european union state partnership programme with chhattisgarh of... · state partnership programme...

EU-SPP Technical Consultants This programme is funded

by European Union

Report prepared by PRIA

European Union State Partnership Programme with Chhattisgarh

Review & Modification of Activity Mapping for

Panchayati Raj Institutions in Chhattisgarh

1

Society for Participatory Research in Asia (PRIA) is an International Centre for Learning and

Promotion of Democratic Governance. PRIA got registered in 1982 under Society

Registration Act, 1860. Since its inception, PRIA has embarked on a set of key initiatives

focusing on participatory research, citizen–centric development, capacity building,

knowledge building and policy advocacy. With a combination of training, research and

consultancy, it has grounded its work with conceptual rigour and understanding of social

realities to facilitate and steer a strategic direction of development interventions. PRIA

works with a diverse range of partners at local, national and global levels. Through its

campaigns, research, education and policy advocacy interventions, PRIA's overarching

mission is to 'make democracy work for all citizens'.

Report prepared by

Contracted by

42, Tughlakabad Institutional Area, New Delhi – 110 062 (India) Phone: +91-11-2996 0931 / 32 / 33; Fax: +91-11-2995 5183 Email: [email protected]; Web: www.pria.org

EU-SPP Technical Consultants

GIZ IS Office, 2-Maulshree Vihar, Off VIP Road Raipur - 492006, Chhattisgarh (India)

2

Review & Modification of Activity Mapping for

Panchayati Raj Institutions in Chhattisgarh

Report prepared by

PRIA 42, Tughlakabad Institutional Area,

New Delhi – 110 062 91-11-2996 0931 / 32 / 33; Fax: 91-11-2995 5183

Email: [email protected]; Web: www.pria.org

Project Team Manoj Rai

Alok Pandey Anshuman Karol


This programme is funded

by European Union

Report prepared by PRIA

mailto:[email protected]

3

Preface The word Panchayat has been part and parcel of Indian social milieu. Accordingly the term

Panchayat was used frequently in different places with different connotations. Even as a

governance system, Panchayats in different provinces had different forms and functions. It was

only through the 73rd Constitutional Amendment Act, 1992 that an overall uniform framework

of constitutionally democratic Panchayats at the country level came into being. The word

Panchayat got constitutional sanction as well as clear-cut legal definition.

Almost 20 years have elapsed since the day Constitution of India created Panchayats as one of 3

spheres (other two spheres being union and state) of governance in the country. All states in

India enacted their own Conformity Panchayat Acts to sanctify and support socio-political and

legal functioning of three tiers of Panchayat Raj Institutions (PRIs). Unified Madhya Pradesh

was one of the first states to constitute Panchayat through elections in 1995 under the new Act.

Thus the constitutional Panchayats in Chhattisgarh are almost 2 decades old though the state of

Chhattisgarh was formed on 1st November 2000 by partitioning 16 districts of erstwhile Madhya

Pradesh.

The state government, in partnership with the European Union initiated a process to formulate

a ‘Road Map for the Panchayati Raj in Chhattisgarh’. PRIA was selected to prepare this "Road

Map" under the State Partnership Programme funded by the European Union. This report has

been prepared as a part of this assignment. On the basis of current status and participatory

visioning of people for their Panchayats in 2020, a roadmap for strengthening of Panchayats has

been evolved.

PRIA has tried its best to include the most relevant facts and figures in these reports. These

reports have been systematized on the basis of various field studies, group discussions,

interviews and consultations across the state and workshops in Raipur and sampled districts.

We are grateful to people, Panchayats, Government, CSOs and the GIZ for contributing at

different levels and in different ways for systematization and finalization of these reports. It is

very difficult to acknowledge all contributors by names but I would not hesitate in saying that

without them, it would have not been possible to complete this work. We are grateful to all of

them and look forward to receiving their supports in future also.

Manoj Rai Director- PRIA, New Delhi October 2012

4

Acknowledgement

Activity Mapping on the basis of principal of subsidiarity is vital to the process of devolution and

in turn strengthening panchayati raj. In Chhattisgarh few attempts have been made in past to

devolve powers to panchayats but these have shown limited results. The current attempt of

reviewing and modification of activity mapping for selected services is a part of the assignment

supported by European Union State Partnership Programme (EU SPP) in Chhattisgarh. The

present document is resulted from field studies and consultations with panchayat

representatives, government officials, gram sabha members, CSOs, experts from respective

fields and policy makers.

First of all, I would like to acknowledge the EU-SPP Technical Consultants from GIZ-IS for

constantly supporting the activities that have been undertaken to prepare this report. As

governance and institutional building are the key components of the EU- SPP, the Roadmap

prove to be useful in supporting and establishing true Panchayati Raj in the state.

I express my gratitude to Smt. Laxmi Verma, ZP President, Raipur, Smt. Sarla Kosariya, ZP

President, Mahasamund, Sh. Lachhuram Kashyap, ZP President, Bastar, Sh. Dinesh Gandhi, ZP

President, Rajnandgaon, Smt Anjana Mulkawar, ZP President, Bilaspur, Mr. Balaram Sahu, ZP

President, Dhamtari, Janpad and Gram Panchayat representatives for being a part of this study

and their encouragement on every step.

I also extend my thanks to Sh. Sunil Kumar, Chief Secretary, Government of Chhattisgarh for his

valuable inputs and encouragement in finalising this document.

Sh. Vivek Dhand, Additional Chief Secretary, Department of Panchayat, Rural Development &

Labour has always been supportive and guided us throughout the preparation of the Roadmap.

We are also thankful to Sh. Alok Awasthi, Director, Sh. B. L. Dhruw, Joint Director, Sh R. P. Patel,

Asst. Director and Sh B.N. Mishra, Asst. Director, Department of Panchayat for their guidance

and timely support.

I also extend my thanks to Sh. S.K. Mishra, Advisor, State Finance Commission, Sh. P.P. Soti,

Member, State Planning Commission, Sh. Sushil Trivedi, Former State Election Commissioner,

Chhattisgarh, Sh. R.K. Singh, Director, SIRD, Smt. Sangeeta P., Managing Director, NRLM, Sh.

K.R. Pisda, Secretary, Department of School Education, Directorate of Health Services, Sh J.P.

Mishra, Executive Director, State Health Resource Centre, Sh Ramesh Sharma, Additional

Commissioner, MGNREGA, Dr. B R Soni, Deputy Director, Health and Sh A K Sahu, General

Manager, Chhattisgarh State MFP Co-operative Federation Ltd. Ms Ritu Ghosh, State Project

Officer UNDP, Ms Shaheen Nilopher, Unicef also deserves thanks for their support.

5

I also thank team of our district investigators lead by Mr. Aalok Dubey and Mr Dinesh Singh. I

also extend my thanks to all PRIA colleagues specially Mr. Manoj Rai, Director, Dr Alok Pandey,

Sr. Manager and Mr. Mahesh Dhandole, State In-charge, Chhattisgarh and PRIA Chhattisgarh

Team for their guidance and support.

My special thanks to Dr S. S. Meenakshisundaram, Former, Deputy Chairman, State Planning

Board, Karnataka and Visiting Professor, NIAS, Bangalore for his valuable comments on the

document and helping us in refining and finalising the same.

Finally, I would like to put my sincere gratitude toward Dr. Rajesh Tandon, President of PRIA for

his guidance throughout my work.

Anshuman Karol Asst. Programme Manager PRIA, New Delhi October 2012

6

CONTENT

Chapter Page

Preface 3

Acknowledgement 4-5

Acronyms 7-8

Executive Summary 9-13

I Introduction

1.1 Background 14-15

1.2 Scope and Objectives 15-16

1.3 Approach and Methodology 16-17

II Review of Activity Mapping

2.1 Functional devolution 18-19

2.2 Financial devolution 20-21

2.3 Devolution of Functionaries 21

2.4 Current status of Activity Mapping 21-23

2.4.1 Public Distribution System (Nutrition) 24-27

2.4.1.1 Current Status of Activity Mapping 27-32

2.4.1.2 Suggestion for revised Activity Mapping 32-36

2.4.2 Primary and Secondary Education (Education) 37



2.4.3 Primary Health and related services (Health) 49-50



2.4.4 Minor Forest Produce (MFP) 57-59

2.4.4.1 Current Status of Activity Mapping 60


2.4.5 Poverty Alleviation (Livelihood) 63-65



References 70

7

Acronyms

AFO Assistant Food Officer

ANM Auxiliary Nurse Midwife

APL Above Poverty Line

BADA Block Accountant and Data Assistant

BMO Block Medical Officer

BPL Below Poverty Line

BPM Block Programme Manager

BPMU Block Programme Management Unit

CASA Church's Auxiliary for Social Action

CMHO Chief Medical & Health Officer

CSR Control Supply Rate

DAM District Accounts Manager

DPC District Planning Committee

DPM District Programme Manager

DPMU District Programme Management Unit

EU-SPP European Union State Partnership Programme

ERs Elected Representatives

FCI Food Corporation of India

FGD Focused Group Discussion

FPS Fair Price Shop

FO Food Officer

GAC General Administration Committee

GO Government Orders

GP Gram Panchayat

HESC Health, Education & Sanitation Committee

HMIS Health Management Information System

IEC Information, Education and Communication

ISM Indian System of Medicine

JFM Joint Forest Management

JP Janpad Panchayat

MCH Maternal & Child Health

8

MDM Mid-Day-Meal

MGNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme

M&E Monitoring & Evaluation

MFP Minor Forest Produce

MSP Minimum Support price

MO Medical Officer

NDCP National Deafness Control Programme

O/o Office of

PCS Primary Co-operative Societies

PDS Public distribution System

PESA Panchayat Extension to Schedule Areas

PMFPCFL Primary Minor Forest Produce Cooperative Federation Limited

PR & RD Panchayati Raj & Rural Development

PRI Panchayati Raj Institutions

SC Schedule caste

SAM State Accounts Manager

SDM Sub- divisional Magistrate

SDO State Data Officer

SFM State Finance Manager

SHGs Self Help Groups

SHRC State Health Resource Centre

SMC School Management Committee

SPM State Programme Manager

SPO State Program Officer

SPMU State Programme Management Unit

SSA Sarva Siksha Abhiyan

ST Schedule Tribe

ULBs Urban Local Bodies

VHSC Village Health & Sanitation Committee

ZP Zila Panchayat

9

Executive Summary

A. Scope of the Report

The current draft report is suggestive only. It has been prepared to generate further discussions

and the data on specific activities to be assigned/re-assigned to different tiers of Panchayats.

This report has been developed for selected 5 subjects/services namely,

1) Livelihood: Poverty Alleviation Programmes (covered under Subject No. 16)

2) Minor Forest Produce (covered under Subject No. 7)

3) Education: Primary and Secondary schools only (covered under Subject No. 17)

4) Health: Primary Health care and related health services (covered under Subject No.

23)

5) Nutrition: Public distribution System (PDS) only (covered under Subject No. 28)

These subjects have been covered under the indicative list (Schedule XI of Constitution of India)

of subjects to be devolved to Panchayats. Only 5 services are being reviewed as per discussions

and agreement among Government of Chhattisgarh, GIZ and PRIA.

B. Approach and Methodology

The current activity mapping for the matters within the scope of present assignment is

reviewed in the light of following 9 elements1 by analysing the relevant provisions made in the

state PR Act and Government orders (GO’s)/ notifications.

i) Overall architecture (modes, roles, and structures): What is the nature of linkages

among different tiers of Panchayats and/ or government departments?

ii) Legal framework and mechanism: Has the functional devolution been achieved in

accordance with the provisions of the Panchayat Raj Act and have the sectoral laws/

regulations been superseded when functional devolution has been made as per the PR

Act?

iii) Criteria and Mechanism for assigning functions: Is the devolution based on the principle

of subsidiarity, and were the functions were disaggregated into tasks to be performed

by different tiers of Panchayats?

iv) Concurrent functions: Is a particular function carried out by more than one level of

government i.e. overlapping in the functional assignment?

v) Formulation of functions: Have the functions have been devolved to ensure there is no

mismatch in functional assignment to different tiers of Panchayats and State.

1 Comparative Analysis of Activity Mapping in Himachal Pradesh, PRI Report 2008-2, GTZ

10

vi) Prescription versus discretion: To what extent the functional assignment is obligatory

and for which tier of PRIs?

vii) Organisational and personnel expression of functional assignment: What kind of

organisational adjustments (functionaries) have been made in achieving devolution?

viii) Finance’s fit with functions: Is financial devolution in consonance to the functional

devolution?

ix) Process of functional assignment: Is the devolution in the state just the compilation of

functions defined in Constitution and state Panchayat Act or realistic arrangement and

legally possible functional assignment?

The review of activity mapping has been done in the following manner:

i. Secondary data collection and review: Secondary data is collected in the form of Activity

mapping completed, government orders made in this regard, guidelines and other

documents etc. All relevant information from this literature is culled out for further

analysis.

ii. One to one Consultations with Stakeholders: Experiences and views of officials of

concerned departments, elected representatives of different tiers of PRIs and others are

be elicited through one to one consultations.

iii. Focused group discussions: FGDs are conducted, separately, with officials of concerned

departments, elected representatives of panchayats and gram sabha members to

capture their experiences regarding the status of service delivery around the subjects,

taken for review and modification. The discussions are held around functional

assignment in the form of activity mapping and effectuation of these provisions at the

ground.

C. Modification of Activity Mapping

To suggest the modifications in the Activity Mapping following activities are undertaken:

i) To review the activity mapping of the state in comparison to other states which have

comparable panchayat size as well as socio-economic context, especially Madhya

Pradesh. Other progressive states in terms of activity mapping like, Kerala, Assam,

West Bengal etc. were also reviewed to fine tune the strategy of activity mapping in

Chhattisgarh.

ii) Comparative analysis is shared with representatives of panchayats and line

departments to evolve most feasible activity mapping.

iii) The framework to link Activity Mapping with (a) capacity building requirements (b)

financial requirements and (c) administrative requirements (restructuring) is also

prepared.

11

D. Suggested Activity Mapping- Major points

1. Livelihood (Poverty Alleviation): Activity Mapping done under the poverty alleviation a

programme is identified with the schemes with no space for PRIs to innovate, plan and

implement. It should be vice-versa in the sense that scheme should be fitted in overall poverty

alleviation plan of Panchayat, as derived from annual plans of Panchayats (Art 243 G of the

Constitution). State should define poverty criteria and indicators with involvement of local

bodies. These criteria and indicators should be made part of State Act so that all the Central

and State Schemes follow these uniform and participatory indicators. Gram Sabha must be

final authority to decide on number of poor in Panchayat, as per accepted criteria.

Standing committee of Panchayat as a whole rather than the Sarpanch alone should be

planning and implementing authority (MNNREGA mentions Panchayats not the Sarpanch). The

implementation of activities under the various poverty alleviation programmes and MGNREGA

have little convergence. This results into duplicity of resources. Village poverty plan could be

convergence mechanism, as approved by the Gram Sabha.

The institutional arrangement for the implementation of poverty alleviation programmes has

weak linkages with the panchayats as institutions of local governance which results into poor

utilisation of resources and delay in implementation of the programmes. So, Activity mapping

and roadmap for Panchayats should delineate the appropriate institutional arrangement for

integrated approach to alleviate poverty.

2. Minor Forest Produce: At present 913 Primary Cooperative Societies are operational in state

at gram Panchayat level. Now this cooperative is working independently, there is no

involvement of Panchayat. Panchayat can monitor the work of primary cooperative society at

GP level like selection of data collector/SHGs, Performance assessment of primary cooperative

by GP, discussion related issues of royalty on MFP, etc. The functionaries of primary

cooperative can work under the supervision of gram Panchayat so they can accountable to GP

and can work better. 15% fund from trading of MFP is given to primary cooperative which need

to utilize as per the direction of MFP union. But most of the money has not been utilized. If

primary cooperative make accountable to Panchayat then this money can also be utilized for

development of Panchayat as well as cooperative. But decision related to utilization should be

taken in gram Panchayat meeting with the approval of gram sabha. All the public welfare

schemes of MFP department should be run through Panchayat. The detail discussion should be

done in GP meeting.

Zila Union can work under the supervision of Zila Panchayat (Accountable to ZP). Managing

Director of Zila Union can report to ZP related to utilization of fund (15%), status of welfare

12

schemes, etc. All the activities of Managing Director of Zila Union need to bring under the

umbrella of ZP. There is a need to enhance functioning area of Forest committee of ZP.

3. Primary & Secondary Education: Existing Activity Mapping on Primary & secondary

education, subsequent orders from education and Panchayat departments should be

harmonized to ensure that Panchayats play meaningful roles in access to and quality of school

and secondary education. Panchayats are institutions of governance and so, their roles and

responsibilities should be around ensuring Enrollment, Retention and quality of teaching.

Accordingly state’s role should be limited to Expansion and development of educational

facilities, Preparation of syllabus and printing of books, Preparation of annual education

calendar, Preparation of appointment and transfer policy for teachers in middle and primary

schools, Training policy for teachers/ Shikshakarmi’s and the Preparation of guideline for

evaluation of student’s education attainment level.

Rest of educational functions should be assigned to Panchayat system (Gram Sabha, ERs and

line officials). The activity mapping must clearly differentiate between the Panchayat system

and current practices of Panchayat means Sarpanches only.

4. Health: State role should be to prepare policy and guidelines for functioning of primary

health system. Practically nothing has been devolved to panchayat under the current activity

mapping for primary health and related services in the state.

Education, health and social welfare committee of the panchayat should be made responsible

for registration of pregnancies, ante- natal care, Institutional delivery, Post-delivery care,

vaccination, family planning programmes, supervision of health and family welfare schemes

and health centres in Gram Panchayat jurisdiction. Supervision should be defined clearly and it

must be supported by appropriate power, authorities and accountability.

Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007)2 also revealed that there is lack

of involvement of panchayats in delivering effective healthcare, PRIs, ANMs and Mitanin’s have

poor and limited knowledge about the programme and lack of participation in trainings by

ANMs.

Village, block and district health plans should be prepared by Panchayats. Once it is approved

by the DPC, same plan should be implemented by health department under the control and

supervision of Panchayat system.

2 Rapid Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007), National Institute of Health and Family Welfare, New Delhi (http://nihfw.org/pdf/RAHI-I%20Reports/Chhattisgarh/Chhattisgarh.pdf)

13

5. Nutrition/Public Distribution System: On analyzing the activity mapping undertaken w.r.t.

Public Distribution System and provisions of Public Distribution Control Order, 2004, it is found

that there are incongruities among these provisions. Hence it is strongly recommended given

the fact that Chhattisgarh PDS system is recognized as a model PDS in the country, activity

mapping needs to be revised in the light of PDS control order. Further, to ensure participation

and accountability of Panchayats in ensuring food security and nutrition to the masses, more

supervisory powers should be vested with the Panchayati Raj Institutions. There should be

detailed accountability mechanism to ensure accountability of elected representatives to Gram

Sabha.

14

1. Introduction

1.1 Background

Activity mapping is the process of splitting the existing functions of Government and assigning

these to the appropriate levels of government (from central or state government to local

government, panchayats in rural areas and municipalities in urban areas). Decentralization is

genuine when each tier of government is clear about their functional domain and also has

genuine power and authority to perform those functions. Thus Activity Mapping is necessary

first step for devolution of functions, finances and functionaries from one level of government

to other level. Activity Mapping ensures that division of functions take place in such a way that

there is no overlapping of functions between two levels of government, for example, exclusive

division of functions between Panchayats and state government. Activity mapping thus helps to

promote role clarity and accountability of different levels of governments. In India there is a

three tier structure of government, central government governed by parliament, state

governments governed by legislative assemblies and local governments governed by

panchayats and municipalities. In discharging there functional responsibilities there is a

constitutional provision for 3 separate lists covered under the VII schedule of the constitution

(Article 246). These are Union list for central government (contains 97 items), State list

exclusively vested with states (contains 66 items) and the concurrent list (containing 47 items)

vested jointly to center and states. Similarly, under Article 243 G and 243 W respectively, there

is a provision for functional assignment of 29 items to Panchayats covered under XIth Schedule

and 18 items to Municipalities covered under XIIth Schedule.

Article 243G read with the Eleventh Schedule of the Constitution of India stipulates that States

may, by law, endow the Panchayats with such powers and authority as may be required to

enable them to function as institutions of local self-government. Such laws may also endow

powers and responsibilities upon Panchayats for the preparation and implementation of plans

for economic development and social justice including in relation to the 29 Subjects listed in the

Eleventh Schedule. The Sixth Report of the Second Administrative Reforms Commission has

recommended that there should be clear cut delineation of functions for each level of local

governance. This is not a one time exercise and must be done continuously while working out

locally relevant socio- economic programmes, restructuring organisations and framing subject

matter laws.

The present assignment is a part of the European Commission State Partnership Programme (EC

SPP) Chhattisgarh. The overall objective of the programme is to achieve a more equitable

delivery of and access to quality health and education services, and improved forest based

15

tribal livelihood, through governance and institutional reforms, and capacity development of

state and decentralised levels. As governance and institutional building are the key components

of the EC SPP, the present assignment will support Department of Panchayati Raj and Rural

Development (PR & RD), Govt. of Chhattisgarh in preparing a Roadmap in the form of a Vision

document describing the proposed roles and responsibilities of panchayats, and recommending

steps for introducing institutional reforms and capacity development at the state and

decentralised levels of the government, to improve citizens’ access to services and better

livelihoods. But before the preparation of Roadmap it is important to understand the current

status of devolution in the State.

1.2 Scope and Objectives

Against this backdrop, it is an attempt to review the status of devolution on the basis of activity

mapping undertaken by the Government of Chhattisgarh with the following objectives:

1. To review the current status of Activity Mapping in the selected subjects.

2. To modify the Activity mapping in the selected subjects

To achieve the objectives, review is undertaken for the following subjects3:

6) Livelihood: Poverty Alleviation Programmes (covered under Subject No. 16) and

Minor Forest Produce (covered under Subject No. 7)


8) Health: Primary Health care and related health services (covered under Subject

No. 23)


In doing so, conformity provision made under the Chhattisgarh State Panchayati Raj Act and

supporting government orders were analysed. The analysis is done separately for Gram

Panchayat, Janpad Panchayat and Zila Panchayat. Discussions with different sets of

stakeholders is also organised to assess the gaps in the extent and need of devolution of the

subjects, within the scope of the present study.

For reviewing the current activity mapping, following broader questions were explored in the

context of the above mentioned subjects:

3 Article 243 G of the Constitution endows Panchayats with powers and responsibilities w.r.t. the

implementation of schemes for economic development and social justice in relation to the 29 matters/

subjects listed in the 11th Schedule

16

a) What is the present status of functional devolution?

b) How has the functional devolution been achieved? What is the logic of allocation of

activities to different tiers of PRIs?

c) What has been implemented i.e. executive orders made with regard to functional

devolution? What has actually been realized at the ground?

1.3 Approach and Methodology

The current activity mapping for the matters within the scope of present assignment is

reviewed in the light of following 9 elements4 by analysing the relevant provisions made in the

state PR Act and Government orders (GO’s)/ notifications.

i) Overall architecture (modes, roles, and structures): What is the nature of linkages

among different tiers of Panchayats and/ or government departments?

ii) Legal framework and mechanism: Has the functional devolution been achieved in

accordance with the provisions of the Panchayat Raj Act and have the sectoral laws/

regulations been superseded when functional devolution has been made as per the PR

Act?

iii) Criteria and Mechanism for assigning functions: Is the devolution based on the

principle of subsidiarity, and were the functions were disaggregated into tasks to be

performed by different tiers of Panchayats?

iv) Concurrent functions: Is a particular function carried out by more than one level of

government i.e. overlapping in the functional assignment?

v) Formulation of functions: Have the functions have been devolved to ensure there is no

mismatch in functional assignment to different tiers of Panchayats and State.

vi) Prescription versus discretion: To what extent the functional assignment is obligatory

and for which tier of PRIs?

vii) Organisational and personnel expression of functional assignment: What kind of

organisational adjustments (functionaries) have been made in achieving devolution?

viii) Finance’s fit with functions: Is financial devolution in consonance to the functional

devolution?

ix) Process of functional assignment: Is the devolution in the state just the compilation

of functions defined in Constitution and state Panchayat Act or realistic arrangement

and legally possible functional assignment?

4 Comparative Analysis of Activity Mapping in Himachal Pradesh, PRI Report 2008-2, GTZ

17

The review of activity mapping is done in the following manner:

iv. Secondary data collection and review: Secondary data is collected in the form of

Activity mapping completed, government orders made in this regard, guidelines and

other documents etc. All relevant information from this literature is culled out for

further analysis.

v. One to one Consultations with Stakeholders: Experiences and views of officials of

concerned departments, elected representatives of different tiers of PRIs and others are

be elicited through one to one consultations.

vi. Focused group discussions: FGDs are conducted, separately, with officials of concerned

departments, elected representatives of panchayats and gram sabha members to

capture their experiences regarding the status of service delivery around the subjects,

taken for review and modification. The discussions are held around functional

assignment in the form of activity mapping and effectuation of these provisions at the

ground.

Modification of Activity Mapping

To suggest the modifications in the Activity Mapping following activities are undertaken:

iv) To review the activity mapping of the state in comparison to other states which

have comparable panchayat size as well as socio-economic context, especially

Madhya Pradesh. Other progressive states in terms of activity mapping like,

Kerala, Assam, West Bengal etc. were also reviewed to fine tune the strategy of

activity mapping in Chhattisgarh.

v) Comparative analysis is shared with representatives of panchayats and line

departments to evolve most feasible activity mapping.

vi) The framework to link Activity Mapping with (a) capacity building requirements

(b) financial requirements and (c) administrative requirements (restructuring) is

also prepared.

18

2. Review of Activity Mapping

2.1 Functional Devolution

Gram Sabha

The functions of Gram Sabha have been devolved under Section 7 and Section 129 of the

Chhattisgarh Panchayati Raj Adhiniyam (Act) 1993, under which the Gram Sabha is empowered

to approve the village plan, approve the village budget for the year and review the progress of

the implementation of all schemes entrusted to the village Panchayat. The Government may, by

notification, entrust to the Gram Sabha other functions as may be specified.

Devolution of powers to Gram Sabhas is contained in Section 7 of the Act. Under the

Chhattisgarh Panchayati Raj Act, this section listed 15 items defining powers and functions of

the Gram Sabha. The provisions of Section 7 empowers the Gram Sabha not as an assembly to

hold the Gram Panchayat to account, but virtually as a fourth level of local government.

a. The Gram Sabha was vested with more powers and responsibilities under Section 7.

These powers include wide and sweeping powers relating to the identification of

schemes and their priority for economic development of village, approval of all plans

including annual plans, programmes & projects for social and economic development

before its implementation by the GPs, to consider annual budget of the GPs and make

recommendations to ascertain and certify utilization of GP funds and the Gram Sabhas

also have supervisory functions.

b. The Gram Sabha, under Section 7-J-(i) is also entitled to control government

functionaries.

Gram Panchayat

The analysis of the provisions of the law relating to Gram Panchayats reveals the following

points:

(a) The stress in section 49 is more on the responsibilities of the Panchayat in providing

civic amenities. Section 49 also limits the exercise of these powers to the extent that the

Gram Panchayat funds permit these functions to be performed.

(b) Virtually no powers are assigned to the Gram Panchayats in respect of the development

arena, such as in education, Health, women and child care, agriculture etc. Even in

respect of public health, animal husbandry, drinking water etc. only regulatory powers

have been given. Only in respect of markets and fairs, a fair amount of regulatory and

promotional powers have been vested in the Gram Panchayats.

19

Apart from Section 53, the rest of the Panchayati Raj law is quite precise in its enunciation of

the powers given to the Panchayats. The provisions are most detailed in respect of Village

Panchayats. The powers of the Panchayats are laid out elaborately and cover mostly civic

functions. An important feature of the Chhattisgarh Panchayati Raj Act is that Section 54, 49

(A), 55, 58, 56 (1), 57and 59 of the Act gives power to the Village Panchayat in respect of land

improvement ,implementation of land reforms, social forestry , drinking water ,rural housing,

health & sanitation, water management, market and fairs, community assets.

Janpad Panchayat

Section 50-1(A) of the Act is much more specific and quite strong. It mandates the Janpad to

prepare planning functions in respect of schemes of economic development and social justice

entrusted to it by the Act or by the State Government.

There is a similar detailed approach to the assignment of functions and powers to the Janpad

Panchayat under the Act is that Section 50, 59, 60, 129-f Special Provisions For Panchayats in

the Scheduled Areas . In fact, the Janpad Panchayat has a wider range of functions as compared

with the Gram Panchayats.

Zilla Panchayat

The following are the features of legislative devolution to Zilla Panchayats:

(a) The Zilla Panchayat is only given advisory functions under Section 52 (xi) of the Act, in

respect of protection of the environment, social forestry, family welfare, welfare of the

disabled, destitute, women, youth, children and weaker sections of the society.

(b) Section 52 (1) primarily envisages that Zilla Panchayats undertake planning, co-

ordination, implementation, evaluation, supervision, monitoring, administering and

controlling of the activities of Janpad & Gram Panchayats.

Section 53 of the Chhattisgarh Panchayati Raj Act 1993

The general section in the Chhattisgarh Panchayat Raj Act pertaining to the devolution of

functions to Panchayats is Section 53 of the Act, which is to be read with Schedule IV of the Act.

This section states as follows:

(1) (a) Subject to such conditions as may be specified by general or special order issued by

the State Government, the Panchayat at the appropriate level shall have the powers and

authority as may be necessary to enable them to function as institutions of self-

government in relation to matters listed in Schedule IV, including preparation of plans,

implementation of scheme for economic development and social justice, and other

20

duties and functions assigned to them under Sections 49, 49 A, 50, 52 and Chapter XIV-

A.

(b) The State Government may by notification endow Panchayats at the appropriate

level with powers and responsibilities for the selection, recruitment, appointment and

management of any cadre or cadres of employees required for the efficient

implementation of Schemes, subject to the staffing pattern approved by the State

Government and such other conditions as it may deem fit].

(2) The State Government may, by general or special order, add to any of the functions of

Panchayats or withdraw the functions and duties entrusted to such Panchayats, when

the State Government undertakes the execution of any of the functions entrusted to

Panchayat. The Panchayat shall not be responsible for such functions to the Panchayats

so long as the State Government does not re-entrust such functions to the Panchayats.

Schedule IV of the Act is a verbatim reproduction of the 11th Schedule of the Constitution.

Therefore, the combination of this section and Schedule IV is often relied upon to substantiate

the claim that Chhattisgarh has devolved matters pertaining to all 29 matters to the

Panchayats. However the language of Section 53 is conditional. There is no unequivocal

mandate contained in the section that certain matters have been devolved – it only enables the

State to do so by official notification. Under the terms of this Section, the State can also put

restrictions on the devolution to Panchayats and can withdraw powers from the Panchayats at

any time.

2.2 Financial Devolution

(a) There is no specific provision mandating the devolution of a specified quantum of funds

to Panchayats. Section 66 (1), mandates that every Panchayat shall establish a

“Panchayat Fund” and all sums received by it shall form part of the said Fund.

(b) Under Section 76 “ District Panchayat Raj Fund” (1) there shall be constituted and

operated in such manner as may be prescribed by the State Government a separate

fund at the district level by the name District Panchayat Raj Fund .

Taxes The provision of taxes is given in Section 74 and section 77.

Gram Panchayat Janpad Panchayat Zilla Panchayat

Cess on land; Tax on Agricultural land; Property tax; Building permission fee; Tax on Private latrines; Light tax; Professional tax; Market fee; Animal registration

Entertainment tax; Development tax on agricultural land; License fee; Ferry receipts; License fee of fish pond and farms; fines &

License fee of fish ponds and other taxes and fees if any.

21

fee; Tax on Animals; Tax on carts, bicycles, rickshaws etc; Fee for sarais, Dharamshala and Rest houses; Fee for slaughter houses; Water tax; Drainage fee; Fees from brokers and Commission agents; Fees from Vehicles; Temporary tax; Sanitary tax; Tanga/ Rickshaw stand tax; Fee for temporary structure/ projections etc; Grazing Cattle Fee; Land Revenue collected; Fishery rents; Ferry receipts and any other taxes

penalties and other taxes.

2.3 Devolution of Functionaries

a) Section 70 (1) states that every Panchayat may, with previous approval of prescribed

authority, appoint officers and servants as it considers necessary for efficient discharge

of its duties.

b) Section 71 provides for the deputation of officials by the State Government to the

Panchayat on such service conditions as may be prescribed.

2.4 Current status of Activity Mapping

The status of devolution is reviewed on the basis of activity mapping undertaken by the

Government of Chhattisgarh in 2005 w.r.t following sectors Health, Education, Nutrition and

Livelihood (including Minor Forest Produce (MFP). To undertake the review exercise following

subjects were taken under these subjects:

1) Livelihood: Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS)

only under poverty Alleviation Programmes (covered under Subject No. 16) and Minor

Forest Produce (covered under Subject No. 7)


3) Health: Primary Health care and related health services (covered under Subject No. 23)


22

Gram Panchayat

Matters in 11th Schedule Functions

Funds Functionaries Planning Implementation Supervision Promotion

Minor Forest Produce (7) Not covered

Poverty alleviation programmes (16) Yes Yes Yes

Yes No

Education including primary and secondary schools (17)

Yes Yes Yes Yes Yes Yes

Health and sanitation including hospitals primary health centers and dispensaries (23)

Not covered

Public distribution system (28)

Yes Yes Yes Yes No No

Figure in parenthesis is Subject No. as per the 11th Schedule

Janpad Panchayat



Minor Forest Produce (7)

Not covered

Poverty alleviation programmes (16)

Yes Yes Yes Yes Yes Yes


Yes Yes Yes Yes


Yes No No


Yes Yes Yes Yes No No


23

Zila Panchayat



Minor Forest Produce (7) Not covered

Poverty alleviation programmes (16)

Yes Yes Yes Yes Yes


Yes Yes Yes Yes No Yes


Yes Yes


Yes Yes Yes Yes No


24

2.4.1 Nutrition

Public Distribution System

Chhattisgarh has pioneered the Public Distribution system and today it appears as the model

for the rest of the country. On analysis of the current PDS system in the state we found that

10866 PDS shops are operational in the state. These shops are under the control of gram

panchayats, Women Self Help Groups, Forest Protection Committees, Urban Local Bodies, and

co-operatives societies. The detail of the PDS shops is given below:

Cooperative Committee

Forest security committee

Gram Panchayat

Women SHGs

Urban local bodies

Total

4350 153 4003 2342 18 10866

Source: http://cg.nic.in/pdsonline/FPSRPTen.aspx (accessed on 15-2-2012)

Organisational Structure of the department of Food, Civil Supplies and Consumer protection

Weight and

Measurement Control Office

Directorate of Food, Civil

Supplies and Consumer Protection

State Consumer Dispute

Redressal Commission

Departmental Office

Corporation Commission

Secretary

Minister

Department of Food, Civil Supplies and Consumer protection

Chhattisgarh State Civil Supplies

Corporation

Chhattisgarh State

Warehousing Corporation

http://cg.nic.in/pdsonline/FPSRPTen.aspx

25

Salesmen (Fair Price Shop Sanchalak) are appointed by agencies like cooperative societies,

women SHGs, gram panchayat. The Sanchalak reports to respective agency.

Admin. Staff

Additional Director

District Office

Directorate

Food control / Food Officer

Commissioner

Admin. Staff

Food Inspector

Assistant Director

Deputy Director

Assistant Food Officer

Joint Director

Fair Price Shop Sanchalak

District

Block

Gram Panchayat

Cooperative Committee

Urban local bodies

Women SHGs

Gram Panchayat

Forest security committee

26

Involvement of Panchayats in Public Distribution System

Zila Panchayat (District level): Officials of the department of Food & Civil Supplies meet every

month in general body meeting of Zila Panchayat. They are also present in the meetings of

standing committee’s like Sahkarita Udyog Samiti. In the meetings of Zila Panchayat and

standing committees, elected representatives of Zila panchayat review the activities of the

department. The issues of discussion in the meetings include:

Preparation of BPL list.

Proposal of ration card.

Any complaint w.r.t. PDS shop, etc.

As per the discussion with the Assistant Food Officer, department did not take any action

against such complaint. They forwarded this complaint to Zila panchayat and ZP members

decide to take action like suspension of agreement of PDS shop, lodging FIR, etc. The

department implements the action taken by the ZP.

Janpad Panchayat (Block level): During the meeting of the General body of Janpad panchayat,

Food Inspector shares the activities undertaken by the department every month. The discussion

also takes place on BPL list and new ration card proposals. The Janpad panchayat forward the

proposals of gram panchayat regarding the ration cards, any complaint etc. to ZP. Any citizen

can lodge complaint in SDM office. At JP level, Tahsildar has the signing authority for the ration

card.

Gram Panchayat Level: Gram Panchayats are involved intensively in the activities of the PDS

shops. Out of the total 10866 PDS shops in the state, 36.8 percent are operated by gram

panchayats. As per the Section 49 (30) of the Chhattisgarh Panchayati Raj Act 1993, it is the

responsibility of Gram Panchayat for the establishment, maintenance and supervision of Fair

price shops under PDS.

Gram panchayat owned PDS outlet: To run the outlet there is a provision for the constitution

committee. The committee comprises of Sarpanch, Panchayat Secretary, one ward panch, one

BPL ration card holder and one Antyodaya card holder nominated by gram sabha. There is also

a provision for 2 female members in the committee. This committee appoints the salesman for

shop with the approval of gram sabha. The committee maintains its record and sends it to food

and civil supplies department at the block level. In every gram panchayat meeting, discussions

were also took place on various activities of the PDS shop like allocation, distribution and

others.

27

Women SHGs and Cooperative owned PDS outlet: In case PDS outlet is controlled by women

SHGs or cooperative societies. There is a provision for monitoring of the shop by the gram

panchayat. For every fair price shop, there is a monitoring committee comprising of 6 members

including Sarpanch (President), Panchayat Secretary (Vice-President), Head Teacher of the

School, Patwari and two eminent persons from panchayat. Mandatory provisions that need to

be fulfilled by each PDS shop every month includes panchnama by monitoring committee about

total allocation, declaration by panchayat about allocation and distribution from PDS shop

every month, verification of record by monitoring committee and panchayat.

Other roles of panchayat: Gram Panchayat supports the food and civil supplies department in

conducting BPL survey, finalisation of BPL list with the approval of gram sabha. Prepare

proposal for ration cards and send it to Janpad panchayat and distribution of the same to the

beneficiaries in the jurisdiction of panchayat. Review of the activities of PDS shop is also

undertaken in the monthly meeting. Gram sabha is entitled to review the performance of the

fair price shop once a year by the through the social audit.

Mandatory provisions for Fair price shop

1) Fair price shop cannot be allocated to an individual.

2) Fair price shop open for three day in the week Monday, Tuesday & Wednesday.

3) In rural areas fair price shop must be located in government building.

Grievance redressal mechanism

1) Call center (1800-233-3663).

2) Hamar Gohaar5-at district level in Mahasamunnd.

3) Sub Divisional Officer.

2.4.1.1 Current status of Activity Mapping

State Sector District Panchayat Janpad Panchayat Gram Panchayat

1. All activities except activities devolved to

1. To review Public Distribution System through

1. To review Public Distribution System through Monitoring

1. To give proposal to competent officer after assessing the needs of Fair Price Shops in

5 “Hamar Gohaar” is a district level public grievance redressal system operational in Mahasamund. Through this complaints can be registered for all the public services including PDS (http://cg.nic.in/mahasamund/hamargohaar/ComplainEntry_byUser.aspx).

http://cg.nic.in/mahasamund/hamargohaar/ComplainEntry_byUser.aspx

28

Gram Panchayat Monitoring Committees.

2. Printing of APL Cards and make available to Gram Panchayats for distribution.

3. To prepare District Level work plan.

4. Make available funds to Janpad Panchayats to allocate working capital to identified agencies for operation of Fair Price Shops.

5. To hear pending unresolved problems/ issues related to Public Distribution System at Janpad Panchayat Level and resolve them through Monitoring Committee.

6. To make available unresolved issues to Food and civil supplies Department.

Committee 2. To hear pending

unresolved problems/ issues related to Public Distribution System at Gram Panchayat Level through Monitoring Committee.

3. To allocate working capital to identified agencies for operation of Fair Price Shop.

4. To conduct Janpad level review of action plans received from Gram Panchayats and prepare the work plan.

Gram Panchayat areas. 2. To arrange the operation of Fair

Price Shops, where given to Panchayats.

3. To supervise the operations of Fair Price Shops of the area through Monitoring Committee.

4. Identification of beneficiaries through gram sabha to ensure beneftis of beneficiary oriented schemes and to ensure benefits to them.

5. To prepare and distribute APL Ration Cards.

6. To distribute the Ration Card of BPL Antyoday Ann Yojana and Annapurna Yojna to the potential beneficiaries issued by the officer authorized by Collector and printed by Department of Food and civil supplies.

7. Annually review the eligibility of ration cards of APL, BPL Antyoday Ann Yojana and Annapurna Yojana through Gram Sabhas.

8. To get applications of problems related to operation of Fair Price Shops through monitoring committee and to resolve them.

9. Establishment and operation of Grain Banks.

10. Dissemination of Consumer Rights.

11. Formation of Consumer Clubs in schools.

Functionaries: Nil

Budget 1. Provision for the amount of allocated working capital to district panchayat for the operation of

Fair Price Shops in the Budget of the Department. And to make working capital available.

Source: Letter No. 1794/ /2006, dated 13/06/2006, of Department of Food and Civil Supplies, Government of Chhattisgarh

29

Major provisions of PDS Control Order 2004

Provisions of PDS Control Order 2004 in relation to role of state, panchayats and gram sabha:

A. Identification of beneficiaries

i) State Government

State Govt. shall formulated suitable guidelines for the purpose of identification of families living below the poverty line (BPL) including the Antyodaya families.

ii) Gram Sabha

Get the lists of BPL and Antyodaya families reviewed every year for the purpose of deletion of the name of ineligible families and inclusion of the name of eligible families.

Gram Sabha and local representative bodies shall finalize the list of BPL families, Antyodaya families & beneficiaries of Annapoorna Yojana within their respective jurisdiction. (On the discretion of State government)

iii) For any irregularities in identification of beneficiaries and issuance of ration card to them

and non- inclusion of real beneficiary’s, action will be taken under the provisions of Essential Commodities Act 1955.

B. Ration Card

i) State Government

To issue distinctive ration cards to the beneficiaries for each scheme by the officer

authorized by the Collector.

To take regular action to cannel all bogus cards.

The Collector shall ensure that ration cards are issued to all the identified eligible

families living below poverty line and persons identified for specific schemes.

No ration card fees shall be charged or recovered by the panchayat or any issuing

authority for the issue of ration card to families covered under BPL, Antyodaya and

Annapurna.

If any ration card is defaced, lost or destroyed, an authorized officer, after making such

enquiry as she/ he may think fit, issue a new ration card in place thereof, on payment

of such fees as may be fixed.

Elimination of bogus ration cards as well as bogus units in the ration cards shall be a

continuous exercise by the Collector to check diversion of essential commodities.

ii) Gram Panchayat

To issue ration cards to families living above poverty line (APL).

30

C. Lifting, Storage, Transportation and Distribution

i) State

All the necessary formalities so that the allocated quota reach the FPS’s within first week of the month of allocation.

D) Power of search and seizure

i) State

Power lies with any person authorized by State or District Collector.

E) Monitoring

i) State Director, Food & Civil Supplies shall ensure regular inspection of FPSs not less than once

in two months by the designated authority. Meeting of the vigilance committees on the PDS at the State, District, Block and FPS

level shall be held not less than once in a month. Director shall ensure a periodic system of reporting and the complete information

regarding allocation and distribution of essential commodities under PDS. State Government shall issue necessary instructions to educate ration cardholders

regarding the rights and privileges under the PDS by use of electronic and print media. State Government shall issue and adopt the Citizen's Charter according to department's

necessity. ii) Gram Sabha

Performance of the every Fair Price Shop will be reviewed once a year by the Gram Sabha through a social audit.

F) Number and location of Fair price shops

i) State

The number and location of fair price shops shall be specified by the Collector as per the guidelines.

G) Allocation of Fair Price Shops

i) State In district headquarters FPSs shall be allotted by Food Controller/Food Officer on

approval of Collector and in remaining places of district, by sub divisional officer of sub division on approval of Collector. In areas where more than one primary credit

31

cooperative societies exists, allocation shall be made on the recommendations of the Deputy Registrar / Assistant Registrar of district.

For allotment of FPS an advertisement shall be published in local newspapers and information of it shall be given to concern Gram Panchayat compulsorily.

H) Opening and Closing time and other

i) State Opening and closing time of shops shall be fixed by the collector.

FPS shopkeeper shall comply with directions as may be issued from time to time by state government or the collector.

I) Food Security Fund

i) State

State government shall create a food security fund to strengthen food security for vulnerable populations.

Issues related to the functioning of PDS

1. The Standing Committee at the gram panchayat level, General Administration

Committee is assigned with the responsibility of Food and Civil Supplies. But the

standing committee is either defunct or did not know about its role w.r.t. assigned

function.

2. It is revealed during the field study that In Mahasamund and similarly in many parts of

other districts, gram panchayats are not operating any FPS shop. When we tried to find

out the reason, it was shared by Assistant Food Officer that earlier panchayats are

running the shops but there were found many irregularities w.r.t. maintenance of

records, distribution, etc. so all the fair price shops were handed over to cooperative

societies in the district.

3. The BPL survey is conducted by the department, hence there is no pro-activeness of the

gram panchayat.

4. As per the provisions regular meetings of monitoring and vigilance committee were not

taking place. According to the respondents, fair price shop salesmen personally visit to

each member of the committee for their signatures on declaration.

5. No information about panchayat meeting to fair price shop salesmen especially in those

areas where cooperative societies are running the shops. There is no coordination

among panchayats and cooperative societies.

6. There is a provision of social audit to judge the performance of FPS once in a year by the

Gram Sabha but this is not happening especially for shops which are not owned by gram

panchayats.

32

7. A survey conducted by CASA6 also revealed that there are irregularities in the selection

of beneficiaries (especially BPL). A study conducted by Oxfam (2011)7 in 13 districts

revealed that out of the total 2, 34,000 families removed from the beneficiary list during

the verification drive, 87 percent eligible families for PDS are those who are on the brink

of starvation and destitution. It is also revealed by the survey that there is no provision

of training for running the FPS, hence shopkeepers are facing lots of difficulties in

running the shops specially women SHGs.

8. It is also argued that though the current PDS model of the state has ensured food

security but a system is yet to be evolved which authenticates whether the food grains

are being collected by the beneficiary8.

9. There is a provision for FPS in every gram panchayat so that no beneficiary has to travel

beyond 3 Kms. But the most common complaint is that fair price shops are far and in

few villages of Sarguja people have to walk 4-6 Kms to reach their FPS (Puri, 2012)9.

On analysing the activity mapping undertaken w.r.t. Public Distribution System and provisions

of Public Distribution Control Order, 2004, it is found that there is a incongruity among these

provisions. Hence it is strongly recommended given the fact that Chhattisgarh PDS system is

recognized as a model PDS in the country, activity mapping needs to be revised in the light of

PDS control order. Further, to ensure participation and accountability of panchayats is ensuring

food security and nutrition to the masses. More powers should be vested with the panchayati

raj institutions.

2.4.1.2 Suggestions for revised Activity Mapping under the PDS

Function State Zila Panchayat Janpad Panchayat Gram Panchayat

A. Identification of Beneficiaries

1. Formulation of guidelines for the purpose of identification of families living below poverty line (BPL).

1. Maintaining of BPL list.

1. Preparation of BPL list.

2. Action against irregularities against selection of illegal beneficiaries or

1. Selection of BPL beneficiaries and beneficiaries under other schemes

6 Targeted Public distribution system in Chhattisgarh, CASA (Church's Auxiliary for Social Action), Chhattisgarh 7 Public hearing in Raipur shown a grim picture of the best PDS in India (2011), Bipasha Majumdar, http://www.oxfamindia.org/content/public-hearing-raipur 8 How the PDS is changing in Chhattisgarh (12 January 2011), http://ibnlive.in.com/news/how-the-pds-is-changing-in-chattisgarh/137153-7.html 9 Reforming the Public Distribution System: Lessons from Chhattisgarh (2012), Puri Raghav, Economic & Political Weekly, Vol XLVII No 5 (4th Feb 2012)

http://www.oxfamindia.org/content/public-hearing-raipur

http://ibnlive.in.com/news/how-the-pds-is-changing-in-chattisgarh/137153-7.html


33

non- inclusion of real beneficiaries.

3. Corrections in the BPL list for inclusion of genuine beneficiaries in the list.

4. Monitoring of distribution of foodgrains to FPS owners.

strictly through gram sabha.

2. Review and finalise the list of BPL, Antyodaya families & beneficiaries of Annapoorna Yojana every year.

B. Ration Cards 1. Printing of different types of ration cards including APL cards.

1. To issue distinctive ration cards for the beneficiaries.

2. Action for the cancellation of bogus ration cards.

1. To ensure the availability of ration cards as per the eligibility.

1. To distribute ration cards to the households as per their eligibility.

2. To issue ration cards to families living above poverty line (APL).

3. Identification of bogus ration cards.

C. Procurement, availability and movement of essential commodities

1. Lifting of food grains from FCI.

2. Fixing up target for each rice mill.

3. Milling of paddy and storing of rice.

4. Assess demand and coordinate implementation, availability and movement of essential commodities.

5. Arrangement for storage godowns and warehouses.

6. Provisioning for the Food

1. Monitoring of milling of paddy and storing of rice in godowns.

2. Opening of new Fair price shops.

3. Ensure transfer of foodgrains from one Janpad panchayat to other in case of shortage, famine, floods etc.

4. Close vigil on implementation and ensuring food security.

1. Monitoring of the movement of essential commodities to the FPS.

2. Ensure food security in each gram panchayat through transfer of foodgrains from one Gram panchayat to other in case of shortage, famine, floods etc.

1. Providing certificate confirming procurement of paddy from farmers at Minimum support price (MSP).

2. General Administration Committee (GAC) at the GP level assists in procurement and distribution.

3. GAC to ensure arrangement of go down at

34

security fund. 7. Guidelines to

ensure food security.

the GP level for storing food grains and other commodities.

4. To maintain grain bank to ensure food security.

D. Allocation and operation of Fair price Shops

1. Formulation of guidelines for the allocation of FPS.

1. To decide the number and location of FPS.

2. Allocations of FPS under different categories.

3. Fix opening and closing time of FPS.

1. Monitor the FPS to follow rules and regulations regarding operation of FPS.

1. Standing Committee on General Administration should monitor that FPS strictly adhere the opening and closing time.

E. Monitoring and Grievance redressal

1. Guidelines for the constitution of vigilance committees at state, district, Janpad and Gram panchayat level.

2. Issue necessary instructions to educate ration cardholders regarding the rights and privileges under the PDS

3. Time to time awareness campaign to educate ration card holders regarding their rights and privileges through electronic and print media.

1. Ensure constitution of vigilance committee and its functioning at all the 3- tiers of panchayats.

2. Enquiry into public complaints and hoardings.

1. Vigilance and Monitoring committee to probe irregularities reported.

2. Vigilance and Monitoring Committee to submit the report to gram panchayat for appropriate action.

3. .

1. Regular inspection of FPS and report irregularities through Vigilance committee.

2. Performance review of every Fair Price Shop once a year by the Gram Sabha through a social audit.

3. Dissemination of Consumer Rights.

4. Formation of Consumer Clubs in schools.

5. To get applications of problems related to

35

4. To develop and adopt citizen charter.

5. To hear pending unresolved problems/ issues related to Public Distribution System at Janpad Panchayat Level and resolve them through Monitoring Committee.

6. To make available unresolved issues to Food and civil supplies Department.

operation of Fair Price Shops through Vigilance and monitoring committee and to resolve them.

F. Functionaries 1. O/o Deputy Director and Assistant Director to be transferred to Zila panchayat and works under the control of Zila panchayat. Similarly, Food officer and Assistant food officer should also work under the control of Zilla panchayat.

1. Food Inspector should work under the control of Janpad panchayat.

1. FPS Sanchalak in case of Shop operated by Gram panchayat should be accountable to Gram panchayat. And Fair Price Shops which are not under the control of GP, the Sanchalak should be accountable to Gram Sabha .

36

G. Finances 1. Funds for operating the O/o DD, Asst. DD, FO and Asst. FO to be transferred to Zila panchayat.

2. Provision for the amount of allocated working capital to district panchayat for the operation of Fair Price Shops in the Budget of the Department. And to make working capital available.

1. Funds for operating the O/o Food Inspector to be transferred to Janpad panchayat.

2. Provision of working capital for FPS.

1. Provision of working capital for FPS under operation of gram panchayat.

Other suggestions

1) State should define its own poverty indicators (through the Act of the State) to decide

the BPL and other beneficiaries of the PDS.

2) Identification of poor should be finalised in the full quorum of gram sabha on the basis

of state poverty indicators.

3) Millets should also be included along with other consumable items under the PDS.

37

2.4.2 Primary and Secondary schools

Involvement of Panchayat in Primary Education

Zila Panchayat Level: Officials of the education department participate in the general body

meeting of Zila Panchayat and meeting of standing committee on General Administration and

Education Committee. The discussion is held around following matters:

Recruitment of shikshakarmi’s.

Construction of school in village area.

Redressal of complaints against shikshakarmi’s.

Publication of Shikshakarmi’s list.

Functioning of the Mid-Day Meal (MDM).

If department receive any complaint against the Shikshakarmi’s then it is forwarded to Zila

Panchayat and Zila Panchayat decide further action.

Janpad Level: Janpad panchayat recruit and disburse salary of the Shikshakarmi’s. JP approves

the list of SHGs prepared by gram panchayat for MDM and also make payment to these SHGs.

Officials of education department at the block level attend the general body meeting of JP and

standing committee on General Administration & Education.

Gram Panchayat level: GP does all construction work of school. It also identifies the SHG for

MDM. There is also one elected representative is in the School Management Committee.

Panchayat have a role in monitoring of school activities like attendance of shikshakarmi’s &

teachers, MDM and other school activities.

2.4.2.1 Current status of Activity Mapping

State Sector Gram Panchayat Janpad Panchayat District Panchayat

1. To provide accreditation/ approval to the Schools.

2. Finalisation of Books and Syllabus.

3. To Conduct & manage Examinations.

4. Evaluation of Students Education attainment Level.

5. Preparation of Annual Education Calendar.

1. Construction of Primary School buildings having separate toilets for boys and girls under financial limit fixed by the Government.

2. To ensure and to provide opportunity to all boys and girls for primary level

1. Maintenance and painting works of senior primary school buildings.

2. Management of book bank and library.

3. Supervision of primary and senior primary schools.

4. To prepare Janpad level plan by consolidating education plans of Gram Panchayats.

1. Supervision of all schools of the district.

2. Appointment of Class I and Class II teachers.

3. Invitation and cadre management.

4. To prepare education plan for the district.

5. Supervision of educational activities of Janpad Panchayats and Gram Panchayats.

38

6. Approval to initiate new subjects in Schools.

7. All Departmental and State Level Syllabus related activities.

8. Novelty in conducting activities in the schools.

9. All work related to education statistics collection and legislative assembly.

10. Monitoring and supervision of the functioning of Central and centrally sponsored schemes.

11. Responsibility of training of Teachers and staffs, control over Teachers Training Institutions like DIET, BTI Etc.

12. Right to take decisions related to construction of Schools buildings from grant received from the Government and to open new schools, to be in place a District Planning Committee as per State Government Policy.

education of gram Panchayats. To make necessary efforts towards this like – door to door survey, group meetings, to conduct promotional and inspirational programmes.

3. Maintenance and painting works of primary school buildings.

4. To ensure availability and use of all educational material like, equipment’s, furniture, taat patti, black board, toys, playing material etc.

5. Work of approval and distribution of scholarships.

6. Distribution of school dresses and books.

7. Operation and supervision of Mid-Day Meal Programme.

8. Supervision of all teachers and staff’s presence at the primary schools and payment of their salary.

9. To essentially add girls and disables with primary education.

10. Keeping in mind all above points, to prepare an annual work plan.

5. Appointment of the Shikshakarmi’s Class – III and total control over them and cadre provisioning.

39

11. Operationalize Sarva Siksha Abhiyan and other new programmes related to primary education.

Functionaries 1. All Janpad level functionaries will work under administrative control of Janpad Panchayats. 2. All District level functionaries will work under administrative control of District Panchayats.

Budget 1. All Budgets related to department to Janpad Panchayats from District Panchayat.

2. All district level budgets related to the department received from State Government.

Source: Letter no. F-1-117/2005/20, dated 15/09/2006, Department of School Education, Government of Chhattisgarh

Activity Mapping by Tribal caste and Scheduled Caste Development Department


1. Evaluation of educational level of the students.

2. Preparation of Annual Education Calendar.

3. Approval for starting new subjects in the schools.

4. All Departmental and State Level Syllabus related activities.

5. All work related to Education Statistics Collection and legislative Assembly.

6. Responsibility of training of Teachers and staff, control over staff of teachers Training Institutes like DIET, BTI etc.

7. Monitoring and

1. To organize seminars and create awareness around provisions of SC’s & ST’s Prevention of Atrocities Act.

2. Supervision of Middle schools, High Schools & Higher Secondary Schools.

3. To ensure availability and use of all educational material like equipment’s, furniture, taat-patti, black board, toys and play material.

4. To review and ensure the implementation of all welfare schemes of the department.

1. Inspection and supervision of operational schools, hostels and review in Sub-committee of Janpad Panchayat and make necessary arrangements for better management of education.

2. Inspection and supervision of institutions operational under non-governmental grants.

3. Ensuring participation in the implementation of all welfare schemes of the department.

1. To present information of selected beneficiaries under various schemes and schemes related to the department once in a year to Gram Sabha.

2. To take effective measures to prevent social discrimination and oppression against SC & ST.

3. To distribute scholarships among students of class 3 to 5 belonging to SC & STs.

4. Supervision of primary schools, hermitages and hostels managed by

40

supervision of the functioning of Central and centrally sponsored schemes.

8. Right of take decisions related to construction or extension of Schools buildings from grant received from the Government and to open new schools as per the state policy.

9. Creation of new posts in office or Schools.

10. To make new rules & regulations and to implement that in departmental institutions interest.

the department. 5. To ensure and give

opportunity for primary level education to all boys and girls of gram Panchayats. To make necessary efforts towards this like, door to door survey, group meetings, to conduct promotional and inspirational programmes.

6. Make arrangements of annual general and special renovation/ Maintenance and painting works of departmental buildings upto Rs. 50,000/-.

7. Management of Mid Day meal.

Functionaries 1. Total control on permanent administrative members. 2. Selection and recommendation of IV grade employees at Collector rate/ temporary basis of granted IV

grade employees in primary schools situated in villages. 3. Administrative control over Grade III & Grade II Shikshakarmi’s. 4. Selection and recommendation of grade IV employees at Collector rate/ temporary basis of granted IV

grade employees in pre -secondary school and hostels. 5. Administrative control over appointed Shikshakarmi‘s Grade I. 6. Selection and recommendation of IV grade employees at Collector rate on temporary basis of granted

IV grade employees in high school, higher secondary and hostels.

Budget 1. To transfer the departmental budget as per needs to Zila Panchayats, Janpad Panchayats. 2. To ensure the use of budget received from the department under Grant no. 15 and 82.

Source: Letter no. F-11-33/2005/25-2/ vktkd dated 19/07/2008, Tribal Caste and Scheduled Caste

Development Department, Government of Chhattisgarh

41

Issues related to Primary and Secondary Education

Prior to November 2011, Janpad panchayat is entitled to withdraw and disburse salary

to Shikshakarmi’s. Now it is done by Block Education Officer.

Education department conduct recruitment process of Shikshakarmi’s. Role of

Panchayat is to publish the merit list only.

Lack of coordination among school and gram panchayat.

Distribution of books and uniform is done by Cluster Level Coordinator and teacher.

Whereas, teachers are disbursing the scholarship.

Irregular attendance of elected representative in School Management Committee (SMC)

meetings. A study conducted by Create10 also revealed that the meetings of SMC are

less frequent and discussions in the SMC meetings often focused upon utilisation of

funds and around school development grant.

Standing committee for education at gram panchayat level is responsible for monitoring

of primary schools, attendance of children in the school and monitoring of mid-day meal

provided in the schools is not functional.

Meetings of Education committee at ZP and JP level are irregular.

Information about the panchayat meeting is not given to teachers.

Most of the panchayats are only interested in construction work of the school.

Functionaries are not in favour of handing over funds to panchayats. They want role of

panchayats should be in monitoring only. Moreover they are also doubtful about the

capacities of the elected representatives in handing the delivery of education services.

During the discussions with the officials it is come out that the monitoring of teachers is

given to panchayats but they have misused the powers, hence it is taken back.

It is shared by the officials that there is a need to enhance the technical capacities of

panchayats to deal with service delivery issues.

There is a difference of opinion among the sectoral departments and department of

panchayati raj on the issue of devolution of education to PRIs. During the consultations

it is observed that sectoral departments are more or less ready to devolve certain

functions, functionaries and finances, the department of panchayat is not ready to take

the administrative responsibilities. As in case of education department, though the o/o

of Block Education Officer is transferred to Janpad panchayat but the funds are

transferred by the education department. But they will not receive the utilisation

certificate for the transferred funds. When the issue is enquired with the dept. of

Panchayat, the officials said that they are not responsible for administration of

education department. 10 Effective School Management Committees, Create India Policy Brief - 4 (2011) (http://www.create-rpc.org/pdf_documents/India_Policy_Brief_4.pdf)

42

The current devolution as in case of appointment of ‘Shikshakarmi’s’ is not so real as it is

claimed. When it is enquired that, whether it is possible for a gram panchayat to appoint

a teacher in a primary school, if, in the mid of session post of a teacher become vacant

because of any reasons? The officials in both education and panchayat department

responded that it is not possible in the preview of current policy for the appointment of

Shikshakarmi’s.

Control Supply Rate (CSR) of given works to Panchayats together with implementing

agency should be consistent with the Departmental works. Presently Panchayat have to

face difficulties because of low rates relatively.

Though door to door survey with the help of teachers in panchayats and school

admission ceremony is happening in the state but the formal proceedings are not

registered in gram panchayats. Moreover, nor all representatives participate in this

campaign at Panchayat level.

Maintenance work of school buildings is carried on by other committees like School

Management Committee, Parent Children Committee, and Public Participation

Committee. These committees get grants directly and the teacher played the role of

Secretary to these committees. Panchayat have no information of the activities of these

committee’s and there is no coordination mechanism with panchayats.

Panchayat can recommend only to stop payment of the salary, the final decision is

vested with the officials of education department.

The current activity mapping by the department of school education and Tribal caste

and Scheduled Caste Development Department for operations of schools in tribal

regions is not followed in letter and spirit.

2.4.2.2 Suggestions for revised Activity Mapping

State District Panchayat Janpad Panchayat Gram Panchayat

A) Education policy and State Education report

1. Education policy for the state.

2. Preparation and publishing of state Education report.

3. Necessary instructions and arrangements for 25% reservation for EWS category children in private schools.

1. Preparation of annual education report for the district.

2. Ensuring implementation of necessary orders of 25% reservation for EWS category in private schools.

1. Compilation of annual education report for the block.

1. Annual compilation and updation of vital statistics related to education for villages under the gram panchayat.

43

B) Planning 1. Expansion and development of educational facilities.

2. Preparation of syllabus and printing of books.

3. Preparation of annual education calendar.

4. Policy for approval of private primary and secondary schools

1. Assess the requirements of schools, teachers, equipment, etc. in the as per the Janpad and Gram panchayat plans.

2. Assess and plan hostel requirements for target group students.

1. Preparation of plan for the establishment of middle schools by consolidation of gram panchayat plans.

1. Preparation of village plan for the establishment of the primary schools.

2. Preparation of menu for the Mid-day meal.

C) Construction 1. Guidelines and orders for quality maintenance

1. Distribution of funds to JP’s and GP’s.

1. Construction and maintenance of school buildings and related infrastructure in case of middle school and catering more than one gram panchayat .

2. Making provision of basic facilities like benches, black board, light, drinking water, separate toilet facilities for boys and girls, water for toilets and general purpose etc. in the middle schools.

1. Construction and maintenance of school buildings and related infrastructure in case of primary school and catering more than one gram panchayat .

2. Making provision of basic facilities like benches, black board, light, drinking water, separate toilet facilities for boys and girls, water for toilets and general purpose etc. in the primary schools.

3. Establishment and maintenance of hostels, and other welfare measures for target group.

D) Appointment & Training of teachers and support staff

1. Preparation of appointment and transfer policy for teachers in middle and

1. Training for the school management committee.

2. Managing district cadres for

1. Appointment of Shikshakarmi’s Grade III and cadre provisioning.

2. Managing block

1. Total control over Shikshakarmi’s Grade III.

44

primary schools. 2. Training policy

for teachers/ Shikshakarmi’s.

recruitment, transfer and discipline.

cadres for recruitment, transfer and discipline.

E) Awareness and ensuring education for all

1. Preparation of guideline for evaluation of student’s education attainment level.

1. Preparation of IEC material and providing technical support to JPs and GPs.

2. Ensuring implementation of the guidelines.

3. Provisioning for Health checkup camp for school children.

1. Distribution of IEC material in gram panchayats.

2. Support Zila panchayat in providing technical support.

1. Ensure full enrollment of school age children.

2. Campaign for full enrollment and reduction of dropouts.

3. Provisioning for education of children of migrants both permanent and seasonal.

4. Regular health check-up camp for primary and middle school children.

5. Dissemination of IEC material.

F) Monitoring and supervision of education Services

1. Software and web portal for tracking of children attending the school.

1. Looking into inter JP issues.

2. Implementation of annual curriculum and education calendar.

1. Supervise the functioning of primary and upper primary schools.

2. Evaluation of student’s education attainment level.

1. Assess the drop out position and initiate appropriate action to reduce it.

2. School Management Committee/ Parent- Teacher’s Committee to inspect various activities of the school and report to Gram Sabha on the same.

3. Social audit by gram sabha.

Other Suggestions

A) Opening of schools as per the norms

1) The design of the school building should be strictly as per the norms.

2) The guidelines should be issued and notified for the opening new schools,

construction of additional rooms and maintenance & repair of buildings.

45

B) Activities for ensuring 100 percent enrolment

1) Regularisation of village education helper.

2) Information and awareness about various rules, regulations and processes to make

admissions to the school easy and successful.

3) Information about various facilities available in government schools to make

education accessible to all.

4) To make available birth and caste certificate with coordination at school level itself.

5) Arrangements for keeping necessary documents of children safe at school level (if

have fear of their safety at home).

6) Necessary arrangements like teachers, learning aids and materials, classrooms for

admission as per the age of the children.

7) To give rights to elected representatives in their areas for admission in the hostel of

needy students.

8) To encourage vocational education & local folk arts in schools through Panchayats.

C) Activities for retention in the schools

1) Timely propagation & implementation of Government policies and available

facilities.

2) Arrangements at local level for timely arrangement and disbursement of School

uniform.

3) Keep attention on various schemes of governments to prevent migration form the

villages.

4) To make available all the facilities for special need students.

5) To make necessary arrangements for regular Teacher’s Training.

6) Evaluation of works done by Cluster coordinators by fixing responsibility for quality

improvement and academic support in their cluster.

7) Recruitment of qualified teachers by implementing reservation system of women

teachers in the recruitment.

D) Activities for Quality Improvement in Schools

1) Accomplish the most parts of Teacher’s Training during summer vacations in

schools.

2) To arm clusters and block resource centres with all necessary resources quality

improvement in education.

3) Take initiative towards grading of teachers and schools.

4) To support communities for keeping vigil on quality education and give necessary

support in this regard.

46

5) To make Social Audit a regular process with the involvement of community.

6) To attach educated youth and retired persons from community to support schools

for various activities.

7) Ensuring immediate action on given proposals/suggestions in the school overview

report and monitoring through web portal.

E) Activities for Resource Availability and Utilisation

1) Need assessment for school development plan.

2) Determining priorities on the basis of available budgetary resources and budget and

to make available resources in a stepwise manner.

3) Continuous capacity building and training of members of education committee and

elected representatives for plan formulation at village or school level.

4) Necessary arrangements for visits to best schools and panchayats.

5) Make available check list to community members to ensure best and regular use of

available resources e.g. to monitor whether the radio is being used regularly or not.

G) Activities on issues related to teachers

1) To provide training and making education officials sensitive for fast redressal of

issues related to teachers.

2) Training needs assessment of teachers to provide training as per their needs.

3) Avoidance of deputation of teachers.

4) Necessary action for not sending teachers for non-teaching works.

5) Implementation of Right to Education related activities.

6) Encouragement for use of training related issues in the classroom.

7) Community initiative for arrangement for teacher’s residence.

8) Capacity building of teachers/members of committee to take initiatives for

community participation.

I) Activities towards improvement in process related issues

1) Instructions for improvement in the process related to construction work and use of

portal for the same.

2) To make arrangement of training for the planning for school development.

3) Establishment of strong training network from state to block level for regular

training of elected representatives.

4) Preparation of human resources development policies and their implementation.

5) To prepare clear job chart for departmental functionaries and elected

representatives.

6) Necessary process to make teacher accountable.

47

7) Necessary steps to prepare policy for Public-Private partnership

8) Taking necessary steps and organise meetings for inter-departmental coordination.

Other Possible Action Points

Village Education Register (VER) up gradation and updating and follow up action should

focus on out of school children, both drop outs and never enrolled children. It is also

possible to track the migration trend and identify the families. There is a possibility for PRIs

to facilitate a process of arranging provisions for such children.

This exercise would also be helpful in identifying children with special needs. Linkage with

Mobile Resource Consultants is crucial.

Linkage between SDP and Block-level PRI annual plan/further convergence with

departmental budget (including SSA). This should include building plans. Master plans

should be developed, based on which SMC-PRI joint planning would be phasing on priority

basis. For this capacity building is required.

Authorising PRIs to fill up vacant posts of teachers temporarily, this is linked with HR policy

speaking on specific timeline for filling up vacant posts. The authorization would be helpful

in regard to leave vacancies. For this capacity building is required.

Provisioning of local teacher (part-time) to address issue of language gap, at least in Grade 1

and 2.

PRI can play a crucial role in developing a functional relationship between school and the

community, taking SMC as the interface. Scope to be worked out for PRIs to step in over the

backdrop of RTE. Once the mechanism is worked out, CB will be required.

PRIs can play a crucial role in ensuring 25% enrolment of EWS children in private schools

also.

Updating the PRIs (if possible along with concerned SMCs) on various available provisions

(legal, logistical resource, technical resource, financial resource). It should be an

institutionalized process (may be bi-annual).

Following ‘pre-condition’ provisions should be made:

Speaking GO on required interdepartmental coordination with well-designed systems

and process.

48

Monitoring mechanism should be worked out with required interdepartmental

agreement. The checklist may include following aspects:

- Infrastructure and facilities/provisions

- Grade-wise expected learning levels

- Teacher –student regularity

- Movement of teachers

- Mid-day meal

- RTE

HR policy should have speaking clause on these issues

- Ratio of male-female in the teacher strength at school level.

- Specific timeline for filling up of vacant posts.

- Revisiting the existing norms for attachment to other schools.

- Authorization of local bodies to fill in the vacant posts till the new recruit joins;

should be applicable in case of leave vacancies also.

Firm stand on alternatives for out of school children, including children affected by

migration/conflicts/difficult geographic conditions.

49

2.4.3 Primary Health and related services

Involvement of Panchayat in Primary Health

At Janpad Level: Officials of Health department regularly attend General body meeting of

Janpad panchayat as well as meeting of Health, Education & Sanitation committee. In such

meetings, Health dept. provides information about different schemes, health camps,

construction of Sub-Centers, training requirements etc. ERs of JP support in organising health

camps in the respective block. If dept. receive any complaint against the ANM or other official

then the dept. discuss the issues with members of Janpad panchayat before taking any action.

Health Services (Block to Panchayat level)

Block Medical Officer

↓ Block Education Training Officer/Block Programme Manager

↓ Sector Doctor (1 sector doctor on 5-6 sub-centers)

↓ Sector Supervisor

↓ ANM

↓ Mitanin/Health Worker

Gram Panchayat Level: At Gram Panchayat level health department constitute Village Health &

Sanitation Committee (VHSC) which works under the directions of Health, Education &

Sanitation Committee (HESC) of gram panchayat. The VHSC is constituted at the village level

and ward panch who is a member of HESC is president of the VHSC. ANM and Mitanin are

designated to attend the meetings of gram panchayat and share the information w.r.t. to

various schemes and health activities in respective panchayats. Gram Panchayat has to monitor

the health services on regular basis.

50

Structure of Chhattisgarh Public Health System

State Health Mission Hon. Chief Minister, Chair

Hon. Health Minister, Vice-Chair

General Body of State Health Society Chief Secretary, Chair

Executive Committee of SHS Secretary Health, Chair

Director, Public Health & FW

Director Training

Director Health Services

Director AYUSH

Mission Director, NRHM

SHRC

CMHO

DAO

DDOO

DPM

DPMU

SPM

SPMU

SPO

SFM

M&E

HMIS

SDO

Civil Surgeon

MO

BMO

ANM/MPW

LHV/HS (M)

Mitanin

BADA

BPM

BPMU

SPO, Imm. Part ‘C’

JD, NDCP Part ‘D’

JD, NRHM

JD, RCH Part ‘A’

DDs

DD

DD

MCH

SAM

51

2.4.3.1 Current Status of Activity Mapping


1. Management and operation of District Hospital, Civil Hospital, dispensaries situated in urban areas and special hospitals.

2. Construction of new buildings, procurement of equipment’s.

3. Fixation of terms and condition, rate contract for purchasing of medicines and other goods will be done through state level purchase committee.

1. Management and operation of community health centres, primary health centres and sub health centres.

2. Prevention of diseases in Districts.

3. Responsibility and implementation of National Health Programmes.

4. Maintenance of equipment’s and buildings of institutions given to Panchayats.

5. Purchase of medicines based on rate contract of State Committee.

1. The responsibility of monitoring the activities of primary health care centres and sub health centres situated in Janpad/ Gram Panchayats will be given by Zila Panchayats.

--------

Functionaries 1. District Chief Medical Officer and Officials under CMO under the Zila Panchayat. 2. A Clerk at the Janpad Panchayat Level.

Budget 1. Budget for purchase of medicines will be given to Zila Panchayats by District Chief Medical Officer. 2. Budget for maintenance of Buildings will be handover to Panchayats.

Department of Health Education

State Sector District Panchayat Janpad Panchayat

Gram Panchayat

1. Salary withdrawal and disbursing of working staffs in the dispensaries operated by Zila Panchayat has to be done by Department Ayurvedic officer/ district Ayurvedic officer.

2. Management and operation of District level/ city hospitals.

3. Disciplinary action against 1st / 2nd class officers.

4. Administrative control on District level/ city hospital and dispensaries except

1. Establishment work - management and operation of 2079 dispensaries situated in the rural area of the State.

2. Administrative control over III and IV grade staff in the dispensaries situated in the rural areas.

3. Construction, repairing and maintenance of dispensaries buildings in the rural areas.

4. Payment of rent of operational dispensaries running in rented accommodation in the rural areas.

5. To take disciplinary action against III and IV grade employees in the dispensaries situated in the rural areas.

------ ------

52

transferred 2079 rural dispensaries.

5. To open new dispensaries. 6. Status quo on all

Department Ayurvedic officers/ District Ayurvedic Officers will be authorized and responsible for duties, works and supervision of staff given to panchayat sector and control, monitoring, guiding and providing technical support.

Development/Health Services etc. 1. To make decoction locally in the dispensaries

situated in the rural areas. 2. Production of medicinal plants 3. Prevention/ treatment measures of epidemic

and monitoring on health check-up of school children in rural areas.

4. Arrangement of pure drinking water and electricity in the dispensaries situated in rural areas.

5. Fixation of holidays except Haat Market days for dispensaries situated in rural areas.

6. Supervision for control over dog bites, snake bites, scorpion bites in the rural areas.

7. Complete participation and implementation of vaccination programme in rural areas.

8. Formation of public health development committees in the rural areas.

9. To propagate and promote panchkarma therapy base-formula, natural therapy and yoga in the rural areas.

10. Supervision, inspection and control over attendance, works of dispensaries in the rural areas.

11. Participation in national health programmes in rural areas.

12. To ensure health services in rural areas during fairs and festivals. To make arrangement of life savings drugs in the dispensaries situated in the rural areas.

Functionaries 1. III and IV grade employees of transferred dispensaries will be under Zila Panchayat. 2. To fill the vacancies of direct recruitment on contract basis in the dispensaries situated in the rural

areas.

Budget: -----

Issues related to Primary Health and related services

Practically nothing have been devolved to gram panchayat under the current activity

mapping for primary health and related services in the state.

Education, health and social welfare committee which is responsible for vaccination and

family planning programme, inspection of health and family welfare schemes and health

centres in Gram Panchayat area and certification of their attendance is not functional.

53

Irregular attendance of functionaries in the gram panchayat meetings. Even gram

panchayat fails to provide timely information about the meeting to the functionaries of

the health department.

No proper coordination among gram panchayat and health department at all the three

tiers of panchayats.

Functional guidelines are not clear at all levels.

Panchayat members are not aware of health functionaries at the panchayat level.

Panchayat representatives as well as gram sabha members are not aware of

government health programmes and schemes.

Panchayats are not doing monitoring of the implementation of health services as well as

health workers.

Planning under NRHM is not happening in consultation with panchayats.

As per the officials of NRHM at block level, untied fund available has been utilized in

repairing hand-pump and spreading Murum around the hand pumps. This untied fund

could be used in a more effective manner if convergence of available resources under

other schemes (like MGNREGS) happens.

Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007)11 also revealed that there

is lack of involvement of panchayats in delivering effective healthcare, PRIs, ANMs and

Mitanin’s have poor and limited knowledge about the programme and lack of

participation in trainings by ANMs.

2.4.3.2 Suggestions for revised Activity Mapping

Function State Zila Panchayat Janpad Panchayat

Gram Panchayat

A) Health Policy and State health report

1. Health policy for the state.

2. Preparation and publishing of state health report.

1. Preparation of annual health report for the district.

2. Distribution of Funds.

1. Compilation of annual health report for the block.

1. Gram panchayat look after the annual compilation and updation of vital health statistics in the villages.

B) Health Plan 1. Format for the health plan.

2. Preparation of health plan.

1. Consolidation and finalisation of health plan for the district.

2. Looking into the inter JP issues.

1. Consolidation of health plans of gram panchayats and preparation of

1. Organising gram Sabha’s for the preparation of health plan.

3. Approval of gram sabha.

11 Rapid Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007), National Institute of Health and Family Welfare, New Delhi (http://nihfw.org/pdf/RAHI-I%20Reports/Chhattisgarh/Chhattisgarh.pdf)

54

Janpad level health plan.

2. Finalisation of gram panchayat health plan.

C) Construction 1. Design and technical inputs.

2. Construction of district hospitals, CHC and civil hospitals.

1. Construction of PHC and Sub- centres.

2. Construction of maternity wards in the sub- centres.

1. Inspection of the quality of construction and submit report to ZP and GP for further action.

1. Maintenance and supervision of Anganwadi centres.

D) Supply of medicines & other equipment’s

1. Preparation of guidelines for purchase and ensuring availability.

2. Purchase and distribution to districts.

1. Monitoring of the medicines and equipment at the CHC and PHC level.

1. Procurement, ensuring availability and monitoring of distribution at sub- centre level.

1. Ensuring availability of medicines.

2. The standing committee of gram panchayat on health must ensure the availability of medicines etc. and present the report of the same in the gram sabha.

E) Awareness programmes

1. Preparation, publishing and supply of IEC material.

2. Promotion of IEC campaigns.

3. Other technical inputs on the awareness generation programmes.

4. Promotion of school health programmes.

1. Promote various health programmes and schemes through rallies and camps, demonstration-cum- exhibition programmes.

2. Propagate and create awareness about maternal and child care immunization and family planning programmes.

1. Distribution of IEC material among GPs.

2. Support ZP in providing technical support to GPs.

1. Identification of health issues.

2. Identification of beneficiary mother’s and children.

3. Organising need based health camps.

4. Awareness generation for attending health camps.

F) Primary health services like MCH, disease control, family planning etc.

1. Coordinate and supervise all the primary health services at the district level.

2. To develop linkages among panchayat and department,

1. Promotion of health services at the block level.

2. Assist in coordinating emergency medical services.

1. Mobilise and organise people for health and family planning, regular ante natal and post natal checkups and referral services at the village level.

2. Ensuring the use of

55

108 system for transportation.

3. Ensuring the sharing of records of immunization, maternal and child mortality, malnourished children, epidemics and seasonal diseases etc with the gram sabha.

4. Display of information related to all government schemes, programmes, days of vaccination and other such information.

5. Registration of birth and death.

G) Epidemic preparedness and response to epidemics.

1. State Epidemic preparedness plan.

1. Epidemic preparedness plan for the district.

2. Referral hospital.

1. Laboratory at the Janpad level for the detection of cases.

2. Referral services.

1. Routine surveillance in the villages.

2. Referral vehicle.

H) Monitoring of Primary Health Services

1. Periodic surveys. 1. Supervision of all health centres under the jurisdiction of block including Indian system of Medicines dispensaries.

2. Inspection/ assessment of quality of public health services.

1. Monitoring of health services at gram panchayat level.

2. Upkeep of village sanitation, cleaning of roads and drainage.

3. Supervise the activities of ANM’s, Mitanin and Anganwadi workers.

I) Waste Management & Disposal

1. Bio-medical waste disposal policy.

2. Preparation,

1. Supply of IEC material.

2. Organising training

1. Organising awareness generation programmes.

1. Monitoring at the Sub- centre level.

2. Provisioning of land for disposal of bio-

56

publishing and supply of IEC material.

3. Technical inputs and training for waste disposal.

programmes. 2. Distribution of IEC material among GPs.

medical waste.

J) Appointment and Training of staff

1. Preparation of appointment and transfer policy for health staff.

2. Training policy for health staff.

1. Managing district cadres for recruitment transfer and discipline.

1. Appointment and cadre provisioning at the block level.

2. Managing block cadres for recruitment transfer and discipline.

1. Administrative control over GP level health workers including Mitanin, Anganwadi worker, ASHA, ANM or any other staff.

Other suggestions

1. Activate gram panchayat health committee for coordination and monitoring of health

services at gram panchayat level.

2. The appointment and termination of health functionaries should be vested with

respective tier of panchayat. At least for field level functionaries.

3. Capacity building of gram panchayat ERs and functionaries should be done on

mobilisation, information dissemination, organising health camps, referral, micro

planning and facilitation.

4. Capacity building of Janpad panchayat ERs and functionaries for the preparation of

health plan and coordinating other activities vested with them.

5. Capacity building of Zila panchayat ERs and functionaries for providing technical support

and supervision.

57

2.4.4 Minor Forest Produce

Chhattisgarh is governed by the Panchayat Raj Act of Madhya Pradesh. Madhya Pradesh was

one of the first states to effect changes in its MFP policy in response to PESA. The MP

Panchayat Raj Act, 1993 was amended in December, 1997 to incorporate a separate chapter

(XIV - A) for the Scheduled Areas and the Panchayat Raj Act of MP was amended in 2001.

However, neither of the two amendments mentioned anything about ownership of Gram Sabha

over MFP. The government, in May, 1998, issued a circular regarding the definition and

management of MFP in the state. An order dated 24. 4. 1999 by the SC & ST Dept of Madhya

Pradesh circulated to District Collectors of Scheduled districts regarding transfer of ownership

rights to the Gram Sabha says in the light of PESA and the subsequent amendment to the MP

Panchayat Adhiniyam, the power to regulate collection and sale of MFP had been given to the

Gram Sabha. A circular dated 22nd Dec, 1999 issued by the SC & ST Department of Madhya

Pradesh defined MFP as produces which are harvested on a non-destructive basis and do not

include minerals and derivatives of animals. The collection and sale of MFP, vide this circular,

was vested with the Primary Co-operative Societies (PCS) and the MP MFP Federation was

authorised to trade in these produces. The federation was mandated to distribute incentives to

the primary collectors after all expenses were met. This provision was to be applicable, apart

from Scheduled Areas, to other areas as well.

According to the forest policy of Chhattisgarh announced in 2001, the state would take

appropriate measures through the Chhattisgarh State MFP (Trade and Environment) Co-

operative Federation Ltd. for sustainable utilisation and long-term conservation of all MFPs

found in the forests of the state. The state would take necessary steps to give ownership rights

over MFPs to local communities as per the provisions of PESA.

Legal Provisions w.r.t. MFP Ownership, Collection, pricing and Trade

Ownership: Ownership of nationalized forest produce lies with the state.

Procurement: Handled by Chhattisgarh State MFP Co-operative Federation Ltd.

Pricing: Regulated by the state.

Trade: Regulated by Chhattisgarh State MFP Co-operative Federation Ltd. MFP Intra-Departmental Committee also oversees the trade of MFP in the state.

Governing state Acts: The trade of Tendu Leaves is regulated by the Chhattisgarh Tendu Leaves

Act, 1964. The trade of Harra, Gum and Sal Seeds is governed by the Chhattisgarh Vanopaj

(Vyapar Viniyaman) Adhiniyam, 1969.

58

The three-tier co-operative structure is constituted under the Chhattisgarh Co-operative Act,

1961.

Deputy Ranger of the forest department is nodal officer of PMFPCFL.

Federation's Apex Body: The Federation's apex body is situated at Raipur. It has nominated

board of directors comprising of Chairman and State government officials. The apex body

performs various activities such as collection and storage of MFP and payment to MFP

collectors through district level co-operative unions. It disposes nationalised forest produce

through tenders and auctions. It advises the state govt. on policy formulation on conservation,

collection, value addition and marketing of NWFP etc.

Forest Produce Co-Operative District Union: Forest produce co-operative district unions are

the Forest Division level units, which are responsible for the production/collection, transport

and storage of produce. The Divisional Forest Officer, who is ex-officio Managing Director

District Union, is the Chief Executive Officer. He ensures collection of produce, storage and

payment of wages to the collectors through primary co-operative societies with the assistance

of Forest Department and other Government Departments. The Managing Director is assisted

by Deputy Managing Director and other staff. The District Union is governed by the Board of

directors headed by elected Chairman. The Board of Directors comprises of elected members

from different areas of the forest division and nominated members like District Collector,

Superintendent of Police, Managing Director and Deputy Registrar of Cooperative Societies.

This governing body formulates the field strategy and reviews the progress.

Primary Forest Produce Co-Operative Societies: Primary Co-operative Societies have been

constituted with the membership of actual collectors of MFP and are responsible for the

State Minor Forest Produce Cooperative Federation Ltd.

Forest Produce Co-Operative District Union

Primary Forest Produce Co-Operative Societies (2 in one forest range area)

MFP Collector

At State level

At Territorial Forest

division level

At Village level

59

collection of the produce at collection center level. Each primary society has 10 to 20 collection

center’s where the MFP is purchased and price is paid to collectors. Each primary co-operative

union has separate area of jurisdiction and elected and nominated members in the Board of

Directors as in the case of district union. Each primary co-operative society has a part time

manager for office and fieldwork. The collection centers are managed by Phad munshis,

appointed for that purpose by the societies. These collection centers are supervised and guided

by Forest Department Officials.

Collectors of MFP: Collectors are the persons who actually collect the forest produce from the

forest area. They get required awareness and basic knowledge about the produce, time of

collection, non-destructive harvesting techniques and the purchase price through primary co-

operative societies. They deposit the produce at the collection center and get the purchase

price. The information about the quantity of the produce collected and the paid amount is

entered in collection card of the individual family specially designed for the purpose. They are

entitled to get in continue wages in case of trade surplus.

Involvement of Panchayat in MFP

At Zila and Janpad Panchayat Panchayat level officials of Forest department attend the monthly

General Body meetings.

Gram Panchayat level: Primary cooperative society handles all the activities of MFP. They

involve SHGs/individuals in collection of MFP like Tedupatta, salbij, Imali, etc. There is no direct

involvement of gram panchayat or gram sabha to decide SHG/individuals and decide price of

MFP. No royalty have been given to gram panchayat for any kind of MFP. Sometimes, gram

panchayat were involved during the time of payment to beneficiaries but it is also not on

regular basis. All the work related to MFP is under the control of primary MFP cooperative Ltd.

Other Issues

According to Ojha (2004)12 neither the Gram Panchayat nor the Gram Sabha has any concrete

idea of the transfer of ownership over MFPs. Though the circulars were issued to the district

Collectors of the Scheduled districts of both the states on transfer of ownership rights over

MFPs, the PRIs were not informed about the same. It is claimed that the ownership rights over

MFPs have been transferred to the Gram Sabha. But neither the Forest Act nor the Panchayat

Act has mentioned it properly.

12 Schedule V Areas- Rights over MFP still a far cry, Ojha Nabaghana, ( 2004) Community Forestry, Volume 3, Issue 3, February 2004, p.4-7

60

2.4.4.1 Current Status of Activity Mapping

Under the subject Minor Forest Produce Activity Mapping has not undertaken.

2.4.4.2 Recommendations for activity mapping under MFP

1. At present 913 Primary Cooperative Societies are operational in state at gram

Panchayat level. Now this cooperative is working independently, there is no

involvement of Panchayat. Panchayat can monitor the work of primary

cooperative society at GP level like selection of data collector/SHGs, Performance

assessment of primary cooperative by GP, discussion related issues of royalty on

MFP, etc.

2. Member of GP should be a member of primary cooperative society.

3. Members of primary cooperative societies should only be producers.

4. Primary cooperative societies should be accountable to gram sabha.

5. 15% fund from trading of MFP is given to primary cooperative which need to

utilize as per the direction of MFP union. But most of the money has not been

utilized. If primary cooperative make accountable to Panchayat then this money

can also be utilized for development of Panchayat as well as cooperative. But

decision related to utilization should be in gram Panchayat meeting as well as in

gram sabha.

6. All the public welfare schemes of MFP department should be run through

Panchayat. The detail discussion should be done in GP meeting.

7. Zila Union should work under the supervision of Zila Panchayat. (Accountable to

ZP)

8. Managing Director of Zila Union should report to ZP related to utilization of fund

(15%), status of welfare schemes, etc.

9. All the activities of managing director of Zila Union need to bring under the

administrative control of ZP.

10. A member of GP and ZP should be on the Governing Board of Primary

Cooperative Society and District Union respectively. These should report to gram

sabha and General body of ZP respectively. The annual and auditor report of the

Primary Cooperative Society and District Union should put before the gram sabha

and ZP respectively.

11. Need to enhance functioning area of Forest committee of ZP.

61

Suggested Activity Mapping under MFP

Activities District panchayat Janpad panchayat Gram panchayat

Regeneration of MFP Species

1) Planning for raising MFP plantation in concentrated blocks to facilitate collection and marketing.

2) Encouraging cultivation of MFP in existing forest, degraded forest lands, barren and uncultivable area, and community wastelands.

3) Encouraging plantation of MFP such as gum, resin, medicinal plants, aromatic plants, leaves, oil seeds, tans and dyes etc.

1) Establishment of MFP nurseries for propagation of MFP species.

1) Assist in identification of families willing to plant MFP species and distribution of MFP seedlings for plantation.

Training 1) Planning for training on various aspects of MFP.

2) Making available requisite training resources.

1) Organizing training programs for imparting skills for scientific techniques of harvesting grading of MFPs.

1) Selection of trainees and forwarding names to Janpad panchayat.

MFP Collection, processing and marketing

1) Monitoring MFP collection activities in forest ranges, timely payment of collection charges.

2) Setting up small scale industrial units for value addition to MFPs.

3) Fixation of support prices for MFP procurement.

4) Establishment of godowns for storage of MFPs.

5) Strengthening of market intelligence and market extension.

6) Developing inter-linkages

1) Organizing item wise MFP cooperatives.

2) Liasoning with forest department for constitution of JFM Committee for MFP regeneration, collection, processing and marketing.

3) Ensuring value addition to MFP before it leaves forest area.

4) Biological

1) Organizing pruning operation of trees before MFP collection season starts.

2) Promoting collection of MFPs, primary processing and value addition to MFP before selling.

3) Ensuring timely payment and adequate collection charges

62

in institutions/ organizations.

7) Biological management Committee at the district level as per the provisions of Biological Diversity Act 2002.

management Committee at the Janpad level

to MFP collectors. 4) Biological

management Committee at the gram panchayat level.

5) Production and value addition under the control of GP.

6) Marketing of MFP produce and products to be done through cooperatives.

Current function arrangement

Jurisdiction Functions Staff

Chhattisgarh State Minor Forest Produce (Trading and Development) Co-operative Federation Limited

State 1) Overall management 2) Development 3) Trade 4) Advises state on:

- Policy formulation - Conservation - Collection - Value addition - Marketing

1) Board of Directors 2) Chairman 3) PCCF & Managing

Director - APPCF & Addl.

Managing Director - CCF & Executive

Director - General Manager-I - General Manager-II - Other Staff

Forest Produce Co-Operative District Union

Forest Division

1) The governing body formulates the field strategy and reviews the progress

District Union 1) Production 2) Collection 3) Transport 4) Storage of produce 5) Payment of wages through

Primary Co-operative Societies

1) Board of Directors 2) Chairman 3) Chief Executive officer

(Ex- Officio MD) [Divisional Forest Officer)

4) Deputy Managing Director

5) Other Staff

63

Primary Forest Produce Co-Operative Society

Cluster of 10-20 collection centres

1) Collection of produce at collection centre level

2) Supervision of collection centres by Forest department officials.

1) Board of Directors 2) Members (actual

collectors) 3) Part time manager 4) Phadmunshi

2.4.5 Livelihood (Poverty Alleviation)

Involvement of panchayats in Mahatma Gandhi National Rural Employment

Guarantee Scheme (MGNREGS)

The MGNREGS is undertaken to study the role of different tiers of Panchayati Raj Institutions in

the implementation of the scheme in poverty alleviation. The review of MGNREGS guidelines

revealed that the role of different tiers of PRIs is very clearly defined and it would help in

developing an argument for the review of activity mapping under the subject ‘Poverty

Alleviation’ in a more meaningful manner.

Zilla Panchayat

As per Section 13(2) zilla panchayat is responsible for the following:

a) To finalize and approve block wise shelf of projects to be taken up under a programme

under the Scheme;

b) To supervise and monitor the projects taken up at the Block level and district level;

c) To carry out such other functions as may be assigned to its by the State Council, from

time to time

Janpad Panchayat

As per Section 13(3) Janpad panchayat is responsible for the following:

a) To approve the Block level Plan for forwarding it to the district Panchayat at the district

level for final approval;

b) To supervise and monitor the projects taken up at the Gram Panchayat and Block level;

and

c) To carry out such other functions as may be assigned to it by the State Council, from

time to time.

Gram panchayat

As per Section 16 and Section 17 (3) gram panchayat is responsible for the following:

64

Section 16

a) Identifications of the projects in the Gram Panchayats area to be taken up under a

Scheme as per the recommendations of the Gram Sabha and the Ward Sabhas and for

executing and supervising such works.

b) Take up any project under a Scheme within the area of the GP as may be sanctioned by

the Project Officer.

c) Every GP shall, after considering the recommendations of the Gram Sabha and the Ward

sabhas, prepare a development plan and maintain a shelf of possible works to be taken

up under the Scheme as and when demand for work arises.

d) The GP shall forward its proposals for the development projects including the order of

priority between different works to the PO for scrutiny and preliminary approval prior to

the commencement of the year in which it is proposed to be executed.

e) The GP shall allocate employment opportunities among the applicants and ask them to

report for work.

Section 17(3)

a) The GP shall make available all relevant documents including the muster rolls, bills,

vouchers, measurement books, copies of sanction orders and other connected books of

account and papers to the Gram Sabha for the purpose of conducting the social audit.

Para 15 of Schedule I

Prepare annually a report containing the facts and figures and achievements relating to the

implementation of the Scheme within its jurisdiction and, copy of the same shall be made

available to the public on demand and on payment of such fee as may be specified in the

Scheme.

Para 2 of Schedule II

To register the household, after making such enquiry as it deems fit and issue a job card.

Para 20 of Schedule II

The Gram Panchayat shall prepare and maintain or cause to be prepared and maintained such

registers, vouchers and other documents in such form and in such manner as may be specified

in the Scheme containing particulars of job cards and pass books issued, name, age and address

of the head of the household and the adult members of the household registered with the

Gram Panchayat.

65

Gram Sabha

As per Section 17 Gram Sabha is responsible for the following:

a) The Gram Sabha shall monitor the execution of works within the GP.

b) The Gram Sabha shall conduct regular social audits of all the projects under the Scheme

taken up within the Gram Panchayat.

2.4.5.1 Current Status of Activity Mapping under Poverty Alleviation

State Sector Zila Panchayat Janpad Panchayat Gram Panchayat

1. Policy formulation, Training, coordination with various departments of Government of India and State Governments, district wise fixation of targets in various programmes and other works except works given to Panchayat sector.

Jawahar Rojgar Yojana 1. Expenditure of 15 percent

of available funds under the scheme as per self-priority.

Employment Assurance Scheme 2. Expenditure of upto 40

percent of available funds under the scheme as per self-priority.

Jeevan Dhara Scheme 3. To fix Janpad Panchayat

wise targets.

Indira Aawas Scheme 4. To fix Janpad Panchayat

wise targets.

Integrated Rural Development Scheme 5. Supervision of Integrated

Rural Development Scheme.

6. To fix targets for Janpad Panchayat.

7. Supervision of TRYSEM Scheme.

8. Supervision of Advanced Tool Kit programme.

Rights of Administrative Approval 9. Works upto Rs. 10 Lac.

1. Expenditure of 15 percent of available funds under the scheme according to self-priority.

2. Expenditure of 30

percent of available funds under the scheme according to self-priority.

3. To fix Gram Panchayat

wise targets.

4. To prepare the issues for beneficiaries.

5. Implementation of Integrated Rural Development Scheme.

6. Implementation of

TRYSEM Scheme. 7. Implementation of

Advanced Tool Kit programme.

8. Works upto Rs. 7 Lac.

1. Expenditure according to self-priority of 70 percent of available fund under the scheme

2. Selection of beneficiaries on approval of Gram Sabha.

3. Selection of beneficiaries on approval of Gram Sabha

4. Selection of

beneficiaries on approval of Gram Sabha

5. Works upto Rs. 3 Lac

66

Functionaries Budget

1. District level Officer and staff of District Development Branch will be under district panchayat.

2. Merger of District Rural Development Agency with all its officials into Zila Panchayat.

3. Merger of Block Development office situated at block level into Janpad Panchayat.

4. Assistant Development Extension Officer, Development extension officer, Block development officer under Janpad Panchayat.

5. Gram Assistant under Gram Panchayat.

1. Part of Government of India and State Government.

2. 90 percent by Central Government and 10 percent by beneficiaries.

Issues related to Poverty Alleviation Programmes (w.r.t. MGNREGA)

1. AM done under the poverty alleviation a programme is identified with the schemes with

no space for PRIs to innovate, plan and implement.

2. No coordination among the standing committees of panchayats in implementation of

livelihood programmes for poverty alleviation.

3. The implementation of activities under the various poverty alleviation programmes and

MGNREGA have little convergence. This results into duplicity of resources.

4. The institutional arrangement for the implementation of poverty alleviation

programmes has weak linkages with the panchayats as institutions of local governance

which results into poor utilisation of resources and delay in implementation of the

programmes.

2.4.5.2 Suggestions for Activity Mapping under Poverty Alleviation

State District Panchayat Janpad Panchayat Gram panchayat

A) Policy for poverty eradication

1) Poverty alleviation policy for the state.

2) Preparation and publishing of state poverty report.

1) Preparation of annual poverty report for the district.

1) Compilation of information from GPs for poverty report of the block.

1) Compilation and updation of vital statistics for villages under the gram panchayat.

B) Planning 1) Budgetary Provisions for implementation of poverty alleviation programmes.

2) Coordination among departments and

1) Poverty Alleviation Plan for the district.

2) Labour plan for the district.

3) Coordinate with different departments

1) Poverty Alleviation Plan for the Janpad.

2) Labour plan for the Janpad.

1) Poverty Alleviation Plan for the gram panchayat.

2) Labour plan for the panchayat.

3) E Shelf of projects for

67

other agencies at the state level.

3) Technical support and assistance for planning at JP& GP level.

and other agencies operating in the district.

4) Assist in extending technical assistance for planning at GP and JP level.

5) Distribution of Funds.

schemes suitable to local population.

4) Project formulation and approval from gram sabha.

C) Capacity Building & Training

1) Training infrastructure at the State level.

1) Training infrastructure at the district level.

2) Advanced training programmes.

1) Preparation of training plan for the Janpad.

2) To organise entrepreneurship development programme.

3) Capacity building & training of SHGs.

1) Need assessment for entrepreneurship development programme for youth.

2) Ensuring training of ERs specially those who are representing standing committee’s as well as panchayat functionaries.

D) Identification of beneficiaries

1) Formulation of guidelines for the purpose of identification of beneficiaries.

1) Approval of beneficiary list.

1) Monitoring of identification drives at the gram panchayat level.

1) Selection of beneficiaries for poverty alleviation schemes and all such programmes.

F) Technical Assistance & Market linkages

1) Technical cell in the rural development department.

2) Develop market linkages for products through Rural Business Hubs (RUBs) and other mechanisms.

1) Technical cell at the Zila panchayat level.

2) Ensuring services of technical cell to panchayats.

3) Supporting the mechanism of market linkages through facilities at the district level.

4) Preparation of IEC material and

1) Assist GPs in providing technical and managerial assistance for implementation of schemes entrusted to Janpad Panchayats.

2) Execute projects outside the preview of GPs plans.

3) Market complexes or rural hats with

1) Demand for services from technical cell.

2) Maintaining village markets with necessary infrastructure.

68

technical support. necessary infrastructure.

4) Distribution of IEC material among GPs.

5) Support to GP in providing technical support.

F) Monitoring & Evaluation

1) Review of Poverty alleviation programmes of centre and state.

1) Supervise and review implementation of different poverty alleviation programmes.

1) Assistance in the evaluation of schemes.

1) Supervision and monitoring of poverty alleviation programs.

2) Social audit of poverty alleviation programmes.

3) Maintenance of assets developed under the poverty alleviation programmes.

4) All kinds of reports to be placed for the scrutiny and approval of Gram Sabha.

Other Suggestions

1. All the issues and priorities related to planning should be finalised in the gram sabha.

2. Gram panchayats should ensure quality gram sabha meetings.

3. The proceedings of the gram sabha should be recorded appropriately and should be read

in front of gram sabha before finalisation.

4. Social audit for all the rural development programmes should be made mandatory.

5. All the records related to rural development programmes should be maintained by gram

panchayat.

6. Janpad panchayat should ensure availability of information related to available budget to

gram panchayats in advance.

69

7. All the departments should pool resources available for capacity building and awareness

generation regarding rural development programmes for better utilisation.

8. All the rural development works should be continuously monitored by standing

committee of the respective tier of panchayat.

9. Assessment of capacity building requirements should be done by Zila panchayat for the

respective district.

10. All the rural development schemes directly targeted towards poverty alleviation should be

covered under the head ‘poverty alleviation’. This would help in convergence and pooling

of resources.

70

References

1. Comparative Analysis of Activity Mapping in Himachal Pradesh, PRI Report 2008-2, GTZ

2. Rapid Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007), National Institute of

Health and Family Welfare, New Delhi (http://nihfw.org/pdf/RAHI-

I%20Reports/Chhattisgarh/Chhattisgarh.pdf)

3. http://cg.nic.in/pdsonline/FPSRPTen.aspx (accessed on 15-2-2012)

4. GoC, Letter No. 1794/ [kk|/2006, dated 13/06/2006, of Department of Food and Civil

Supplies, Government of Chhattisgarh

5. GoC, Letter no. F-1-117/2005/20, dated 15/09/2006, Department of School Education,

Government of Chhattisgarh

6. GoC, Letter no. F-11-33/2005/25-2/ vktkd dated 19/07/2008, Tribal Caste and Scheduled

Caste Development Department, Government of Chhattisgarh

7. Jindal, Yogesh, Chhattisgarh Panchayat Raj Manual (2011), India Subscription Agency,

Raipur, Chhattisgarh

8. Targeted Public distribution system in Chhattisgarh, CASA (Church's Auxiliary for Social

Action), Chhattisgarh

9. Majumdar Bipasha, Public hearing in Raipur shown a grim picture of the best PDS in India

(2011), http://www.oxfamindia.org/content/public-hearing-raipur

10. How the PDS is changing in Chhattisgarh (12 January 2011),


11. Puri Raghav, Reforming the Public Distribution System: Lessons from Chhattisgarh (2012),

Economic & Political Weekly, Vol XLVII No 5 (4th Feb 2012)

12. Rapid Appraisal of Swasth Panchayat scheme in Chhattisgarh (2007), National Institute of Health and Family Welfare, New Delhi (http://nihfw.org/pdf/RAHI-I%20Reports/Chhattisgarh/Chhattisgarh.pdf)

13. Ojha Nabaghana, Schedule V Areas- Rights over MFP still a far cry, (2004) Community

Forestry, Volume 3, Issue 3, February 2004, p.4-7

http://nihfw.org/pdf/RAHI-I%20Reports/Chhattisgarh/Chhattisgarh.pdf

http://nihfw.org/pdf/RAHI-I%20Reports/Chhattisgarh/Chhattisgarh.pdf

http://cg.nic.in/pdsonline/FPSRPTen.aspx

http://www.oxfamindia.org/content/public-hearing-raipur


71

Report prepared by

Contracted by

42, Tughlakabad Institutional Area, New Delhi – 110 062 (India) Phone: +91-11-2996 0931 / 32 / 33; Fax: +91-11-2995 5183 Email: [email protected]; Web: www.pria.org


GIZ IS Office, 2-Maulshree Vihar, Off VIP Road Raipur - 492006, Chhattisgarh (India)

european union state partnership programme with chhattisgarh of... · state partnership programme...

Documents