people's planning a general...
TRANSCRIPT
Chapter V
PEOPLE'S PLANNING - A GENERAL EVALUATION
People's P l a~~n ing in Kerala has become the cynosure of world attention.
It is even maintained that history is made not by the six billion people of the world at
large, but the thirty million people of a tiny geographical region, viz, Kerala. It is also
claimed that the strikinq feature of the new paradigm, that is in making in Kerala is
that the poor and opprcssed one, slowly, but surely, emerging out of the shadows of
marginalisation and mi wing into visibility (Kunhanan, M. 2000).
The sustainability of planning and development system. that is evolved
experimentally, depenr 1 s on its transformation to a social system. It requires certain
augmentation to the prcjsent system, which is essentially need based and dependent
on availability of financ-ial resources. The system should be more responsive to the
natur.al situation of a locality, its biological existence. inter relation with sectoral
activ~ties etc (Ajaykunlar Varma et al., 2000).
The process of decentralised development already set in motion in Kerala,
aims at effectively utilrsing the local level capabilities for accelerating the pace of
regicrnal development The local level capabilities include, among other things, the
local. physical and h ~ r m a n resources along with original strength and political
consciousness of the people. This is to be accomplished through decentralisation of
financial resources and empowerment of local level institutions in the state.
An over all c%ssessment of the People's Planning Programme is attempted
in this chapter.
To appreciate the evaluation one must be familiar with the profile of the
study area.
Profile: of Ernakulam district
The Ernakulam district is named after the Ernakulam town. the name of
which inturn has been (lerived from the word "Rrishinagkulam' a famous tank in
the famous Siva Templ~, situated in the heart of the town (Sreedhara Menon, 1965).
The Ernakulam district was constituted on 1st April 1958 as per the G . 0
(P) No.Z64/Revenue (R) dated 22.3.1958. It was formed by cawing the regions from
Thrissur and Kottayar~l districts. The district comprises the area of the erstwhile
Travancore, Cochin arid Malabar States.
The district lies between the latitude of 942 and 10018 and longitude of
76013 and 7 7 2 . It is situated centrally in the state. The area of the district is
2407 Sq.km constitut~ng 6.19% of the total area of the state.
According to the physiographic conditions the topography of the district
can be divided into high land, mid land and low land.
The climate experienced in the district is tropical humid with almost uniform
temperature throughout the year. The total annual rainfall per year 3275mm.
The Fkriyar and Muvattupuzhayar are the most important rivers in the
district. The Periyar is the longest river in the district with a length of 229 kms playing
a prominent role in the development of agriculture. The Muvattupuzhayar is formed
by the union of three rivers of Kaliyar, Thodupuzhayar and Kotharnangalayar and is
having a length of 121 kms. The district in blessed with an attractive net-work of
back waters of Vembanad and Kodungallur Kayais extending to an area c . ~ f
205 Sq. kms.
The forest arpa available in the district is iimited. The Malayattoor high
range and the eastern and north eastern tips of the Muva t tupueha a n d
Kotharnangalam taluks torrned the forest area of the district.
The major m~neral resources available in the district is clay. This is used in
manufacturing roof tiles, pipes etc. 'The geographical survey conducted in various
taluks of the district has revealed the presence of monozite and graphite in small
quantities.
For administrative purposes the district is divided into two revenue sub-
divis'ions having headquarters in Fort Cochin and Muvattupuzha. The district includes
122 revenue villages and 7 taluks. For development purposes the district is divided
into 15 community development blocks, 8 rnuncipalities, one corporation and eighty
six grarna panchayats
The district population based on 1991 census is 28.18 lakhs constituting
10% of the state's population. This is constituted by 25.88% under the age group of
0-14, 64-74% under the age group of 15-59 and 9.38% under the age group of 60
and above. The district ranks seventh in area wise and third in population wise
among the districts in the state.
Ernakularn district had a very successful literacy campaign. It is the first
district which attainvd cent percent literacy in the state. The Prime Minister ot India
declared Ernakulam district as totally literate in February 1990.
The highest i)er capita income in the state is in Ernakulam district. It is
Rs. 12,2371 during 19'18-99 (State planning Board, 1999). The Ernakulam district
attained 5.88% growth rate during that period.
Agricuhre t onstitutes the most important segment of the district economy
and it is the highest sotlrce of employment. The area under cultivation in the district
is 1,81,409 hectares constituting 77% of the total geographical area of the district.
Thirty percent of the area is under paddy cultivation and 36% under coconut. About
81,198 agriculturists and 1,37,921 agricultural labourers totalling 2.19,119 are
engaged in the agric~rltural operations in the district.
In the field of industry too, Ernakularn district is in the forefront of all the
other districts and it is the industrial capital of the state. Out of 17,719 working
fac.ttories in the state 2700 are in the district (State planning Board, 1999). The workers
engaged in the industrial field in the district is 1,60,587 consisting of 20.21 % women
workers and 79.79"'0 men workers. Tremendous development is also seen in the
service sector. Both the public and private sector show visible growth in the industrial
as well as in the service sector. The composition of income in the district during
1991-92 period is 23.25% from the primary sector, 40.82% from the secondary
sector and 36.64% from the tertiary sector.
Selected characteristics of Ernakulam district are shown in Table 5.1.
Table 5.1
Ernakulam District at a glance
Item Area
Taluks Villages Blocks Panchayat Municipalities Corpora tion House holds Population Lbtal
Male I'ernale
Density of population Sex-ratio S.C population S .T population Literacy rate Ckneral
S c: ST
Main workers Marginal workers Work participation rate Individual operational lro tdings SSI Units (Small Scale Industrial I Jnits) Schools Medical Institutions - Allopathy
Ayurveda Homeopathy
Unit Sq.Km
No No No No No N o
000's Lakhs
1,
Per Sq.km Per 1000 males
000's I
1,
la khs No No
1,
*,
1,
Year of reference 1991
Source : Department of Et onomics and Statistics (1995), Yanchayat level statisti-s. Frnakul;jm, Thiruvananttlap~~rnl-11, Government of Kerala, 1995.
The grama panchayats have been given utmost importance in the state,
being the lowest tier under hnchayati Raj. The profile of the panchayats selected
for the study is presented here under.
Asamannoor Panc hay a t
Asamannoor panchayat was constituted in 1960 as per the (3.0 (MS) No.
19116 dated 28.12.1960 The panchayat has an area of 21.57 Sq.km. Out of this 5%
is hilly area with nine hills, 20% paddy field and the rest is hill valleys.
The famous ancient Kallil Temple is situated in this panchayat. It is a cave
Jaina Temple. The temple is roofed by a single rock of the size of 35x35~35 metre
and the sanctum sanctorium is under the rock. This ancient cave temple was taken
over by archeological d~pa r tmen t in 1965 and is preserved as ancient property.
The Lemon < ~rass Oil Research Station which is the only research station
in the world is situated nt Odakkali in this panchayat. This is a centrally sponsored
research centre (Asama nnoor Panchayat, Development Report, 1996). About 460
species of lemongrass ar-e grown in this research station. Later the Lemon Grass Oil
Research Station is rechristened as Aromatic and Medicinal Plants Research Station
(AMPRS) .
The population of the panchayat based on 1991 census was 16429 with
8245 males and 8184 temales. The population in the panchayat is constituted by
24.37% under the age group of 0-14, 63.94% under the age group of 15-59 and
11.69% under the age group of 60 and above. The density of population in the
panchayat is 762 per sq km. The sex ratio is 992 females for 1000 males. The literacy
rate is 88.35%. Total n ~ a i n workers in the panchayat was 5402 in 1995. Out of this
4108 are males and 1204 are females.
Asamannoor panchayat is a n agricultural area. Geographically this
panchayat is located i r ~ between Muvattupuzha river and Periyar river. The people
are mainly farmers hold1 ng less than are acre of land per family. The main cultivation
is paddy in the lowlying Imd and coconut in the elevated hilly area. Paddy is cultivated
in 371 hectares which cc institute 22.2% of the cultivable land. Now paddy is cultivated
throuh group farming. ( Ioconut is cultivated in 585 hectares which accounts 35% of
the cultivable land. The r,anchayat area is mainly irrigated through the periyar valley
low level canal running <*cross it.
Industrially, Ille panchayat is very poor. No major industrial concern is
located in this region. Selected characteristics of Asamannoor panchayat are
presented in Table 5.2.
Table 5.2
Profile of Asamannoor panchayat
Soutre : Par~r-hayat L)cx-~!rlrenfs.
Koovappady
Ernakula~n 21.57 Sq.Krn 10 16429 8245 8 184
762 Sq.Klrl 1682 992 88.35T1 5402 4108 1294 423 184 23 Y
582 5 42'32 1533 35.46 52.0h 35.4h 3285 598
371 1 lectare
585 Hectare
325 t lectare
90 I leclare
4193 27 1 741, 4 14429
2 1 1 6
7 1 I LDF
4 2 3
Particulars
Block panch, ~ y a t District pancl~ayat Area Number of wards Population ( 1991 census) Male Female Density of population SC/ST population Sex ratio (Fornale per 1000 males) Literacy rat$. Main w o r k ~ l s
Male Female Marginal wr , ~ - k ~ r s M a l r Female Total work<- s
Male Feinale Work partic pation rate Male Female Number uf !louses t louses wit1 wut latrines Land utiliz;ttion for croyx; Paddy Cocurlut Rubber Ba~iana 1-ive stock Cows Baffaloes
Goats Pigs Poultry Education, 11 Institutiorls Nurrtber 01 I ligh schools CJ.PSchoo L.P School Number c?f Government Hospitals/PHCs Industrial inits Traditionai industries Srr~all Scali. industries Ruling frcl~ lt Elected jlitical parties CPI (M) CPI Congress
-
Sl-No.
1. 2. 3. 4. 5.
a.
b. 6. 7. 8. 9.
10. A. a.
b. R.
a. b.
c. a.
b. n.
a.
b. 11.
a. ' 12.
a. b. c. d .
13. a.
1 . c .
d . e .
14. a. b. c .
113. 1 fi.
a. b.
17. 18.
a . b. c .
101
Rayamangalarn Panchayat
Rayamangalarn panchayat was constituted in 1953 under the Travancore
Cochin Panchayat Act 1Cj50. At that time the area belonged to the Travarlcore Cochin
state. Rayamangalarn panchayat has an area of 36.77 Sq.krn. Out of this, 2% forms
hilly area, 38% paddy tield and the rest, hill valleys.
There is an a1 ~cient temple. named 'Iringole Kavu' in this panchayat. It is
in the midst of the forest. All kinds of valuable and medicinal plants are seen here.
Rare species of birds and insects are also seen here. It is a gold mine for zoological
and botanical research ~cholars.
The populat~on of the panchayat based on 1991 census was 30.259 of
which 15250 were males and 15009, females. The age composition of the population
in the panchayat was as follows: 25.13% under 0-14 age group, 64.12% under 15-
59 age group and 10.7.5% under 60 and above age group. The density of population
in the panchayat was €23 per sq. km. The sex ratio in the panchayat was 984 females
for 1000 males. Total number of main workers in the panchayat was 10314 in 1895.
Out o f this 7774 were inale workers and 2540, female workers. The literacy rate in
the panchayat was 91., 39%.
The Rayamangalam panchayat is an agricultural area. Majority of the
people are farmers holding less than one acre of land per house hold. The main
cultivation in the lo& lying land is paddy. Paddy is cultivated in 810 hectares
constituting 29.8% of the total cultivable land. Now paddy is cultivated through group
farming. Coconut is cultivated in 780 hectares constituting 28.7% of the total cultivable
land. The panchayat area is mainly irrigated through two major canals running across
it.
industrially the panchayat is not developed. It has no rrtodern industrial
units. The Kuruppumpatly town in this panchayat was a major marketing centre for
spices centuries back. El~calyptus Oil which was produced in the neighbouring areas
is marketed through this t-own. The spices and eucalyptus marketing are substantially
reduced due to the emergence of new towns in the adjacent area.
The selected c harecteristics of Rayamangalam panchayat are given in
Table 5.3.
Table 5.3
Kouvappdy Ernakulam 36.77 Sq.k~n 16 30259 152 50 15009 8231Sq.Km 4008 984 91.39WI 10314 7774 2540 534 250 284 10848 8024 2824 35.85 5%. hZ 18.82 6272 1107
810 Hertarc 780 Htlctarr 5511 t lectaie 150 Hecta~e 140 kl~ctarr?
7 2 0 5 322 11 40 58 25405
3 3 6 3 9
I)
17 IJDT:
l! 1
5 1
Sotirre : Pa~~r/rayai I;)oci~:~r~~~ts.
Profile of Ray amangalam panchayat
Particulars
Block par~chiiyat District panc hayat Area Number of wards Population ( 1 991 census)
Male Female Density of population SC/ST population Sex ratio (Fc.rnale p r 1000 males) Literacy rat^ Main w o r k ~ l ; Male Female Marginal w, )rkers Male Female Total w o r k ~ b s Male Female Work partit ~ymtiori rate Male Female Number of !lo~lses
Houses witl~out latrines Iand utiliz<>! ion for crops Paddy Cocor~ t~ t Rubber Pine apple Banana Live stock Cows Baffa1nt.s Goats Pigs Poultry €ducation;;l Institutions Number ot iigh schools I J P School L.P School Diat Number of Governmerit Hospitals/PHCs Industrial ini its Traditional ~r~dustries Modern snlnll scale industries Ruling frr)nt Elected pc )litical parties Congress CPI (M) (,!'I
'
'
S1.No.
1. 2. 3 . 4. 5.
a. b.
6. 7 . 8. 9.
10. A. a.
b. 13.
a. b .
m L.
a. b.
D. a. b.
11. a.
12. a . b. c . d . e .
13- a . b. c . d . e .
14.. a . b. c . d.
15. It;.
a. b.
1'7. 18.
a. b c .
After providinq information about the profile of the study area it is proposed
to deal with the financia! aspects of the plan.
The major component of finance for People's Planning is grants-in-aid.
This has two components: (a) Grant-in-aid viz, united funds, and (b) state sponsored
schemes. Grant-in-aid are given under three heads, namely Tribal Sub Plan (TSP),
Special Component Pldn (SCP) and General Sector Plan. The plan assistance as
grant-in-aid to grama panchayats in the state under the heads General, SCP and
TSP are presented in Tat ~les 5.4 to 5.6 respectively. An average growth rate of 8.98%,
1.88% and 9.35% is rc~corded in the case of grant-in-aid under the three heads
respectively resulting all average total growth rate of 5.69% annually as revealed
from the Table 5.7. As tar as Ernakularn district is concerned the growth rate of the
grant-in-aid during the period from 1997-98 to 2001-02 under the heads General,
SCP and TSP are 5.94% 3.14% and 35.55% respectively resulting an annual average
growth rate of 5.38%. l'he total grant-in-aid alloted the Ernakularn district is 8.04%
of the total grant-in-aid alloted to the distrcts in 1997-98 which came down to 7.63%
in 1998-99 and remain5 without any substantial fluctuations.
The budgetrlry allocation of grant-in-aid to the different tiers of local bodies
in Ernakulam district is presented in Table 5.8. The distribution of grant-in-aid within
different tiers of local bodies during 1997-98 was made using population criterion
alone. From the next year, a major change was introduced with respect to intra tier
distribution by conducting a composite index of entitlement taking into consideration
population, geograp h1ca1 area of the local body, area under paddy and a composite
index of backwardness based on houses without latrines and houses without electricity.
The details are presented in Table 5.9.
Table 5.6
Table 5.7
Table 5.8
Buayetur, . l : ; ~ , ~ a t i ~ : . 3f D!a- 4;sistarcp 3 s qrant-in-aid to different tiers of Local Bodies in Ernakulam District (Rs , in Lakhs)
Genera! SCP TSP Total
3720.71 824.72 35 24 4589.57
7n7.89 318.34 16 92 1123.15
725.02 25.02 33.24 1068.73
The Criter~a for Intra Tier Distribution of Plan Grant-in-Aid
Indicatc , s
1. Populatiun (excludit~r - 2. C;eograph~cal area ez
area under forests
3. Area under paddy
4. Own Income of (>ran I
5. C:ornposite lrtdex of Fi labourers, Persons k I-ivestock, Fisheries
6. Composite it~dex of h( houses without l a t r~ hcluses w~thout electrr> ~ t y
Snur r :~ : Appendix IV, IJu&A'~ / > o c t ~ r n ~ t ~ I ~ 1998-99, Government of Kerala.
Budgetory allocation of grant-in-aid to Asamannoor and Rayamangalam
panchayat is presentcld in Table 5.10. Budgetory allocation of grant-in-aid to
Asamannoor panchayat shows an average annual increase of 13.98%. It was only
4.12% in Rayamangalam panchayat .
'The Campalqn has made a significant breakthrough in mobilising local
resources for developrx tent. It could tap diverse source of finance, namely, internal
funds of the local bod~es, loan finance from co-operative institutions and banks,
beneficiary and voluntary contributions. Among these. beneficiary and voluntary
contributions were novel sources. This is an indicator to the extend to which the non-
conventional source ot finance could be made available for local plans The pattern
of tinancing ot local plans in Kerala is shown in Table 5.11 and that of Ernakulam
district, in Table 5.12 The financing pattern of Asamannoor and Rayamangalam
panchayats is given i r ~ Table 5.13. The local bodies have been able to use a larger
share of their internal funds for the implementation of development plans. A
remarkable feature o f the plan devolution in the state is the diversion of high
proportion of united grant-in-aid component to the local bodies and maximum
autonomy in the planning process. The most glaring feature ot the annual plans ot
the local bodies is t h ~ attempt made to mobilise local resources. But the total number
of projects increased year after year in the state, district and in the selected panchayats,
reflecting the undesirable tendency to take u p larger number of smaller projects.
Table 5.11
Pattern of Plan Financing by the Local Bodies in Kerala, (1997-1998 to 1999-2000) (In Percentage)
(
Tiers
G r a m a panchayats
Beneficiary Contri- bution
27.39
20.37
I I
Block Panchayats
District Panchayats
Perlod
1997-98
1998-99
Others
2.69
2.93
laas-nfi
1997-98
1998-99
1999-00
1997-98
1998-99
1999-00
Total
100
100
No. of Projects
50508
73548
Municipalities
Corporations
1 : 8 w 1
8798
15036
22665
3360
3874
6521
State Sponsored
3.24
State Assistance
42.71
49.73
1997-98
1998-99
1999-00
1997-98
1998-99
1999-00
Loan from Financial
Institutions
8.87
4212
5876
9949
1220
888
1784
67766
99554
159850
Own Funds
6.36
9.85
Voluntary Contri- bution
4.35
! : 2 9
5.19
7.32
8.55
6.67
8.55
6.13
Centrally Sponsored
2.39
I C.I n4
36,67
25.07
33 .55
68.64
63.67
39.44
Totai
5.3 1
16 57
1.45
3.63
4.63
7.69 -.
6.46
13.17
4.70
3.26
5.70
6.15
4.48
6.30
1.58
Loan from Zo-operativ
Institution
1.99
1 7
0.24
0.15
0.00
0.19
0.18
0.00
38.33
40.47
37.02
42.58
34.77 43.20
43.54
--43.85 43.92
1997-98
1998-99
1999-00
I IOU
100
100
100 "
100 -
100
100
2.73
4,06
2.02
4.70
3.61
1.63
3.06
3 63
6.18
1 5 ,
28,70
40.05
37.43
1.84
4.85
3.31
16.29
17.71
24.59
23.72
10.28
19 .73
5.84
7 81
9.27
100
100
100
100
100
100
100
100
100
3.41
3.29 4.96
8.36
6.49
1.03
8.11
1.46 2.24
! 1 1 9 T 1 5 3
4.10 .- 5 81
b 31
?n,k
2.06
1.54
1.68
2.60
2.08
5.00
1.02
0.79
0.48
0.91
0.66
0.56
1.00
1 .31
0.28
0.31
1 . 1 5
0 .60
6.82
12 84
16.85
2 8 4
9.93
2.51
1.69
8.02
5.15
1.49
5.35 2.76
2.22
3.09
4.85
1.62
14.74
18.94
11.98
3.44
8.39
30.91
14.55
13.45
12.81
5.10
22.07
17.12
1 57
1.15 .
0.33
15.19
9.59
6.55
9.53
15.94
6.41
3 .90 - 3 73
2 97
10.58
8.14
11.37
20.58
12 99 ,
8,32
Table 5.12
Pattern of Financing of Local Plan in Ernakularn District 1997-98 & 1998-99 (In percentage)
So ur:e : 1, B u d p i Dc:-!n::enr<. .Apppndir: IL' (.;f>vernr:~~.nt of Keraia. Ernakuiarj, D ~ s t l i r t (2 i State ,*/ai~ning Board.
Total
100
100 -
i 00
100
100
100
100
100
100
100
100
!CU
Others
2 . 3 1
2.37 -.
1.14
6.55
0.07
15.91
3.22
4.15
6.45
3 91
2.95
4 44
Berleficiary Contri- bution
23.59
15.13 1
8.01
2.04
7.78
1.38
9.32
5.37
14.23
6.99
14.86
c! 43
Loan from Financial
Institutions
10.53
, 2.05
18.72
14.70
0.43
2.76
14.59
14.34
31.41
3.41
15 97
5,.87
Tiers of local bodies
Grama Panchajrats
Voluntary Contri- bution
4.40
, 2.88
1.51
2.02
2.97
1.18
4.62
2.59
4.02
2.82
2 76
2 5s
State Sponsored
5.59
. 5 61
Period
1997-98
, otrn oo,
Centrall~l Sponsored
3.48
, 3.29
Block Panchayars
District Panchayats
Municipalitie:
Corporations
Total
C
Loan from Co-operatic6 Institutions
2.50
, 7.10
36.76
43.49
0.00
8.15
5.65
1.71
0.05
5.05
8 04
i1 36
No, of Projects
4317
n
0.91
0.87
0.00
0.03
3.12
6.15
0.55
0.01
1 79
4 12
1997-98
998-99
1997-98
1998-99
1997-98
1998-99
1997-98
1998-99
1597.98
lQ98-99
Grant -in- Aid
37.68
41 26
Own Funds
9.93
, 72 211
909
1572
157
2115
589
779
315
595
6287
9499
27.19
24.05
54.78
60.15
31.66
38.46
31.62
35.53
36 61
3 7 3 2
(3 13
0.35
0.00
0.00
2 5.54
22.80
10.61
40.29
9 74
i o *, , i le ,-
5.63
5.93
3.96
10.37
2.86
4.41
1.07
1.98
4 29
3 19
Available evidence shows that People's Planning has been more
development oriented than the earlier centralised planning exercise. Certain selected
physical achievements of People's Planning Campaign are shown in Table 5.14. The
Campaign has yielded better results in the productive sectors of the economy. The
growth rate of agricultural production in 1998-99 was 3.82% compared to 0.8% in
1997-98 and a n average growth of 1.3% was achieved in 1998-99 compared to the
proceeding three yFars. Industry witnessed over 7% growth in 1998-99. The
service sector also recorded higher growth rate during the same period (State planning
Board, 1999). The most important achievement of People's Planning is that. it
has generated the political will to sustain the scale of devolution of funds in the
subsequent years, despite the financial constraints of the state government
(Thomas Isacc and Richard Frankei, 2000, p. 234). There must be political support
to the idea of decentralisation in the political and economic fields. "Decentralised
planning can be effective if only decision making and implementation are transferred
along with adequate funds to local bodies" (Lakadawala, D.T. 1989)
Table 5.14
Selected Physical Achievement in Annual Plan 1997-98
S o u r c ~ State P!ann~nc Board i 10091 Ero17otnic ,TP;-~u~+. Go:,errl~nc:?t ,>t Kerala
51. No.
1
2.
3.
4.
5.
6 .
7.
8.
9.
10.
11
12
12
Total
,.,s; - , -
51900
125481
1423091
24366
44380
124368
25464
10413
94 17
2702
- 860 - 375
Item:
No of beneficiaries for seeds, seedinqs ter t l~~zers arc
No. of cows distrbuted
No. of goats distributed
No. of hens distributed
No. of new cowsheds
No. of houses cotlstructed
No. of latrines
No. of new wells
No, of new taps
No. of ponds cleaned
KO, of roads (KM)
No nf new culverts .. .
So of new bridges
Grama Panchayats
141-JuSb
39321
104732
1224029
19943
24704
104281
20470
6605
4972
1966
716
358
District Panchayat
, -
1003
3242
30131
280
6433
748
681
9 1
25
224
2.2 . . --
1 0
Block Panchayars
-SU,JLL.
9169
7798
18040
2473
5426
11338
34 13
986
4382
335
8 2
22
Municipalities
- J - ~ - .
2278
8757
105956
1580
3676
5884
900
1460
23
164
4 0 . . . .. ....
8
Corporations
_ _ . *fL 129
952
44935
90
1141
21 17
0
1271
15
13
0
rJ
The item wisv distribution of grant-in-aid in the state and in the Ernakulam
district is presented in 7able 5.15 on percentage basis. The grant-in-aid invested in
the productive sector was 33.9% and 40.66% in the state while it was 33.02% and
38.458 in Ernakularn district during 1997-98 and 1998-99 respectively. In the
productive sector, the. rap husbandry (paddy i other crops) has the highest share
of grant-in-aid. both i r ~ the state and in the district. The crop husbandry accounted
for 8.9% and 8.3% of (he grant-in-aid allocated to the productive sector in the state
while it was 9.31% and 8.3% in Ernakulam district during 1997-98 and 1988-99
respectively. Minor irrigation was also given its due importance. It is given 7.058
and 9.2% of the grant in-aid in the state and 6.94% and 6.95% in Ernakulam district
during 1997-98 and 1998-99 period respectively. It is clear that one fifth of the
grant-in-aid of the productive sector is alloted to each crop h ~ l s b a n d r ~ and minor
irrigation both in the state and in the district justifying the selection of projects in the
productive sector. Tile selected panchayats, viz, Asamannoor and Rayamangalam
have given the highest priority to agriculture and allied activities in the productive
sector, and that acct ~unted 4.79% and 6.93% respectively. The item-wise allocation
of grant-in-aid in Asamannoor and Rayamangalam panchayats are given in Table
5.16 and 5.17 respb.ctively. The high order of priority extended to the agricultural
sector is highly justitiable in the context of the development dialogue in the state that
preceeded the beginning of People's Plan. The development dialogue that went
into the reasons of the crisis of the 'Kerala Model' of development in general and
stagnation of agri(:uItural sector in particular, had underlined the importance
of participatory decentralised planning as a way out (Thomas Isacc a n d
Michael Tharakan 1995). Agriculture and allied activities were identified as area
where the decentralised alternatives had maximum potential for improvement.
Similarly, these local bodic3s identified lack of irrigation facilities as a serious problem
inhibiting agricultural dev<>lopment and give due consideration to the implementation
of minor irrigation projtxts in the productive sector under Peopl~'s Planning
Programme.
The service sec-tor appears to have got due weightage. Housing sector
claimed the highest share of grant-in-aid in this sector. The allocation of grant in-aid
for the housing sector was 14.49% in the state while it accounted far 12.49% in the
district during 1997-98. The grant-in-aid earmarked for housing sector was 12.16%
in Asamannoor panchayat and 19.69% in Rayamangalam panchayat in the servic~
sector. The projects in this area include, apart from new housing programmes, projects
for repairs and improvement of existing houses and distribution of housing plots for
the weaker sections. The high allocation for housing is justified giving emphasis to
the reliance that people place on the same. The share far drinking water project was
7.79% in the state and 6 06% in Ernakulam district during 1997-98 period. In the
service sector, Asamannoor panchayat alloted 8.66 % of grant-in-aid for drinking water
supply projects while it wi-ls 7.39% in Rayamangalam panchayat during the Ninth
plan. Sanitation was given the next importance with an allocation of 5.14% in the
state and 7.47% in the (tistrict during 1997-98 period. The Asamannoor and
Rayamangalam panchayats earmarked 7.53% a n d 4.99% of t h e grant-in-aid
respectively for sanitation In the service sector during the Ninth plan period. If these
programmes were integrated that could have produced some perceptible impact in
the health status of the people.
In the infrastructure sector roads and bridges claimed 80% of the
investment in the state and in the district. The out lay for infrastructure sector was
25.20% in Asamannoor panchayat while it was 23.85% in Rayamangalam panchayat
In the infrastructure sector both the selected panchayats provided the highest priority
for construction of roads The projects in the energy sector were mostly for rural
electrification. The grant-in-aid alloted for electrification in Asamannoor panchayat
accounted 3.20%. and 1.88% in Rayamangalam panchayat. Adequate consideration
was not given to nan-conventional energy projects. This was perhaps due to lack of
awareness regarding the potential of non-conventional energy projects Construction
of public buildings also received due consideration in both the panchayats. The
Asamannoor panchayat alloted 1.61% of the grant-in-aid for construction of public
buildings while it was 1.39% in Rayamangalam panchayat.
Table 5.15
Item-wise Distribution of Grant-in-Aid in Kerala and in Ernakulam District (In Percentage)
Other agricultural prngrarnrrlc~-, Anima! husbandry
Co-oprat inn (agriculture & il llied) Soil & water conservation
Arts ilnrl culture
and rrutritior~ proyralnlrres
ublic distribution
nergy conservatior~
Inland water transport
Source : State P/atmn~l~g Hoarc!
Crll 02
- -. 1 prod~ctive sector Senrice - . Sector lntraslruclure Sector / ..
Fig. 5.1
Sector-wise allocation of plan funds (1997-98 to 2001-02) Asamannoor panchayat
(In Percentage)
... - - - -- - - Agrlcullure Anima! Husbandry F l Irrigation Small Scale Ir~dtrstry I
I3 Houslng a Drinking water OSanltatlon /Health Education 13 Roads
I Women a s o c ~ a l Welfare mothers
Iaflectrlflcatlol mPubllc bu~ldlng - -
I L - - -. - -- - - I
Sub sector allocation of plan funds (Ninth Plan) Asamannoor panchayat
(In Percentage)
1w-3 1w59
( Productive Sector - El Sewice - Sector
Fig. 5.3
aXOM an1 a2
Ellnlrastructure Sector I
Sectorwise Allocation of Plan Funds (1997 -98 to 2001 -02) Ray amangalam panchay at
(In Percentage)
-- - .- -. --- QAr~r~culture El Animal Husbandry H lrrigatlon 6a Small Scale lndustrd PJ Hotrslng El Drlnklng waler I3 San~tatlon I Health ElEducatlon LI Women HSocial Weltare QOlhers L3 Roads Q Electr~f~cat~r>r~ Publ~c bulldlng
--
Fig. 5.4
Sub-sector Allocation of Plan Funds (Ninth Plan) Rayamangalam panchayat
{In Percentage)
Participation in grarnasabha
After analysing allocation of funds under different heads it is proposed to
anaiyse people's participation in gramasabha which acted as the torutn t a r expressing
opinion of the people.
The ultimate aim of decentralisation is to afford opportunity tor direct
participation of people as far as possible. The first step in the People's Planning
Programme in Kerala is to assure participation of people in development programmes.
hrticipation of people i r ) the formulation and implementation of the plan is important
not only to develop a srnse of involvement of the people in the process of economic
development but also t o ensure optimum output through implementation of various
programmes and scher~~es. The gramasabha provided an ideal forum for people in
every locality to meet rtnd discuss their local development problems, t h ~ causes of
the problem and possible solutions. Setting of priorities should be the out come of a
process of muiti-level delibrations, in which both the subjective needs ot the people
and the objective resorlrces and environmental constraint as well as possibilities are
taken into account. T ~ P participation of people in the gramasabha in the twn selected
panchayats examined here. 'l'he average participation of people in the gramasabha
and its percentage to the total number of voters in hamannoor and Kayarnangalarn
panchayats is presented in 'Iable 5.18 and 5.19 respectively. In Asamannoor panchayat
the participation of pec.)ple in the gramasabha increased during the first tour years of
the Ninth plan from 7 95% of the voters in this initial year to 10.26% in the tourth
year. Thereafter it a dcrclined to 9.88% during the last year of the plan. Participation
of women and SC/ST have shown a steady increase from the beginning to the end
but that of men after rc.carding an increase during the first three ymrs shows a gradual
decrease during the last two years of the Ninth plan. In Rayamangalam panchayat
participation of people 1.. seen to be gradually decreased from 6.15% :,of the voters
during the first year to 2 64% in the final year of the Ninth Plan. The participation of
women and SCIST voters show a fluctuating trend.
Table 5.18
Average participation in gramasabha - Asamannoor panchayat
S o u r r ~ Asarna!lnnor pant I ~nyat, Devefop~~~mf Report (1 997-98 to 2001-02).
Total No of voter>- 13,376 Malc vulers = 6,735 Fe~nalc voters 6,b41
i r ~ r o SC/S'K voters - 1,369
1 5 5 11 I . , .
, , , , , , , , < . , ,
. , , , , , ,
, , , , , , , > ,
* ' * , , . , , ,
, , , , , ,
1 0 7 :.:< \'" ',',' I'."::::: , . .
..,>:L ', ,
'Ti t r l totdl voters
7.95
8.01 - 9.84
10.26
9.88
9.13
fig. 5.5 Average Participation in Gramasabha - Asammannoor panchayat
' X to total met1 vo te~s
14.19
14.12
18.00
17.62
16.75
16.14
Year
1997-98
1998-99
1999-00
l'olal
1063
1072
1316
1372
1321
122'3
SC/ST
88
125
136
134
141
125
TI tu total SClST voters
6.43
9.13
9.93
9.79
10.30
9.13
Men
956
95 1
1212
2001 -02
2 32
Wornerl
107
121
164
1187
1128
1087
'% to rota1 W C ) I I I L > ~
vutl,rs
1-01
1.S2
2 47
Table 5.19
Average participation in gramasabha - Rayamangakm panchayat
Source- Rayamangalam pa: rhayat , Dev~lopmenf Report (1 997-98 to 2001 -02) Total No. n! voters - 25,710 Male voters - 13,142 Fernalp voters 12,.56X SC/ST vtdrrs - 3,4015
I
B O O I
Pig- 5.6 Aver&@ participation in gramasabha - Rayamangalam panchayat
The average participation of people in the irnplelnentation of tht.
programmes prepared in the grarnasabha in Asamannoor and Rayamangalarn
panchayats is presented In Tables 5.20 and 5.21 respectively. Table 5.20 shows that
in Asamannoor panchayat participation of people in the implementation of the
programme has gradually increased from 7.18% in 1997-98 to 11.20% in 2001-02.
Participation of women and SC/ST people has also increased. But participation of
men is showing a fluctuating trend throughout the plan period. In Rayamangalam
panchayat the trend is to decrease gradually in all cases (Table 5.21).
Participatioi-r rate of people in the gramasabha and in the implementation
of the programmes though showing an increasing trend in Asamannoor panchayat is
not adequate.. In Rayamangalarn panchayat it has shown a decreasing trend- This
reveals the fact that nlajority of the people are not inspired and gradually they are
distancing away from the planning and implementation programmes.
Table 5.20
Average participation in implementation - Asamannoa
Year
1997-98
1998-99
1999-00
2000-01
2001 -02
Averay
voters
5.55
Wornen
36
142
216
3 12
' 318
205
: panchayat
voters
Source: Asamanrlcjor panchayat, Develupment Report (1997-98 to 2001-02).
'XI to t c ,la! w o r n ~ - r ~ vutt,~ s
0. :)4
2.14
3.25
4.10
4.19
3.1 19
Average participation in implementation Asamannoor panchayat
Men
924
898
1224
1099
1180
1065
' X I to total men
voters
13.72
13.33
18.17
16.32
17.52
15.81
Table 5.21
Average participation in implementation - Rayamangalam panchayat
Source: Rayatnangalam p,~r~chayat, Ueveloprnent Report (1997-98 tu 21101-02)
Fig. 5.8 Average participation in implementation
Rayamangalam panchayat
So far the a~lalysis was done on the basis of secondary data. Now it is
proposed to analyse the) results based on the survey data.
Two hundred and seventy beneficiaries (135 each tronl Asamannoor and
Rayamangalam panchayats) were surveyed to analyse the impact of democratic
decentralised planning Personal profile of the beneficiaries interviewed is presented
in Table 5.22. The average participation of sample beneficiaries in the gramasabha
and in the implementation of: schemes is presented in Table 5.23. Participation of
beneficiaries based on their education and occupation are portrayed in 'fables 5.24
and 5.25 respectively. Ir l order to assess whether sex, education and occupation had
played any role in the participation, the chi-square test of independence is conducted.
The chi-square values tor various categories are presented in Table 5.26. 'The results
of these tests show that factors like education and occupation have no significant
influence in the participation of people in the grarnasabha, but sex has some inf tuence.
In the implementation of the programmes education and sex have no significant role
while occupation of t h ~ beneficiaries has some role. l'he tabled value is at 5% level
of significance.
Table 5.22
Personal Irrofile of Sample Beneficiaries
Source: Survey data
r
SI
No.
1
2
3
4
5
h
7
8
Part~culars
Neligion 2 ( ' t~r~s t lan
SCST
SPX
tducat ir~n
Occupallon
I.arid tLoldings3
H o u s ~
Income {Annt~a l R q . )
2 1 >tliers - - .- 3 h t a l
1 - 2 -- 3
u1 135 Total
ivlille 118 8 7 4
12.6
100 Fe~nale -- -- - Total
1 I Neo-litrbrate - 1 13r~merrl
--I --'-- 3 Secoidary
1 4 6 - 55 1 23 7
--- 17 135 20
.- 7 1 32
270 100 100 135
115
20 .
135
100
13 .
., - 68 - 41
- 4 I-------- Graduate
5 %st graduate . - - I - -- -- --- 6 Tutal
1 Agr~cultural labourer -
1152 .- -
1 4 8 - --
IOC)
16 h i )
q h - -.
50 -. 4
'10 .- 4
6
- 3 135
70
-
6
270
1 2 0 -
5%
2 1 . 3 -
. - - 37
270
2 Farrner 25 - ---
- 2 2 - 100
4 4 4
21 5
8 0 3 - .
1'3 7 -- -
101)
33 -
a- 142
4 4
-- - 2 2 -
100
5 1 85
1
7 -
12
- -. 2
135 34
:I
4
5 --
G - - 7 1 -
12 2 -- - -
52 G -
18 52
-
20 4
4 8 --
7 8 -"
2 2 9 6
5 1q
8 8 s
- - 7 3 - 27 -. 0 10
..
3
135 --
50
'15 10 .-
21 -
2
I:rnployee 24 1 7 7 8
2
/ rl - - --
2 2
100--
37 94 . - -
-- 33
1 48 - - 100
25 2 - --
39 3 -
Srlf en7ployee
B ~ i s ~ n c s s - - - Other:: ----- - Total
Optu 10 cents .- - - -
5
24/14
10-50 cents --- - -f,0-1013cents
6
- 9
1
135
33
-- 3 270
67 - 108
- - 3 7
4 -
- - 4 44
6 6 7
0 74 100
2 4 4
55 -
1 1 1 --- 100
24 8 -- - -
4 0 0 -- -- 7
40 7 - 1 2
83 Abovc 100 cents
4 4 --
< O 8 --- 5
1 - .
2 - :1 - 4 - 5
1
2 .
3
4 .
135
18
66 51
0
135
7 2 49 - 8
. 6
42
Iota1
Thatched sheds . -- -- Tiled 'Terrace
.- -- --- K e r l t ~ l -- - - - - - Total
Upto 15,000 -- 15,000 -- - 50,000
50,000 - 1.00,000
.4hove 1,00,000 . - - -- -
3 1 2 100
1 2 5 - -
45 6
41 45 - -
100
133 - 48.9
3 7 8
4 1
0 0
100
53 3
- - 1 : .
135
16
57 61
100
1 1 9
-' 471.-
4 5 2 0 -- --
1270
04
153- 112
7 - - 135
52 -
'17L'
I O U
38 5 - -
.- 1 C) - 35 -
4 2 2 -- ---
270
124 --- 106 -- 25
- - 15
3 6 4 -
100
46 0 - - 392
9 3
5 5 - -
57
5 9
4 4
17 9
1 2 6
- h 7 -
Participation and hlitical affiliation
People of dittcrent political faith and leanency participated in the People's
Planning Programme. Participation and political affiliation of beneficiaries interviewed
is shown in -!able 5.27. The survey shows that people of all political faith attended
the gramasabha meetincgs but those owing allegiance to Left Democratic Front (LIIF:
CPI(M) + CPI) domir~ated in the Asamanoor panchayat, governecl by LDE:
Surprisingly, in the Rayamangalam panchayat also the LDF sympathisers dominated
in participation even though it is ruled by United Democratic Front (UDF)
Evidently, p~ople with allegiance and affinity to LDF evinced more interest
and participated more actively in the Plan Campaign as it was implemented by LDF
Government. This evid~nce supports the political overtones alleged to the programme
and its implementatiot~. The political allegiance and affinities of the respondents
participated in the implementation in both Asamannoor and Rayarnanqalam are
shown in Table 5.28. I r i the irnplementation phase also participation ot people with
LDF leanings dominated in both the LUF governed Asamannoor and UDF ruled
Rayamangalam panchrlyat.
It is clear tha t gramasabhas are the best forums to create mass base for
local level planning. Effecthe functioning of the gramasabha would be vital for
ensuring transparency in the preparation and implementation of plans. Transparency
would be the major check against financial terriorism of corruption and misuse of
plan funds.
l'here are mainly two sets of factors that constrained participation in
grarnasabhas. They are. lack of awareness among people regarding t h ~ functions
and powers of the grarn,lsabh:ir a n d inconvenient location, timing and lack of other
preparatory measures. The barriers encountered in obstructing the tunctions of
gramasabha can be renroved by: (a) convening a meeting of the representatives of
all political parties and voluniary organisations, and by giving wide publicity, and
(b) convening separatcb meetings to discuss problems connected with women and
other marginalised secttons like SC and ST
In order to pnsure good governance at the local level. gt-amasabha should
play the role of a watchdog. 13ut unfortunately not performed that function. For the
success of democratic decentralised planning all efforts must b~ made to make the
grarnasabha effective rnsurir~g more participation of people. Politics should not play
any role in such meetings.
People's Planning Programme as a means for decentra lised planning was
introduced by the LDF ! ; ove r~~men t dominated by the Communist Party (Marxists).
So there was an elemetlt ot fear and apprehension in the minds of those belonged
to the UDF and especially the Congress. Those who have certain apprehension about
the programme alleged discrin~ination in the execution of direct beneficiary schemes
(individual beneticiary schemes). So in the survey questions were includ~d to test
whether such allegation were true or not. In response to such questions the
beneficiaries expressed divergent views. More than 45 per cent ot the beneticiaries
(51.9% in Asamannoor Panchayat and 39.3% in Rayamangalam) have affirmed
political discrimination in the: dispensation of individual beneficiary schemes. 'The
details are exhibited in 'lable 5.29. But data provided in Table 5.3U do not corroborate
the opinion expressed by beneficiaries with respect to political patronage in the
dispensation of individual beneficiary schemes. It is true that the CPI(M) followers
had a narrow edge over others with respect to individual beneficiary schemes. But
when considers the total that edge gets nutralised and the distribution seems to be a
normal when we cor~siders the political scenario in the state. The authorities hold
the view that slight var~ations that are seen here and there are due to strict adherence
to the criteria and guitielinea for entitlement to get selected as a beneticiary.
Table 5.29
Opinion about political discrimination
Total 1
fig. 5.0 Opinon about political discrimination
Parlr-hayah
Asamannoor
Rayamangalam
Total
Source Survey data
No
Number
65
82
147
Yes
Percentage
48.1
60.7
54.4
Numb*,r
70
53
123
Percentage
51.9
39.3
45.6
Corruption
Corruption is a cancerous virus engulfing the entire system in a democratic
set up. There is a general teeling that corruption is rampant in the selectior~ of schemes
and their implementation. It was also highlighted that there was neither any checks
and balances nor a n y accountability with respect to the schemes and their
implementation.
Patronage was aileged in the selection of beneficiaries and irregularities
in the execution of public works. Under People's Planning public w o r k were expected
to be carried out thrclugh local participation and avoiding the usual contract system.
But in many cases t h ~ s did not happe-n and contractors were involved in the execution
of public works. The print a:; well as the visual media have highlighted several instances
of this nature and a number of vigilance enquiries are going on in various panchayats
connected with the implementation of various schemes under People's Planning.
The Comptroller and Auditor General also has indicted various authorities
in violating the criteria ancl flouting the principles of finance management connected
with implementation of v;nrious schemes under People's Planning.
We wanted to verify the truth of these allegations through the survey.
Around 60 percent of the respondents (58.5% in Asamannoor and 61.5% in
Kayamangalam panchayats) believe that there was corruption in the selection and
implementation ot programmes under People's Planning (Table 5.31j. As already
indicated the media (both print and visual) and the Comptroller and Auditor General
have corroborated with views expressed by the respondents. The truth will be revealed
only when the results of vigilance enquiries are available.
Table 5.31
Opinion about corruption
Fig. 5.10 Opinion about corruption
Panchayats
Asamannoor
Rayamangalarri
Total
Sourcr. Srlrvey ddta
Yes
Numbvr
70
83
162
P~rcentage
58.5
61.5
60.0
No
Number
56
52
108
'Ii)tal
Percentage
41.5
38.5
40.0
Number
1 3 5)
I35
2' /0
Percentage
100
100
1 OC)
The success ( 4 the plan depends on its results. ?'he ongoing experiment in
decentralised planning cannot be sustained unless the various schemes under the
plan are implemented e tfective ly. At the sametime. the transparent and participatory
approach adopted in t h ~ planning process will have to be extended to implementatlon
also. Opinion is brought from the respondents regarding the implementation of the
plan schemes. Only 4 4 percent of the respondents have very good opinion about
implementation of schemes in Asamannoor panchayat. In the case ot Kay amangalam
panchayat 6.7% of the respondents expressed very good opinion. Around 31 percent
of the respondents in Asamannnoor panchayat and 18 percent in Rayamangalam
panchayat expressed good opinion and around 46 per cent expressed satisfaction in
both the panchayats ,\round 18 per cent of the respondents in Asamannoor and
30 per cent in Rayamangalam expressed dissatisfaction regarding the implementation
of the plan schemes (-lable 5.32).
Table 5.32
Opinion about the implementation of schemes under People's Planning Programme
Sou7,ce: Survey data
Par~chayats
Asairjannoc>r
K a y a t n a r ~ y a l a ~ r ~
Total .
Very Gr ,od
Number
6
9
15
Pr.rcent- N
G 65 24.4 125 46.3 64
yhs dsri\opme~~ of a region does not always guaranie,e the d @ v e b ~ ~ ~ ~ ~
of its people. Utiiisation at i l .cai resources should be dune in such a manner benefit
all sections of the society et (udly, (Gauiam Bhattacharya, 1999). One of the objectives
of People's Planning in Kc~rala is to improve the welfare of the people atistying their
local needs. Implementation of Mople's Planning Programme has produced varying
degrees of impact on the welfare of the people. Table 5.33 reveals this.
Table 5-33
Impact of Wople's Planning Programme on the welfare of the people
Source. Survrty dab
Miderate No 11r1pact Total
Thv rnajority of the beneficiaries in both the panchayats (71.48%) are of
the view thar People's Planning Programme is better than thp earli~r system of
planning. Arc~und 73% of the sample beneficiaries in Asamannoor panchayat anr
70.37% in Kayan~angatam panchayat hold the view that People's Planni
Programmt. 15 betfer than the eartier system of planning (Table 5.341.
percent
w e
Percent- N u1'd'~r
age
F'errent- t-iun'ber
00 135 38.5 40 29.6
1 t 1 I f 52
62 45.9 48 35.6
2711 100 Iota1 3.0 60 22.2 302 3 7 . 8 1 0 0
135
37 0
Table 5.34
Opinion about the People's Planning Programme in comparison with the pre-existing system of planning
Source: Survey data
Panchayats
Asamannoor
Rayamangalam
Total
Implementation of People's Planning has produced mixed feelings in the
minds of the people. Though several adverse comments are made from various
quarters regarding preparation of the plan schemes and their implementation it has
solaced the common man at the central stage. What is required now is to plug all
loopholes connected with preparation of schemes and their implementation.
Better
Number
98
95
193
Percentage
72..59
70.37
71.48
Not Better
Number
3 7
40
77
Total
Percentage
27.41
29.63
28.52
Number
135
135
2 70
Percentage
100
100
100
Reference
1. Asamannoor Ir;inchayat, Deve/opment Report (1996) in Malayalarn.
2. Bhattacharya. Gautam (19991, "People's Participatior~ In Environmental
Yrotection : A case study", Y+na, VoI. 43. No.6 June 1999, P 28-29.
3. Department of Econcrmics and Statistics (1995), Bncha,yaf L ~ v d Statistics,
Government oi Kerala., Thiruvananthapuram, 1995.
4. Isaac. Thomas 1 M. and PK. Michael Tharakan (1995), "Towards a New Agenda
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