Dear Members,
As a former auditor, I have a critical way of looking at democratic decentralisation, devolution of power, empowerment, etc.-- concepts that get lot of lip service and little effective action. It seems that no one commanding power is serious about devolving it, except in political speeches. If there are persons demanding devolution of power, some concessions are extended to tide over the political pressure. In my perspective, there are obvious dangers in "grading" (or other devices that may look good on paper) - would power and functions be devolved to PRIs on the basis of such grading? Or would this be yet another theoretical exercise, in lieu of actual devolution of power by the powerful elite?
In my view, the political process that leads to demand for empowerment of PRIs is a significant factor. In the State of Kerala , where literacy level is higher than rest of the country, there was demand for devolution by the citizens that has resulted in more effective democratic decentralisation. This has not happened in States where political forces demanding decentralized power can be overcome by powerful elite. One has to appreciate this phenomenon, while considering system of grading and measures for empowerment of PRIs.
Second aspect that bothers me (as an auditor concerned with non-implementation of provisions of the Constitution of India and laws framed under the Constitution) is that most of the functions of PRIs envisaged in Schedule XI of the Constitution of India ( as amended in 1993) are covered by various Centrally Sponsored Schemes. Is it not a mockery of the Constitution, with centralized control in place of effective decentralization ? Should this be interpreted as deliberate efforts to avoid implementation of 73rd amendment ?
My counter-point is there is need for sustained pressure from the bottom of the pyramid. There is reluctance of the political elite to let power slip away from them, particularly in view of reported rampant corruption. Waste of public money is highlighted by C&AG in test check of centrally sponsored schemes, but effective measures are not taken to overcome the deficiencies. Suave explanations have taken place of actual corrections.
There are few suggestions for actual empowerment:
(a) Disclosure and dissemination of information by the grass-root public authorities, that enables beneficiaries of Government sponsored development schemes to conduct "social audit." MGNREGA has several innovative measures, that should be replicated in all development schemes.
(b) Section 26 of RTI Act requires that Government to educate the citizens to enable them to use RTI Act for holding the Government accountable. This is such a colossal task that hardly any action has been taken to implement it. Awareness generation is vital for empowerment ; this task cannot be left to NGOs.
Dhirendra Krishna IA&AS (Retired)
Yahoo group rti4empowerment.
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From: K Gireesan <gireesankollengode@gmail.com>
To: "se-decn@solutionexchange-un.net.in" <se-decn@solutionexchange-un.net.in>
Sent: Tuesday, 24 April 2012 10:30 AM
Subject: Re: [se-decn] QUERY: Developing a System of Grading for Panchayati Raj Institutions - Experiences; Advice. Reply by 04 May 2012
Dear Members,
The query put forward by Dr. Joy Elamon about Developing a System of Grading for Panchayati Raj Institutions is very much pertinent. And it is the need of the hour as well, as in general, the Local Government Institutions (LGIs) are still remain as a non-significant topic in the political agenda in many states. It is very much discouraging to note that the significance of the term `Local Government' itself is missing in many parts of the country. I am not making this as a passing remark, but based on my field reflections based on my visits across the country and interactions with different stakeholders at different levels. And, even in those states where the relative performance is fairly better earlier, a stage of stagnation has been noted for quite some time. And in this context, the query of Joy Elamon is very much timely and needs to taken up for a serious academic discourse, and followed up with relevant action points and plan.
In this direction, I would like to highlight the following –
· Developing a system of grading LGIs is to be viewed as an important strategy for empowering them. And it will definitely act as a booster for those LGIs who have contributed significantly for acquiring `local economic development and social justice' the basic principles of local governance. In addition, it is an important step towards identifying, documenting and disseminating the `approaches, strategies and good practices' in several parts of the country, which itself is an important learning and gaining experience. However, as the operational dimensions like political commitment of the state government towards `genuine decentralization' having understood its political economy, devolution of 4 Fs (Functions, Funds, Functionaries and of course the `Freedom') to the local government institutions, attitude of bureaucracy towards devolution, perspective of different stakeholders towards strengthening LGIs especially the media, involvement and participation of `citizens' (and NOT `people' any more) in local governance, etc. have to be considered in formulating a system of grading LGIs (both rural, Urban and tribal). But with the present skewed pattern of the happening of decentralization, to me, a uniform pattern for developing a system of grading LGI across the country may not be ideal. We need to have a preliminary classification of different states into at least three groups and then, think of pursuing. And we need to take up grading of different levels of LGIs separately. In this context, grading of tribal LGIs (Autonomous Tribal Councils/ Tribal Panchayats) needs to be taken up on top priority. And grading of LGIs can be for recognizing the efforts of these institutions for addressing the needs and concerns of a specific group of population as well like SC/ST, women, children, youth, aged, differently abled, etc.
· In the past, Union Ministry of Panchayati Raj and different State Governments have taken up the grading of LGIs on a general mode as well as in scheme/programme specific mode. For example, Nirmal Gram Puraskar (Total Sanitation), MGNREGS awards etc. In addition, Govt. of Kerala has brought out a `Green Kerala Express' to grade both Rural and Urban LGIs, in the pattern of a `Reality Show'. I must say that it was a big hit in bringing the efforts and happening of LGIs in to the fore ground and even many persons who were totally non-interested in the activities of LGIs have started picking up interest. And the All India Institute of Local Self Government (AIILSG), Mumbai delivers `Nagar Ratna' award at periodical intervals. The Academy of Grassroot Studies and Research in India (AGRASRI), Tirupati also recognizes efforts of performing LGIs at regular intervals.
· Though the possible framework and parameters for grading LGIs need to be evolved in a workshop specially convened for the same, I would like to mention that some of the dimensions like the regularity and effective way of convening the Grama Sabha, programme implementation with special thrust on role of people in planning and transparent pattern of beneficiary selection, presence of transparency and accountability, responsiveness of the local government to the needs and concerns of people, willingness to collaborate with academic/research/NGOs, etc. could be taken up for grading.
The Panchayati Raj Institutions and Youth Affairs (PRIYA) Division of the Rajiv Gandhi National Institute of Youth Development (Deemed to be University), Ministry of Youth Affairs and Sports have taken up a unique initiative of `Mainstreaming Youth in Local Governance' in 15 States /UTs of the country collaborating with academic institutions/ research institutions/ NGOs who are `working with and working for LGIs. Presently, the project is initiated in Andhra Pradesh, Arunachal Pradesh , Assam , Bihar, Jharkhand, Kerala, Manipur, Meghalaya, Mizoram, Nagaland, Puducherry , Sikkim , Tamil Nadu, Tripura and West Bengal . In each state, a Village Panchayat/ Village Council has been identified to take up this pilot initiative in consultation with the State Government/District Administration. The project will be extended to all the States/UTs within a couple of months. This project is expected to come up with youth status, youth budgeting and youth-friendly local administration, aiming at `Youth-friendly Local Governance' from different parts of the country.
Looking forward to channelize the energy for strengthening local governance in the country by joining hands with all `Panchayat Premis'
Sincerely,
K Gireesan
Rajiv Gandhi National Institute of Youth Development
Sriperumbudur
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From: Joy Elamon [mailto:joy.elamon@gmail.com]
Sent: Friday, April 20, 2012 5:20 PM
To: se-decn@solutionexchange-un.net.in
Subject: [se-decn] QUERY: Developing a System of Grading for Panchayati Raj Institutions - Experiences; Advice. Reply by 04 May 2012
Moderator's Note: Dear members, we are posting a new query on Developing a System of Grading for Panchayati Raj Institutions. The query seeks your inputs on need and importance of introducing a grading system for PRIs. The query also solicits your experiences of adopting a system of grading and suggestions on possible framework and parameters of grading PRIs. We profusely thank Joy Elamon, for initiating this query at an appropriate time.
Dear Friends,
I work for Intercooperation India and have been associated with the promotion and development of Panchayati Raj Institutions (PRIs)
The Ministry of Panchayati Raj (MoPR) was created in the year 2004 so that key aspects of the Panchayat agenda - empowerment, enablement and accountability could be streamlined. In order to ensure efficiency, transparency and accountability in the Panchayats, the focus in last few years has been on building/strengthening institutions, systems and processes at various levels.
Since the 73rd amendment to the Constitution of India, various states have undertaken a range of measures to strengthen the Panchayats. In spite of various initiatives of central and state governments, it is seen that the functioning of PRIs varies from state to state and also within a particular state. This shows that different PRIs functioning at various levels are in different stages of their progress.
Since PRIs are the key to local governance and their major objectives are to ensure local economic development and social justice, it is important to know their status in the context of their capacities to plan and manage various social, financial and developmental activities. Many a time, policies related to Panchayati Raj are designed as if the Panchayats across the country or state are homogenous.
It will be useful to categorize and classify various Panchayati Raj Institutions so that policies address their heterogeneity as well as need based capacity building inputs can be given and they can undertake higher level responsibilities based on their capacities. A framework of grading the PRIs is needed. With this idea of developing a framework and also a system of assessing PRIs on different parameters, I would request the members of Decentralization community to share their views and give inputs on –
· Need and importance of introducing a `system of grading' for Panchayati Raj Institutions
· Experience of various states or other countries that have adopted a system of grading for their local governments
· Possible Framework and parameters for grading Panchayati Raj Institutions functioning at various levels
Your inputs on grading of PRIs will help in assessing their specific capacity building needs and potential to take up various responsibilities.
Thanks,
Joy Elamon
Intercooperation India
Hyderabad / New Delhi
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