ministry has adopted the cascading model for imparting training right up to the Gram Panchayat level through building a pool of Master Trainers (district level) across the States. So far, more than 27,000 Master Trainers have been trained on various PES Applications. In addition, training on basic IT literacy has been imparted to over 20,000 PFs and ERs through National Institute of Electronics & Information Technology (NIELIT). Further, e-Panchayat Puraskars are being conferred on the best performing States/UTs every year to incentivize e-enablement at Panchayat level.Challenges There are two key challenges for the e-Panchayat project that need to be addressed. The first is the lack of ICT infrastructure and internet connectivity at the grassroots level (Gram Panchayat). However, this has not hindered the project rollout. Till the time National Optical Fibre Network (NOFN) provides connectivity to all the Gram Panchayats, they have been advised to undertake data entry through the nearest Panchayat having internet connectivity. States like Maharashtra, Tripura, Andhra Pradesh, etc., have prescribed a fixed schedule for data entry to ensure quick adoption. The second challenge is of change management and capacity building to maximize adoption and usage of PES Applications. The Ministry has been laying a lot of emphasis on the capacity building of the ERs and PFs. Despite lack of ICT infrastructure and internet connectivity at the grassroots (Gram Panchayat) level, MOPR in partnership with the States/UTs has undertaken a journey to transform the governance landscape in rural India. Key Achievements The key achievements of the e-Panchayat project are: (i) Accounting transparency- More than 1.9 lakh Panchayats have made online voucher entries in PRIASoft in 2013-14. Further, amongst the States that have adopted PRIASoft (excluding Karnataka, Kerala, Gujarat, West Bengal & Madhya Pradesh which are using State specific accounting applications), the Application is being used by 74% of Panchayats in the country for maintaining/ managing their accounts. (ii) Bottom up development planning including citizen participation- More than 60,000 Panchayats have put their approved annual action plans online in 2013-14. (ii) Citizen Service Delivery- States are being enabled to deliver various Government to Citizen (G2C) services (dependent on the level of devolution of functions to the PRis) through ServicePlus Application at the Gram Panchayat level. Maharashtra is now providing 19 services electronically to citizens (e.g. Birth Certificate, Death Certificate, 34Domicile Certificate, etc.) and Chhattisgarh is providing 5 services using ServicePlus. (iv) RTI compliance is sought to be achieved through adoption of PRIASoft, NAD & SAMM Applications. (v) For the first time, a Central repository of all the PRIs in India is available through the LGD Application. Other government agencies are also in the process of adopting the repository as a single and legitimate source of PRI listing. (vi) Boundaries of 80% Gram Panchayats are available on a GIS platform. (vilJEfforts are underway for use of GIS at Panchayat level to enable scientific planning, monitoring and decision making. (vill) As on 3° December, 2014, the National Asset Directory (NAD) contains details of 1.18 crore assets of the Panchayats worth more than INR 23,000 crores. (ix) IT literacy- Till date, Basic Computer Course training has already been imparted to more than 20,000 ERs & PFs. This course work empowers/_ enables them to handle computers as part of their daily working to work on e- Panchayat Applications and to access information available in public domain. The Ministry is already working towards further extending the IT training to cover about 50,000 PFs & 1, 00,000 ERs through NIELIT. Accolades The e-Panchayat project has won the silver award in Best Government Website Category in National Awards for e-Governance as well as the Web Ratna Gold Icon Award by the Department of Administrative Reforms and Public Grievances for Comprehensive Web Presence. It has received a rating of 4 out of 5 from the Expert Group headed by Advisor to PM. Road Ahead E-enabling Panchayats is a key mandate of the Ministry. While much has been achieved, the Ministry plans to continue the process in the following ways:(i) PRIASoft has been in use for some years now and as part of continuous evolution of the Application, in discussion with the project stakeholders, the Ministry has decided that in addition to the facility to maintain and manage PRI accounts online, PRIASoft would also be positioned as a tool for monitoring accounting procedures and to facilitate Local Fund Audit, and State AG/ C&AG to undertake regular audit of the PRIs. This would further enhance the accountability and reliability of the PRI accounts currently being maintained in PRIASoft. To this effect, in consultation with a few States, an audit Application (http://auditonline.gov.in) has now been developed and is being field tested prior to the National launch scheduled in January, 2015. (ii) With the progressive availability of connectivity at the Gram Panchayat level through the NOFN programme, the Ministry in partnership with the States/ UTs which are getting broadband connectivity through NOEN is planning to further disseminate adoption and usage of the e-Panchayat Applications across the Panchayats in the country. This would result in manifold increase in the use of e- Panchayat Applications. The increased availability of funding under RGPSA has provided support to this process. (ii) In collaboration with the Planning Commission, the Ministry is promoting Integrated District Planning (IDP) in States. In this regard, it has been decided that during FY 2014- 15, the IDP process would be piloted in two districts in each of the States. A National workshop in this regard was organized in Gujarat on 25"- 26" September, 2014. The workshop served to provide a platform to the States for sharing experiences and best practices in district planning, identifying bottlenecks and formulating the roadmap for Integrated District Planning. For the IDP process, the Ministry is having discussions with various stakeholders such as Planning Commission, Indian Space Research Organization (ISRO), World Bank, NIRD, etc., for guiding and providing handholding support to the States/ districts with the IDP process. (iv) Under e-Panchayat MMP, a ‘Basic GIS Application’ with limited functionality in partnership with NIC is already available and it enables top management at National, State and district levels to get a spatial 36view of the intensity of adoption of all Panchayat Enterprise Suite (PES) Applications. After several rounds of discussions with the State Governments, ISRO, National Informatics Centre (NIC), Survey of India (S01), Bhaskaracharya Institute of Space Application and Geo-informatics (BISAG) Gujarat, National Institute of Rural Development and Panchayati Raj (NIRD) Hyderabad, PRI officials, GIS experts, etc, it is now planned to enhance the scope of the GIS Application to enable scientific planning, monitoring and informed decision making at the Panchayat level. Discussions are underway with concerned stakeholders to integrate their specific GIS layers within this revamped GIS Application for informed decision making. It is planned to leverage the GIS platform as an effective tool for undertaking Integrated District Planning. (v)In line with Government of India’s agenda of introducing mobile governance, efforts have been initiated to translate the e Panchayat Applications onto the mobile platform. In this regard, a mobile application (m-ActionSoft) has already been developed for online monitoring of works at Gram Panchayat level. (vi) The Ministry is planning to create a data repository of the assets created and maintained by the Panchayats. In this regard, the Ministry is in discussion with ISRO for engaging their Bhuvan platform for this task. ‘A DPR for this exercise has already been prepared and submitted to DeitY for sanction of funds. (vii)The Ministry is working towards promulgating IT literacy till the grassroots level. In this regard, the Ministry would facilitate training of about one lakh Elected Representatives and fifty thousand Panchayat functionaries throughout the country in the current financial year (FY 2014-15) through National Institute of Electronics and Information Technology (NIELIT). (vii) With an intention to increase its outreach, with availability of 24*7 engagement opportunity with all its stakeholders, the Ministry has made its presence felt in the social media through its Facebook page (www.facebook.com/ministryofpanchayatiraj) In addition to the regular updating of the relevant news and information on the Ministry's website htto://www.panchayat.gov.in/), the Facebook page has been 37positioned to serve as an alternate medium for the citizens to come to know of the various initiatives taken by the Ministry in order to facilitate administrative reforms in Panchayats. (ix)As part of the e-Panchayat programme, during 2014- 15, the Ministry has also launched a Central helpdesk for logging, tracking and addressing queries/issues related to PRIASoft & PlanPlus Applications. The helpdesk has been tasked to handle day- to- day queries related to PRIASoft & PlanPlus and guide the callers and users. The helpdesk will also log the technical queries which cannot be addressed on the spot and would require further investigation for resolution. In such cases, each query would be assigned a unique query number that would be provided to the caller/user for tracking the query til its resolution. The helpdesk operates 7 days a week (Monday- Sunday), from 8:00 am- 8:00 pm (12 hours) and is available through the Toll Free Number- 1800117200. The helpdesk has currently been operationalized in three languages- English, Hindi, and Marathi. Going forward, the Ministry plans to extend the helpdesk to cover remaining PES applications and to include other regional languages.Chapter 8 Gram Sabha, PESA and Accountability Gram Sabha Importance of Gram Sabha Gram Sabha is the deepest form of decentralized governance where every voter of a Gram Panchayat is a member and can participate in decision-making, approval of plans and selection of beneficiaries. Gram Sabha ensures direct _ participative democracy and offers equal & Opportunity to all citizens including the poor, women and the marginalized to discuss and critically evaluate various issues that affect the socio-economic development of the villages. Ministry's Support to Gram Sabha The Ministry has supported States in ensuring regular and meaningful conduct of Gram Sabha meetings and participation of marginalized groups of, society, The performance indicators of RGPSA scheme include several aspects of this process including promotion of Mahila Sabhas and Ward Sabhas meetings. RGPSA also promotes institutionalization of 39accountability processes such as social audit through Gram Sabhas. States have to indicate progress and commitment on the above issues in their annual plans seeking funds under RGPSA. Financial assistance towards training of Gram Sabha is also provided under the capacity building and training component of RGPSA. Funds for Panchayat processes such as Gram Sabha meetings, planning, etc., are also provided to the weak Panchayats with a resource base. The Ministry has also been periodically making attempts to motivate the Gram Panchayats to address important issues of social concern viz. the nutrition and health issues and adverse child sex ratio in Gram Sabhas. The Provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 Scope ‘A major function of the Ministry is to oversee the implementation of the provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 (PESA) by ten States that have areas listed under the Fifth Schedule, namely Andhra Pradesh, Chhattisgarh, Gujarat, Himachal Pradesh, Jharkhand, Madhya Pradesh, Maharashtra, Odisha, Rajasthan and Telangana. There are 108 PESA districts in these ten States out of which 45 are fully and 63 are partially notified under the Fifth Schedule of the Constitution, Powers of Gram Sabha PESA provides wide powers to the Gram Sabhas. The Gram Sabhas under PESA are deemed to be competent to safeguard and preserve the traditions of theirpeople, community resources and customary mode of dispute resolution. The Gram Sabhas further have: © Mandatory executive functions to approve plans of the village Panchayats, identify beneficiaries for schemes and issue certificates of utilization of funds; * Right to mandatory consultation in matters of land acquisition, resettlement and rehabilitation, and prospecting licenses/mining leases for minor minerals; ‘© Power to prevent alienation of land and restore alienated land; ‘© Power to regulate and restrict sale/consumption of liquor; © Power to manage village markets and control money lending to STs; * Ownership of minor forest produce; * Power to control institutions and functionaries in all social sectors; and * Power to control local plans and resources for such plans including TSP, etc. Challenges In spite of the critical importance of implementing PESA in the Fifth Schedule Areas, there are many operational issues acting as constraints in the implementation of PESA. Some State and Central subject laws relating to mines and minerals, forests, land acquisition, etc., are yet to be made PESA compliant. Five out of ten States are yet to frame appropriate Rules under PESA, resulting in delays in implementation of the PESA in letter and spirit. The functioning of Gram Sabhas has to be made effective by ensuring participation of government functionaries in the meetings of Gram Sabhas. Capacities of Gram Sabhas as well as Elected Representatives have to be built. This will help in channelizing the generation of demands by the villagers and also in the accountability of the functionaries, particularly in the left wing extremism affected areas. There is a need to monitor the implementation of the Act at the district and State levels. 41MoPR Initiatives Strengthening the Gram Sabha, capacity building and training of Elected Representatives in these areas and ensuring compliance of State Panchayati Raj Acts and subject laws to PESA provisions remain the focus of the Ministry's activities. Guidelines on implementation of PESA have been issued to all the Fifth Schedule States by the Ministry. The Ministry has got conducted a study of the subject laws of all the PESA States regarding compliance with PESA. The study also suggests changes required for compliance of State Panchayati Raj laws and other subject laws with the provisions of PESA. The study reports were sent to the States with the request to make necessary amendments, frame rules, etc. States have made certain amendments to various subject laws/rules in consultation with the line departments. For effective implementation of PESA, MoPR has circulated draft Model Rules for PESA to all the PESA States for framing of rules for effective implementation of PESA. Five States viz. Andhra Pradesh, Himachal Pradesh, Rajasthan, Maharashtra and Telangana have framed their State PESA Rules to facilitate the ground level implementation. A committee under the chairpersonship of Dr. T. Haque was constituted by the government in August 2010 to suggest appropriate measures on ‘Ownership, Price Fixation, Value Addition and Marketing of Minor Forest Produce’. The committee submitted its report in May 2011. Subsequently, the Government has started a Centrally Sponsored Scheme of “Mechanism for Marketing of Minor Forest Produce (MFP) through Minimum Support Price (MSP) and Development of value Chain for MFP”. The scheme seeks to establish a system to ensure fair monetary returns to MFP collectors by fixing Minimum Support Price. It also supports primary value-addition of MFP, provides for supply chain infrastructure like cold storage, warehouses, etc., and emphasizes on scientific harvesting of MFP. To start with, the scheme is being implemented in eight states namely, Andhra Pradesh, Maharashtra, Odisha, Chhattisgarh, Madhya 2Pradesh, Jharkhand, Rajasthan and Gujarat for 12 MFP, namely; Tendu, Bamboo, Mahuwa Seed, Sal Leaf, Sal Seed, Lac, Chironjee, Wild Honey, Myrobalan, Tamarind, Gums (Gum Karaya), Karan. With support of MoPR, all the PESA States have formulated training plans for capacity building of ERs and PFs. Funds available under BRGF and RGPSA are being used for capacity building trainings by States. Training manuals have been prepared by the National Institute of Rural Development and Panchayati Raj (NIRD&PR) and concerned SIRDs. In addition to the need to train the ERs and PFs at Gram Panchayat level, there is also a requirement to train the officers of block and district administration and all line departments at various levels. Accordingly, State Governments have prepared annual plans to systematically address the training requirements of ERs, PFs and government officials of all levels. NIRD&PR and SIRDs spearhead the trainings. Under RGPSA, special support is being given to the Fifth Schedule States by providing the following: i. Provision of one Gram Sabha Mobiliser in each PESA Gram Panchayat to ensure maximum participation members of PRIs in the decision making process; ji. One PESA coordinator in each block; iii, One PESA coordinator in each district; iv. Provision of a sum of Rs. 10,000 for each Gram Panchayat for orientation programmes for Gram Sabhas in PESA areas; and v. Asum of Rs. 10,000 for contracting the NGOs for regular hand holding. The purpose of this assistance is to make Gram Sabhas active and support them in exercising their rights as provided under PESA. ‘The activities sanctioned for implementation of PESA so far under RGPSA are: Gram Sabha mobilizers 24849 11153 | 36002 Support for Gram Sabha orientation 31049 | 8915 | 39964 Support to Gram Panchayat with low 5794 | 5558 | 11352 resource baseReviews are held from time to time with officials of State departments concerned with PESA implementation viz. Panchayati Raj, Revenue, Excise, Environment and Forests and Mining, and suggestions are made to bring relevant amendments in provisions, where required, make rules and take steps ‘towards implementation. Thirteenth Finance Commission Grams and Measures for Accountability ‘As noted in chapter 3, the 13th Finance Commission grant has two parts, basic and performance grant. The performance grants are subject to fulfilment of the mandatory conditions which has promoted the accountability of Panchayats in the following ways: 1. | Reforms to budget (a) States should prepare district level. Accounting System prescribed by C&AG supplement to the budget documents for PRis, with details of spatial distribution of transfers at least upto (b) States should adopt accounting framework consistent with Model (c) Adoption of 8 data base formats Funds are allocated to Panchayats by each State in budget every year which have benefited ~— the Panchayats to spend the funds according to their need and requirements for development at the grass root level. Whatever funds are received by the PRls, Proper accounts are maintained in the prescribed format and accounting system. 2. | Audit (a) C&AG to be given Technical Guidance & Supervision (TG&S) over audit of PRIs. (b) Annual Technical Inspection Report of C&AG and Annual report of the Local Fund Audit should be placed before the State Legislature. The reports of the C&AG and local fund audit are placed before the State Legislature transparency in the maintenance of the accounts to maintainAppointment of independent Ombudsman/ Lokayukta for looking into complaints of corruption and mal- against the functionaries of local bodies (both elected and officials) at least till ZP level. an administration Transfer of Funds ~ States to put in place a system to electronically transfer grants to the local bodies within five days of their receipt from the Centre or within 10 days where this is not possible due to lack of banking infrastructure. In case the funds have been misutiized, there is. an Ombudsman/Lokayukta helps in maintaining transparency reducing corruption. and The funds are immediately transferred by the _—_State government to PRis to enable them spend the funds the developmental the Panchayats without delay. to for work in State Finance Commission - States must prescribe through an Act the qualifications of persons eligible for appointment as members of the SFC consistent with article 243 | (2) of the Constitution. This ensures that SFCs consist of eminent persons, members having expertise in Panchayat Finance and States are discouraged from resorting to adhoc measures. The State Finance Commission will also have the divisible pool from the State's own source revenue is related to civics to determine what functions. Levy property tax - All the local bodies should be fully enabled to lew property tax without any hindrance. This enables the Panchayats to make their own source revenues. 45Chapter 9 Best Practices of Panchayats and Gram Sabhas The Ministry incentivizes best performing Panchayats and Gram Sabhas and also documents their best practices. The incentivisation of best performing Panchayats and Gram Sabhas is important for several reasons. Firstly, it encourages Panchayat representatives who make special efforts. Secondly, it creates models for the Panchayats and Gram Sabhas to follow. Thirdly, it focuses public attention on Panchayat performance, which encourages all Panchayats to improve their performance. Finally, this creates an eco-system for overall good governance at the local level. Panchayat Sashaktikaran Puraskar Since 2011-12, Panchayats have been incentivized for their performance under the modified Panchayat Empowerment and Accountability Incentive Scheme (PEAIS) scheme, now subsumed in Rajiv Gandhi Panchayat Sashaktikaran Abhiyan (RGPSA). Under the modified scheme, model_—_indicators, questionnaires and marking scheme have been developed by the Ministry. Subsequently, States/UTs adopted the indicators, questionnaire and marking scheme in their context. The best performing Panchayats have been incentivized on the basis of their performance on the following six aspects: a. Panchayat Functioning: (i) Panchayat functioning; (ii). Functioning of Gram Sabhas; (ii) Functioning of Standing Committeesb. Management of Officials: (i) Training; (ii) Attendance of officials in Panchayat meetings (ii) review . Planning and Budget Formulation (i) Preparation of Annual Plan; (ii) Process of Preparation of Annual Plan ;(iii) Budget d. Income Generation: ) Planning for own income; (i) Collection of Dues; (ii) Voluntary Contributions; e. Performance : (i) Physical Achievement; (ii) Expenditure Against Budget in Scheme; (ili) Expenditure on SC/ ST; (iv) Expenditure on Women; (v) Untied Funds Expenditure; (vi) Performance of Civic Duties; Panchayat & Local Institutions; (vii) Panchayat & Community Groups; (vili) Special Initiatives; (ix) IEC Initiatives f. Accountability & Transparency: (.) Maintenance of Accounts; (i) Audit; (ii) Grievance redressal; (iv) Compliance to RTI The best performing Panchayats are identified on the basis of information provided by the Panchayats on a Circulated questionnaire and field verification at the State rere eiciea level as well as the National cigs lai le level. Since 2011-12, the wa ara ea rhs rte Ministry has been publishing aa reine | document on best practices followed by the award winning best performing Panchayats. The document is also made available on the Ministry's website for wider dissemination. The book on best practices for the year 13-14 has been published. The documentation of best practices has thrown up a range of areas in which Panchayats have innovated. These include innovative ways of revenue generation and social mobilization; support to Self Help Groups, farmers’ groups fishermen’s groups, etc., in enhancing livelihoods; support to schools; initiatives to address malnutrition, child sex ratio and promote children’s health; programmes for the aged and disabled; water conservation and infrastructure creation; empowerment of women, and a host of other activities. An assessment of the award process has shown a a7high impact of this intervention, and that neighbouring Panchayats visit these best performing Panchayats and tries to learn from them. Further, the methodology for identifying best Panchayats has been used to identify poorly performing Panchayats (known as ‘on watch’ Panchayats), by several States and provide them with special support. The process for identifying the best performing Panchayats in 2014-15 is going on. To streamline the process, MoPR, in consultation with NIC, has developed a software application for selection of best performing Panchayats by States. Two workshops for the State officials were held during November and December, 2013 to give hands-on training on this application, and several States have begun to use the application. The model questionnaires for 2P/IP/GP have been condensed by the Ministry and published for adoption by States as per their context. Rashtriya Gaurav Gram Sabha Award The Rashtriya Gaurav Gram Sabha (RGGS) Puraskar was instituted by MoPR in 2010 to appreciate and encourage Gram Panchayats for making Gram Sabhas effective. The objective of instituting this award is to strengthen the institution of Gram Sabha and to highlight its importance as an institution for decision- making and social audit. For selection of best performing Panchayats under the RGGS award, parameters have been laid down by MoPR. These include the frequency with which Gram Sabhas are conducted, level of participation in the Gram Sabhas including =the participation of marginalized groups, attendance of officials, issues discussed in the Gram Sabha and positive outcome achieved, status of social audit and transparency, 48convening of Ward Sabha and Mahila Sabha meetings prior to Gram Sabha meetings and maintenance of records. State and district level committees have been formed to undertake the selection. Nominations are invited from Gram Panchayats. The information provided by the Gram Panchayats is scrutinized by district and state level committees and subsequently by a committee set up by MoPR, and the list of awardees is finalized. Awards and prize money of Rs. 10 lakh are given on 24” April, National Panchayati Raj Day. The number of awards given per year so far is: 1. 2011 ‘7.Gram Panchayats 2) 2012 10 Gram Panchayats 3. 2013 18 Gram Panchayats 4. 2014 18 Gram Panchayats Some of the best practices that have come to light include conduct of special Gram Sabha meetings on social issues such as child sex ratio, enthusiastic participation by women and marginalized groups, discussion on government schemes and unbiased selection of beneficiaries, resolutions and joint action on issues such as financial assistance to the homeless, 100% registration of the pregnant mothers, admission of dropouts to the primary schools, etc., improvement in the security situation, prevention of crime against women; protection to elderly citizens, action against human trafficking and selling of wild animals, sanitation related activities, etc. 49Chapter 10 Media and Action Research Media and Publicity To strengthen Panchayats and Gram Sabhas, MoPR needs to reach out to multiple and diverse target groups including the rural populace especially the Below Poverty Line (BPL) families, PRI representatives, officials of Panchayats and those who implement programmes, NGO personnel as well as policy makers and opinion makers. The Media and Publicity scheme aims at effective communication through the electronic and the print media for advocacy and publicity regarding Panchayati Raj as well as building the capacities of Panchayats and enhancing their performance. Given the divergent nature of the stakeholders to be addressed, multiple media options are adopted. The Ministry has undertaken the following important media related activities: a. Printing and distribution of Newsletter “Panchayati Raj”; b. Sponsored a radio programme on AIR “Apna Gaon Apna Raaj” for creating awareness on subjects related to MoPR; c. Awareness campaign through production and broadcast on community radio; d. Programmes on Doordarshan by telecast of documentary films produced by MoPR (0D National and 18 Regional Kendras); e. Half an hour exclusive programme for MoPR on Lok Sabha Television by telecast of documentary films produced by MoPR; and f. Production of training films. In the future, the Ministry intends to increase its partnership with States and support them in structuring the Information, Education and Communication (IEC) component for which funds are available under RGPSA. The Ministry intends to support the States in producing better newsletters and IEC materials. The Ministry also intends to highlight the achievements of best performing Panchayats so as to inspire other Panchayats to follow in their lead.Action Research and Research Studies ‘Action Research and Research Studies (AR&RS) scheme provides financial support to academic institutions and research organizations having specialized experience in research and evaluation in the areas of Panchayati Raj. Action research proposals provide an in-depth analysis for long - term issues, impacts and experiences in Panchayati Raj across the country. This is critical, as Panchayati Raj is an evolving area and new developments take place continuously. Through AR&RS, the Ministry supports intellectual efforts to identify cross cutting policy issues that affect PRs and to communicate these findings to Panchayats, State Governments and Ministries in the Government of India in order to help rectify deficiencies in the existing scheme guidelines and in formulating new guidelines. In recent years the Ministry has supported the following studies: a. The preparation of the Devolution Index on the basis of which States are given prizes for the devolution of powers and responsibilities to Panchayats; b. Case studies on best performing Panchayats; c. Adetailed study conducted on Elected Women Representatives; d. A detailed study conducted on compliance of State laws on PESA; e. Evaluation of the Ministry's schemes; and f. Functioning of Nyaya Panchayats in Himachal Pradesh. ‘The Ministry's vision for the future is to focus its Action Research more closely to the development of strategies and exploring virgin areas of Panchayati Raj.Chapter 11 Plan and Budget Eleventh Plan Being a new Ministry, MoPR implemented a few small schemes during the Eleventh Five Year Plan other than BRGF. The total outlay for BRGF for the Eleventh Plan was Rs. 24110 crores. The outlay of schemes other than BRGF was Rs.738.65 crores for Eleventh Five Year Plan. During the Eleventh Plan, the following schemes were implemented (i) Backward Regions Grant Fund Programme (BRGF) which provided an untied grant to Panchayats in backward districts to redress regional imbalances as well as a capacity building grant in these districts; (ii) Rashtriya Gram Swaraj Yojana (RGSY) for non-BRGF areas which provided funds for capacity building of Panchayats, limited funds for Gram Panchayat Bhawans and training infrastructure in hilly areas; (ii) €-Panchayat (MMP) under which the Panchayat Enterprise Suite comprising 11 software applications for the use of Panchayats was developed; (iv) Panchayat Empowerment and Accountability Incentive Scheme (PEAIS) which incentivized (i) States to empower Panchayats through devolution of 3Fs, and (ii) Panchayats for performance. (v) Panchayat Mahila Evam Yuva Shakti Abhiyan (PMEYSA) which provided funds for training of Elected Women Representatives and youth Panchayat leaders, form their associations and set up State Resource Centres to support them. (vi) Media and Publicity for effective communication through electronic, print and other available media for advocacy and publicity regarding Panchayats as well as measures to build the capacities of Panchayats and enhancing their performance. 1(vii)The Action Research & Research Studies (AR&RS) scheme to provide financial support to academic institutions, NGOs, research organizations, etc,, to undertake research to provide an in-depth analysis of long-term issues, impacts and experiences in Panchayati Raj across the country. (viii) Rural Business Hubs whereby assistance was provided to agencies for income generation projects in collaboration with Panchayats under the Public Private Partnership approach. ‘Twelfth Plan While these schemes had an impact especially in promoting decentralized planning, capacity building, focus on devolution of powers to Panchayats, Panchayat performance, etc, many core issues remained unaddressed including the lack of basic manpower and infrastructure at the Gram Panchayat level, the institutional structures and wherewithal for CB &T and support to Gram Sabhas in PESA areas as described in chapter 2 of the book. Some of MoPR’s schemes were so small in terms of financial outlays that States were not keen to frame proposals. Consequently, in the Twelfth Plan, MoPR consolidated and rationalized its many small schemes, merging RGSY, e- Panchayat, PEAIS and PMEYSA into the Rajiv Gandhi Panchayat Sashaktikaran Abhiyan through which it began to address a much larger range of issues, while continuing BRGF, Media and Publicity and Action Research. The two flagship schemes of MoPR in the Twelfth Plan period are BRGF and RGPSA. The Twelfth Plan Outlay for BRGF is Rs.29, 306 crores. A sum of Rs.3720.19 crores during 2012-13, Rs.2800.00 crores during 2013-14 and Rs.2771.01 crores during 2014-15 (as on 31.12.2014)) has been released under BRGF Programme. The Twelfth Plan outlay for RGPSA is Rs.11270 crores. A sum of Rs.42.92 crores during 2012-13, Rs.629.58 crores during 2013-14 and Rs.396.17 crores during 2014-15 (as on 31.12.14) has been released under RGPSA to the State Governments. A statement showing allocation/utilization for the 12" Plan period up to 2014-15 and Proposed BE for 2015-16 as on 31.12.14 is at Annex Vill.Chapter 12 Initiatives Taken and the Proposals To ensure deepening of democracy, good governance, increased efficiency, accountability and timely implementation of various schemes/programmes by PRis, some of the initiatives taken by the Ministry in the last six months are given below: (i) e-office for the whole Ministry including IFD for processing and movement of files and all other documents has been fully adopted. (ii) 180 19001:2008 certification for the whole Ministry has been obtained. (ii) The website of the Ministry has been revamped and relevant information about all schemes/programmes has been uploaded and is being updated regularly. {iv) Old records and files and all unserviceable articles have been weeded out which made additional office space available and gave a cleaner look to the office. (v) Sanitation plan has been prepared year-wise for five years and forwarded to all the State Governments for implementation. (vi) Handbooks for Gram Panchayats & Gram Sabhas on sanitation, Role of Panchayati Raj Institutions in implementation of Centrally Sponsored ‘Schemes (CSS); Success Stories of Rashtriya Gaurav Gram Sabha Puraskar {RGGSP) winning Gram Panchayats (2013-14); Best Practices by award winning Panchayats 2013-14; Panchayat Devolution Index 2013-14 and 3 ‘TOSERVICES Avion aoe LinedNational Capacity Building Framework, (NCBF) have been prepared and distributed to States. (vii)Database of contact details (mobile numbers and e-mail addresses) of elected representatives and functionaries collected and compiled and given to Ministry of Information and Broadcasting. This database is being used for conveying short messages. (vill) A Facebook page has been opened and being updated regularly. (ix) Digitization of all old files/records is about to be completed. (x) Fifteen audio-video and animation training films have been awarded/prepared for educating the ERs and PFs about their duties and responsibilities. (xi) A performance assessment application has been developed and rolled out for making assessment on the devolution of powers in 29 subjects to PRis by the State Governments and also to assess the performance of Gram Panchayats including their accountability system for the purpose of selection of best performing States and Gram Panchayats for award under “Panchayat Empowerment & Accountability Incentive Scheme. (xi/Advisories to the States issued under BRGF and RGPSA, the two flagship schemes of the MoPR, for giving priority to the implementation of various activities under the Saansad Adarsh Gram Yojana. Inthe coming months, itis proposed to complete action of the following: (i) Development and rolling out of a Software Application for online receipt and processing of proposals under the BRGF from the States including release of funds by the Ministry. (ii) Development of an online Software Application for receipt and processing of proposals under RGPSA from the States/UTs for timely released of funds so that the implementing entities get adequate working months for undertaking various activities. (ii) To begin with, selection of five Gram Panchayats for full adoption of all the Applications of the e-panchayat Mission Mode Project for delivery of public services, creating awareness among the people about various programmes of the Government, opportunities available to them,increasing efficiency and accountability of PRIs. These Gram Panchayats shall serve as replicable models. (iv) In collaboration with ISRO, NIC and DeitY, undertake mapping of all the assets of Gram Panchayats for proper planning and implementation of various schemes of the Government. (v) Finalize guidelines for monitoring of progress of implementation of BRGF and RGPSA schemes by the States through National Level Monitors. (vi) Finalize Terms of Reference and award a study for evaluation of implementation of the BRGF by various States.Annexure 1: 29 Subjects Listed in the ELEVENTH SCHEDULE of the Constitution . Agriculture, including agricultural extension. 2. Land improvement, implementation of land reforms, land consolidation and soil conservation. 3. Minor irrigation, water management and watershed development. 4. Animal husbandry, dairying and poultry. Fisheries. 6. Social forestry and farm forestry. 7. Minor forest produce. 8. Small scale industries, including food processing industries. 9. Khadi, village and cottage industries. 10.Rural housing. 1L.Drinking water. 12.Fuel and fodder. 13.Roads, culverts, bridges, ferries, waterways and other means of communication. 14.Rural electrification, including distribution of electricity. 15.Non-conventional energy sources. 16.Poverty alleviation programme. 17.Education, including primary and secondary schools. 18.Technical training and vocational education. 19.Adult and non-formal education. 20.Libraries. 21.Cultural activities. 22.Markets and fairs. 23.Health and sanitation, including hospitals, primary health centres and dispensaries. 24.Family welfare. 25.Women and child development. 26.Social welfare, including welfare of the handicapped and mentally retarded,27.Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes. 28.Public distribution system 29.Maintenance of community assets.‘Annexure 2: Status of Devolution to the Panchayati Raj Institutions for Major States/UTs ‘Andaman | Grant-in-aid is released to | All the functions (29 639 functionaries of & Nicobar| PRI’s to discharge their| subjects) have been | various Islands | functions transferred to the PRIs | departments have been transferred to the PRIs. Andhra | Only Gram Panchayats | 22 GOs issued during Functionaries are Pradesh | (GPs) are empowered to | 1997-2002. Further, under the collect taxes. | 10 line departments | administrative Governments Orders | have devolved certain | control of their (GOs) issued for devolving | powers to PRIs. respective line funds of 10 departments. departments but they are partially accountable to PRIS. ‘Arunachal | PRis do not collect taxes. | 29 subjects have been Functionaries have Pradesh | Transfer of funds by | devolved. GOs | not been departments has _not | covering 20 | transferred. taken place. departments have been issued, but not yet implemented. PRIs can exercise the powers of supervision and monitoring the implementation of plans in respect of all subjects coming undertheir respective jurisdiction, 4. Assam | PRIs are empowered to | Activity-mapping done | There has been very collect taxes but cannot | for 23 subjects. But | minimal devolution enforce. Main source of | GOs have been issued | of —_ functionaries. revenue is lease rent from | only for 7 subjects by | Officials continue to markets, river banks and | 6 departments. report to ponds. departments Bihar No taxes are collected by Activity mapping has | Departmental staffs PRis but a proposal been conducted. 20/ are answerable to regarding the same is/line deptts. have | departments, under consideration of | issued GOs. Angandwadi State Government. workers, teachers and health workers are appointed by PRIs. 6. | Chhattisga | GP is authorized to collect | Activity Mapping of 27| Panchayat make th various types of taxes.| matters has been recruitments for 9 Funds for 12 departments | undertaken. GOs not| departments, have been devolved. issued. 7. | Goa Panchayats levy 11 types 18 matters are | PRIs have their own of taxes. Untied funds are | devolved to GPs, while | core staff for the given to Panchayats. 6 are devolved to 2Ps._| execution of works. 8 Gujarat | 8 major taxes are) 14 functions have|GOs have been collected by PRls. In 2008- | been completely | issued for 09, 13 departments | devolved and 5 are | devolution of allocated funds to PRis. | partially devolved. —_| functionaries for 14 functions. 9. Haryana |GPs generate revenue Panchayati Raj Act There is no from lease of Panchayat | devolves 29 functions. | significantpremises. land, liquor cess and | GOs have been issued rental of Panchayat | for 10 depts. devolution of functionaries. 10. Himachal Pradesh Only GP is empowered to | 27 out of 29 subjects levy taxes. Funds have | have been devolved to | not not been transferred, PRIs. Functionaries have been transferred to PRIs. 1. J&K State Govt. has issued GO notifying activity mapping. Funds have been devolved in a limited sense. Functionaries have been identified in the Activity Mapping document who will assist Panchayats in carrying out assigned functions but have not been transferred. 12. Jharkhand Elections to PRIs were held in November- December 2010 for the first time since 73 CAA came into force. Three departments, namely, Agriculture, Social Welfare and Primary Education have recently devolved functions to PRls by Departmental Notification. Activity Mapping has not been done so far. 13, Karnataka PRIs collect 7 types of taxes, Panchayati Raj Act provides the mandatory transfer for untied funds to PRIs. Karnataka has delegated all 29 subjects to PRI by notifying Activity Mapping. All Panchayat employees function under dual control of the Depts. concerned and the PRIs. 14, Kerala GPs have tax domain of 9 types of taxes. Untied funds and funds for specific purposes by deptts are given to PRIs. Activity mapping for all 29 functions done and activities devolved to Panchayats. PRIs have full managerial and part disciplinary control over transferred functionaries. 15. Madhya GPs _are empowered to collect GOs containing the Functionaries 10There is no clear devolution of relating to 13 Pradesh | taxes. Funds for 13 departments | Activity Mapping | for 13 covering 19 matters are released | in respect of 25) departments to PRis. matters pertaining | have been ‘to 22 depts. have | transferred to been issued. the PRIs. There is a State Panchayat Service. 16, Maharasht | ZP and GP collect taxes. Grants for 11. subjects have | Class ll and ra 11 departments are transferred to been fully | Class Vv PRIs, devolved. For 18| employees at subjects, schemes | all levels are are implemented Zilla Parishad by PRs. employees. 17, Manipur _| Five Departments have issued GOs GOs have been | 5 Departments transferring funds to PRIs issued devolving have issued functions related | GOs to 22 | transferring departments. functionaries to PRIs. 18, Orissa__| PRIs collect 6 types of taxes. There 11 departments | Officials of 11 is no clear devolution of untied | have devolved 21) departments funds. subjects. are accountable to PRIs. 19, Punjab | Main source of income of GP is| The devolution of | No from auction of Panchayat land. |7 key departments | functionaries have been ufunds. subjects approved. transferred to PRI by line departments. 20. Rajasthan 5 departments have issued GOs transferring funds to PRis up to district level. 10% untied fund to PRIs. Five Departments have transferred all functions up to district level to PRIs. Fresh Activity Mapping of above 5 Departments has been done. 5 departments have transferred all functionaries upto district level to PRIs. 21. Sikkim PRIs do not collect taxes. Funds are being transferred by 17 departments. 10% of total fund of each department is given to Panchayats. Untied funds are given to PRIs. All 29 subjects are devolved as per legislation. Activity Mapping has been conducted for 20 subjects covering 16 departments. Employees are under the control of PRIs, but Panchayats exercise limited control over them. 22, Tamil Nadu Only village Panchayats has the power to levy taxes. 9% of the States own tax revenue devolved to Local Bodies, of which rural local bodies will receive 58% share. Government of Tamil Nadu has delegated supervision and monitoring powers of 29 subject to PRIs There is no significant devolution of functionaries. 23. Tripura Part funds related to PWD Department, primary schools and Social Welfare and social education department and pension funds have _ been So far GOs have been issued devolving irrigation schemes, primary _ schools Functionaries of 5. subjects for which functions have devolved, have 224, Uttar Pradesh transferred to the Panchayats. Untied funds are also transferred toPRIs. All 3 tiers have the power to collect taxes. and —_ activities related to adult and non-formal education, women and child development and social welfare. 16 subjects relating to 12 departments have been devolved to PRIS. been transferred to Panchayats. PRis do not have control over functionaries. 25. Uttarakha nd Only ZPs collect taxes. Funds are made available to PRIs for activities for only 3 functions. Master GO on transferring financial and administrative powers on 14 subjects has been issued in 2003. Supervisory role over functionaries related to 14 subjects. Note: © Mizoram, Meghalaya and Nagaland are exempt. * Delhi has no Panchayats. + Information is not available for UT of Dadra & Nagar Havell BAnnexure 3: DI Awards in 2013-14 Cumulative DI Awards 1 Prize ‘Maharashtra 1 2” Prize Kerala 2 3 Prize Karnataka 3 The first among North Easterr) Tripura State Lin NE States Incremental DI Awards 1" Prize Maharashtra) 1 2” Prize Kerala 2 3" Prize Chhattisgarh 3 4” Prize ‘Andhra 4 Pradesh 5! Prize Arunachal 5 PradeshAnnexure 4; Status on the Revision of Guidelines and preparation of Activity Mapping by Eight Ministries/Departments M/o Tribal Affairs 2. | M/o Rural Development Ministry of Tribal Affairs has issued operational guidelines for formulation, implementation and monitoring of the tribal sub plan and Article 275(1) grants in March 2014. Ministry of Rural Development has built into operational guidelines 2013 the activity mapping in respect of Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA), Indira ‘Awas Yojana (IAY) and National Rural Livelihood Mission (NRLM). 3. M/o Drinking Water & Sanitation The model activity mapping for National Rural Drinking Water Programme (NRDWP) and Nirmal Bharat Abhiyan (NBA) delineating the roles and responsibilities of various levels of governments, and providing specific roles and responsibilities to PRis was prepared with several deliberations with the State Governments. Thereafter the model activity mapping has been circulated to the States for implementation. 4, | M/o Health & Family Welfare The draft model activity mapping has been prepared and referred to State Governments for furnishing action taken report in respect of National Rural Health Mission (NRHM). 5. | M/o Agriculture The activity mapping has been incorporated in CSS guidelines in respect of Mission for Development of Horticulture (MIDH), National Food Security Mission (NFSM), National Missionof Oilseeds and Oil Palm (NMOOP), National Mission on Agriculture Extension and Technology (NMAET) and Rashtriya Krishi Vikas Yojna (RKWY). The comments from State Governments in respect of National Mission for Sustainable Agriculture (NMSA) are awaited. 6, M/o Human Resources & Development 7. M/o Water Resources The draft model activity mapping in respect of Sarva Shiksha Abhiyan (SSA) has been prepared and referred to State Governments for necessary action. Five States have completed activity mapping, eight States/UTs have initiated process to prepare activity mapping. The summary of activity mapping in respect of Accelerated Irrigation Benefits Programme (AIBP), Command Area Development & Water Management (CAD&WM), Repair. and. Renovation and Restoration of Water Bodies (RRR), for involvement of Panchayats has been prepared. Further revision in the activity mapping continuing, based on practical aspects. 8 M/o Women & Child Development Activity mapping under ICDS Scheme for providing roles and responsibilities to PRIs was circulated to all States/UTs for their comments. Activity mapping have been received in respect of Arunachal Pradesh, Haryana, Himachal Pradesh, Punjab and Andaman & Nicobar Islands only. The remaining States/UTs are being pursued for early response. stAnnexure 5: BRGF: Funds released during 12" Five Year Plan Period 1._| Andhra Pradesh 327.75 325.62 0.00 2__| Arunachal Pradesh 13.88 0.00 15.35 3__| Assam 142.35 76.40 125.42 4 | bihar 490.51 485.80 371.02 S__| Chhattisgarh 229.37 192.56 218.26 6 | Gujarat 55.70 4287 65.07 7_| Haryana 32.05 26.41 0.00 8 _| Himachal Pradesh 35.19 27.19 1192 9 | Jammu & Kashmir 37.36 20.40 28.47 10 _| Jharkhand 166.60 40.85 261.17 11_| Karnataka 106.32 n22 46.53 12_| Kerala 20.23 0.00 29.20 13_| Madhya Pradesh 476.07 279.21 208.70 14 | Maharashtra 267.91 246.82 229.81 15 _| Manipur 21.86 39.83, 36.76 16 _| Meghalaya 35.25 32.41 0.00 17_| Mizoram 19.42 25.36 23.14 18 _| Nagaland Asi gaz 56.67 19 _| Odisha 240.05 283.63 156.52 20__| Punjab 12.93 0.00 14.87 21_| Rajasthan 262.09 62.30 211.45 22_| Sikkim aan 8.68 12.32 23_| Tamil Nadu 100.16 94.42 23.79 24 | *Telangana 0.00 0.00 26.20 25 _| Tripura 13.66 13.04 12.63 26 _| Uttar Pradesh 207.65 27335 310.67 27_| Uttarakhand 46.84 22.79 0.00 28 _| West Bengal 306.37 99.12 226.64 Total 3720.19 2800.00 2522.58 3*Telangana is the newly carved out State from Andhra Pradesh in 2014-15. Annex VI Annexure 6: List of PES Applications 1 | PRIASoft Captures receipt & expenditure details https://accountingonline.gov.in/| through voucher entries and automatically generates cash book, registers, etc. 2 | PlanPlus Helps Panchayats, Urban Local Bodies http://planningonline.gov.in/ | and line departments in preparing Perspective, Annual and Action Plans. 3 | National Panchayat Portal | Dynamic Web site for each Panchayat to (NPP) share information in public domain. http://panchayatportals.gov. in 4 | Local Government Directory | Captures all details of local governments http://ladirectory.gov.in/ and assigns unique code. Also maps Panchayats with Assembly = and Parliamentary Constituencies. 5 | ActionSoft Facilitates monitoring of physical & http://reportingonline.gov..in, financial outcomes/outputs under various programmes. 6 | National Asset Directory (NAD) | Captures details. of assets http://assetdirectory.gov.in, created/maintained; helps avoid duplication of works. 7 | Area Profiler | Captures geographic, demographic, http://areaprofiler.gov.in, infrastructural, socio-economic and natural resources profile of a village/panchayat. Universal database for planning of all sectoral programmes and also provides details of Elected Representatives, etc. 338 | ServicePlus ‘A dynamic metadata-based service delivery portal to help in providing electronic delivery of all services in all States. The functionality of the erstwhile Grievance Redressal Application has also been subsumed into this Application. 9 | Social Audit Management and Meeting (samo) http://socialaudit.gov.in. Captures details of statutory meetings held at ZP/BP/GP levels and prepares reports for social audit 10 | Trainings Management http://t ingonline.gov.in/ 11 | Geographic Information System (GIs) Portal to address training needs of stakeholders including citizens, their feedback, training materials etc. A spatial layer to view all data generated by all Applications on a GIS mapAnnexure itate/ UT. ise Adoption of PES Applications PRIASoft” Andhra Pradesh, Assam, Bihar, Chhattisgarh, Haryana, Himachal Pradesh, Jharkhand, Madhya Pradesh, Maharashtra, Odisha, Rajasthan, Sikkim, Tamil Nadu, Tripura, Uttarakhand, Uttar Pradesh and West Bengal. PlanPlus? Andhra Pradesh, Assam, Bihar, Chhattisgarh, Gujarat, Haryana, Himachal Pradesh, Jammu and Kashmir, Jharkhand, Karnataka, Madhya Pradesh, Maharashtra, Odisha, Punjab, Rajasthan, Sikkim, Uttarakhand, Uttar Pradesh and West Bengal. National Panchayat Portal® Andhra Pradesh, Arunachal Pradesh, Assam, Bihar, Chhattisgarh, Dadra and Nagar Haveli, Daman and Diu, Gujarat, Haryana, Himachal Pradesh, Jammu and Kashmir, Jharkhand, Kerala, Lakshadweep, Madhya Pradesh, Maharashtra, Manipur, Mizoram, Odisha, Puducherry, Punjab, Rajasthan, Sikkim, Tripura, Uttarakhand, Uttar Pradesh and West Bengal. Local Government Directory* All States/UTs except Nagaland, Mizoram and Delhi. ActionSoft® Andhra Pradesh, Chhattisgarh, Gujarat, Haryana, Himachal Pradesh, Jammu and Kashmir, Jharkhand, Maharashtra, Rajasthan and West Bengal. National Asset Directory® ‘Andhra Pradesh, Bihar, Chhattisgarh, Dadra and Nagar Haveli, Maharashtra, Manipur, Sikkim, Uttar Pradesh and West Bengal. AreaProfiler” Andaman and Nicobar Islands, Andhra Pradesh, Arunachal Pradesh, Assam, Bihar, Chhattisgarh, Dadra and Nagar Haveli, Goa, Gujarat, Haryana, Himachal Pradesh, Jammu and Kashmir, Jharkhand, Karnataka, Kerala, Lakshadweep, Madhya Pradesh, Maharashtra, Manipur, Odisha, Punjab, Rajasthan, Sikkim, Tamil Nadu, Tripura, Uttarakhand, Uttar 5sPradesh and West Bengal. ServicePlus* Chhattisgarh, Maharashtra. Training Maharashtra. Management® KEY: 1. PRIASoft = States entering vouchers online for 2013-14 2. PlanPlus = States uploading approved Annual Action Plans for 2013-14. 3. National Panchayat Portal = States where the dynamic websites have been provided to Panchayats (on State's request). 4, Local Government Directory = States where unique codes have been defined for Panchayats or equivalent Rural Local Bodies 5, ActionSoft = States where financial/physical progress of works undertaken by Panchayats is being captured. 6. National Asset Directory = States where Panchayats have started putting details of their Assets in public domain. 7. AreaProfiler = States where local profile (election details, demographic data, family register, etc) is being put in public domain 8. ServicePlus = States where ServicePlus is being used to deliver services through Panchayats. 9. Training Management = States where details of trainings are being entered online. 56Annexure 8: Allocation and Utilization of Fund: and Proposed BE for 2015-16 (Rs. in crore) the Twelfth Plan Period in 2012-13. 37 * R fi Proposed (A) Centra sector we | | oe was, |Prre Actual Actual 63234 a Be Secretariat Feoromic 1 | Service (Management| 125 | 20 | 1320 | 22 | 1465 | 25 | s4ot | soe) 26 Cell, Plan) Fecretariat Enon 2. ence (Management Cll spe ace (ae [eget ge Seng | ae lonPlan) International 3 Cooperation 3 - bs . i a - i a_| CLGF os on 007 | 01} 0.08 O1 0 o1 b,_| UN Agencies us| as | so [as] ow | is] - | - | as 3 | Media ao | 19 | x2 | 15| 2442 | 20 | 239 | uss | 20 4. | Action Research | 3 | om | 3 | 2 | 3 | ow | 6 | 3 Resource Suppor to oleae pis jae pel |e je peels 6_| PMEYSA ea scree agar | ees | ace | es : 7_| RBH 0.25 oul - - - a“ - a | Peas ig | got | eee [eee : Total (A) 302 37 78.23 | 45 | 31.65 | 50.7 | 16.85 | 33.23 51 (8) css 9 | RGPsA xiz0 | s0_| 4202 | 55 | 629se| 1050 | 3947 | 3750 | 1599 10 | ePanchayats -[«ls|-|-|-|-[,-|- a1 | Rosy it] Saami | Raa |S = ie = = E 12_| BRGF 29306 | 5050 |3720.19 |6500 | 2800 | 5900 |2771.01 | 46.56 | 8500 Total (8) 0576 | 5255 _|3ess.61 |7155 | 302558 | 69s0 [aussi | sas | 10099 Grand Total (48) aoa7e | 5352 [3936.94 |7200 | 3461.23 |700027 [sisas6 | 117,38) 10150 Note: (i) PEAIS, RGSY, e-Panchayats, Resource Support to States and PMEYSA have been subsumed in the RGPSA from 2013-14, (i) RBH has been discontinued from the Twelfth Plan. However, the pending liabilities were clearedAbbreviations and Acronyms 3Fs Functions, Funds, and Functionaries AR&RS Action Research and Research Studies AV Audio-Visual BE Budget Estimates BRGF Backward Regions Grant Fund ce/ceaT Capacity Building/ Capacity Building and Training BT Computer Based Tutorial css Centrally Sponsored Scheme Dl Devolution index ppc District Planning Committee DPE Decentralized Planning & Empowerment ER Elected Representative EWR Elected Women Representative Gol Government of India GP Gram Panchayat Gs Gram Sabha ap Integrated Action Plan icos Integrated Child Development Services cr Information and Communication Technology 1EC Information, Education, and Communication T Information Technology MoM Mid-Day Meal MFP Minor Forest Produce Mahatma Gandhi National Rural Employment MGNREGS Guarantee Scheme MMP Mission Mode Project MoPR Ministry of Panchayati Raj NCBF National Capacity Building Framework NE North EasternNeGP National e-Governance Plan Nic National Informatics Centre NRHM National Rural Health Mission Bc Other Backward Class PB Planning & Budget ae Panchayat Empowerment and Accountability Incentive Scheme PES Panchayat Enterprise Suite ae Panchayats (Extension to the Scheduled Areas) Act, 1996 PDS Public Distribution System PMEYSA Panchayat Mahila Evam Yuva Shakti Abhiyan PMSA Panchayat Mahila Shakti Abhiyan PPP Public, Private, Partnership PR Panchayati Raj PRI Panchayati Raj Institution PRIA Soft PRI Accounting System Software RBH Rural Business Hub RD Rural Development RE Revised Estimate RGGSP Rashtriya Gaurav Gram Sabha Puraskar RGPSA Rajiv Gandhi Panchayat Sashaktikaran Abhiyan RGSY Rashtriya Gram Swaraj Yojana RSVY Rashtriya Sam Vikas Yojana sc Scheduled Caste SEC State Election Commission SFC State Finance Commission SIRD State Institute of Rural Development SSA Sarva Shiksha Abhiyan st Scheduled Tribe TEC Twelfth Finance Commission/Thirteenth FinanceCommission T68s Technical Guidance and Support Ts! Technical Support institution TSP Tribal Sub Plan wv Television ut Union Territoryates MINISTRY OF PANCHAYATI RAJ