Decentralisaion and Local Governace in Rajastan

Presentation for National Workshop on Local Governance in India: The Way Forward 26-28 May, 09 Dr. Anita Professor & Coordinator (PRI-Training) Indira Gandhi Panchayati Raj & Gramin Vikas Sansthan (SIRD-Rajasthan), Jaipur Decentralized Governance & Panchayati Raj System In Rajasthan

Human Resource Profile of Panchayati Raj Institutions in Rajasthan

Zila Pramukhs (District Chiefs) – 33 (w.e.f. from 2010 Elections)

Zila Parishad Members - 1008

Pradhans (Block Chiefs) - 239

Panchayat Samiti Members - 5257

Sarpanches (Village Panchayat Chiefs) - 9189

Ward Panches – 1,05,257

Total No. of Elected Representatives – 1,20,553

Total No. of Elected Women Representatives– 42,402 (35.17%)

73 rd Constitutional Amendment Act, 1993 Salient Features: Mandatory Provisions

Continuity of PRIs – Elections every 5 years

Uniformity – 3 tier structure across the country

Reservations – One third for Women at all levels of PRIs and in proportion to population for SC, ST & OBC

Democratic Decentralization – Gram Sabha recognized as the village parliament to plan, prioritize, implement, audit and review all development activities

Separate State-Election and Finance Commissions

Discretionary Provisions of the Amendment

Powers and Authority Defined for PRIs: as per Article – 243(G)

Preparation of Plans for Economic Development and Social Justice

Implementation of Schemes for Economic Development and Social Justice, as may be entrusted to them by the state government – as per the XI Schedule (29 Subjects)

Positive Action Taken: Status of Decentralization Processes in Rajasthan

3 Tier PRI – Set up in place: Electoral Devolution has happened !

Time bound 5 yrly. elections held in 1995, 2000 & 2005 & next Elections in Jan., 2010

Political Reservations for SC, ST, OBC in proportion to population and 1/3 rd Reservation for Women, introduced since 1995- making the excluded- a majority voice!

Now amended Act would enable 50% Reservation for Women w.e.f. 2010- feminization of Decentralized Governance bound to lead to greater humanization of development!

State Election & Finance Commns. set up in tandem with the electoral cycle of PRIs

Rajasthan Panchayati Raj Act, 1994 and Rules, 1996 in force with Schedule- I, II & III respectively- laying down powers & functions of Gram Panchayats, Panchayat Samities and Zila Parishads- subject to conditions, specified by the State Govt. from time to time

Panchayat Extension over Scheduled Areas Act (PESA) enforced in Rajasthan w.e.f. June, 1999 but framing of Rules still pending – hence a paper law

Gram Sabhas being held since 1995 initially on biannual basis & w.e.f. 2001 onwards on quarterly basis

Ward Sabhas being held since 2000, Chaired by Ward Panch– after the 2000 Amendment of Rajasthan’s Panchayati Raj Act; making Ward (average population size-300-500) as the pivot for development planning & review

Right to Information and Social Audit – special integral features of Rajasthan Panchayati Raj Act & Rules

District Planning Committees formed– as per 74 th Constnal. Amendment, under the Chairpersonship of Zila Pramukh, to facilitate the process of Decentralized Planning, leading to District Plans, feeding into State Plan (Started from 11 th Plan onwards)

Six Standing Committees at all levels of PRIs are elected since 2000, for facilitating inclusive governance- participatory monitoring and supervision of devolved subjects

Special Mission and Task Force on Panchayati Raj set up by Govt. of Rajasthan headed by the Chief Minister & Chief Secretary, respectively

Systematic Approach to Training of PRIs: 2000 AD Onwards TNA - 2000, 2004 & 2009 TIA - 2004 TPRIs - 2002, 2003, 2005, 2007(BRGF), 2008 (Ref. Trg. SC,ST, ♀ ) & 2009 (Ref. Trg. for all) TOT -2000, 2002, 2003, 2005, 2007, 2008 & 2009 TMD –2000, 2002,2005, 2007 (BRGF), 2008( Ref.Trg.SC,ST, ♀ ) 2009 (Ref. Trg. for all) Decentralized Training Cycle of PRIs: Rajasthan

16 out of 29 Subject specific functions devolved to PRIs, 2000 onwards – related to 18 departments; however, incomplete devolution, whereby functions have been transferred, without transfer of concerned functionaries and funds

“ Training for All” Goal of National Training Policy achieved for PRI Sector in 2002(for EWRs), 2003, 2005, 2007 (BRGF Distts.) & 2008-09 – making Rajasthan emerge as a pioneering state in terms of Capacity Building of PRIs

Main Deficits: Road Blocks to Decentralization in Rajasthan

Half baked decentralization moves – responsibilities devolved without any control over staff and budgets

No untied funds devolved to PRIs and untied funds to the tune of Rs. 1 crore devolved to DPCs from 2008-09- by previous govt. & now again likely to be stalled

PESA- enforced in Rajasthan from June, 1999 – Rules still not framed – a paper law- only electoral devolution has enabled tribal leaders to become authorized chairpersons of PRIs in the TSP-area

Line departments resist transfer of staff & budget control to be devolved to PRIs

MLA & MP-LAD quota schemes – anti-PRIs- expenditures incurred are as per discretion of MLA/MP & not responding to Gram Sabha approved development plans

Quorum in respect of Women, SC, ST, OBC generally not fulfilled in Ward and Gram Sabhas; even general quorum fulfilled through ‘facipulation’

Government functionaries resist Right to Information and Social Audit-evolving ways to delay/deny access to accountable governance

Government-NGO and NGO-PRI linkages distrust & conflict-ridden

Decentralized planning structures in place but bottom-up need-based planning process and fund-flow lacking

Standing Committees, District Planning Committee, Ward and Gram Sabhas need to be energized & made vibrant platforms of democratic governance

Resource constraint in terms of money & manpower ails all levels of PRIs & paralyses local self governance

Lack of Political Will to truly empower PRIs- both at Central & State Govt. levels still persists

Bureaucratic resistance to institutions of local self governance

Low level of education specially at Ward Panch level and Women/SC/ST PRI leaders hampers their effective functioning

Abysmally low level of honoraria and perks for PRI leaders & inter-state variations thereof, violate the spirit of ERA

Caste and party politics vitiate democratic functioning of PRIs

Village community by and large alienated from participating in Ward and Gram Sabhas

Towards Real Empowerment of PRIs: Two Pronged Strategy Required

NGOs/CBOs to provide Planning, IEC & technical- support for mobilizing active Ward and Gram Sabhas

All Devt. Functionaries to be made accountable to PRIs & Gram Sabhas & report to respective PRI regularly

GO-NGO interface to be strengthened for sustained Capacity Building of PRIs w.r.t. transferred functions, functionaries & funds

Complete Transfer of Functions, Functionaries & Funds w.r.t. devolved subjects- without further delay

Processual Structural

Towards Real Empowerment of PRIs:

Capacity Building of staff & ERs of PRIs at all levels needs to be sustained for effective local governance

Need to augment staffing pattern of PRIs in proportion to no. of functions transferred

Top priority to invest in Capacity Building of PRIs, for mobilizing own income/ resources with community support & effective financial management of all funds received i.e. from CFC/CSS/SFC & own income

Transfer of untied funds to DPCs, PRIs, Gram and Ward Sabhas for operationalizing local Plans- through an earmarking of funds for each level from schemes, SFC, CFC-funding

NGOs/CBOs/NYKs need to quickly identify the non-literate category of newly ERs & help to link them with an intensive functional literacy campaign in their block/GP itself, with the help of literacy department

For the non-literate ERs, a special functional literacy campaign needs to be organized immediately after elections, with the support of Literacy & Continuing Education Department

After elections SC,ST, OBC & Women ERs need to be exposed to basic orientation training, within 3 months of being elected, with a view to instil desired Knowledge & Skills in first time entrants in governance

To ensure better dividends on investment in Capacity Building of ERs of PRIs, the tenure for rotation of reservation needs to be increased by one more term i.e. giving each ER of reserved category- a ten years tenure

Panchayats to be trained in e-governance & linked online with all 3 tiers of PRIs, the state department and the Central Ministry for online access to data related to progress under various schemes, financial progress, physical progress & progress on HDI-indicators

All Panchayats to be computerized & equipped with relevant man-power trained in computerized record keeping & providing package of services to village community viz.- payment of water & electricity bills, giving copy of land records, birth, marriage & death certificates, etc. for a user service charge

Interim Panchayat at the block level to identify & hire suitable experts-viz. in areas of Engineering, Accounts-keeping, Micro-Finance, Public Health, Gender & Social Scientist etc. for guiding Gram Panchayats on a day to day basis, in the PRC

For providing continuous hand- holding support to PRIs beyond training, need to establish PRCs (Panchayat Resource Centers) at the block level, with desired experts to be hired

Thankyou