vision for panchayat in west bengal,india

Draft for Discussion & Feedback

Roadmap for the

Panchayats in West Bengal

A Vision Document

Roadmap for the Panchayats in West Bengal

Panchayat & Rural Development Department,

Government of West Bengal

ROADMAP FOR THE PANCHAYATS IN WEST BENGAL

Foreword and Introduction........(to be added later)A brief outline of this White Paper.............(executive summary – to be added later ).

TABLE OF CONTENTS1. THE NEED FOR A ROADMAP..........................................................................................4

1.1 Evolution of Rural Local Governance in West Bengal..............................................41.2 Major Activities of the PRIs of the State Since 1978..................................................51.3 The Need for Change.....................................................................................................81.4 Bringing About Change..............................................................................................121.5 Approaches for the Roadmap.....................................................................................12

2. STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS....................................................................................................................15

2.1 Introduction..................................................................................................................152.2 Participation at the Village Level...............................................................................152.3 Organizing the Poor for Their Participation in Panchayats...................................162.4 Strengthening Functioning of the Upa-Samitis and Standing Committees...........172.5 Defining the Roles of Members Who Are Not Office Bearers.................................192.6 Increasing Participation of the Political Parties in Opposition...............................192.7 Functioning of the District Council............................................................................202.8 Improving Accountability...........................................................................................202.9 Other Ethical Steps for Good Governance................................................................212.10 Interface between Panchayat and Civil Society........................................................21

3. IMPROVING CORE CIVIC SERVICES.........................................................................223.1 Providing Civic Services to the Citizen......................................................................223.2 Drinking Water Supply and Sanitation.....................................................................223.3 Services Related to Public Health..............................................................................243.4 Services Related to Universal Literacy and Elementary Education.......................293.5 Road Connectivity.......................................................................................................313.6 Irrigation, Drainage and Flood Protection................................................................343.7 Housing and Development of Habitat........................................................................34

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3.8 Sanctioning Building Plan and Enforcing Other Regulations for Community Living............................................................................................................................35

3.9 Marketing and other facilities for Promotion of Economic Activities....................363.10 Issuing Trade Registration Certificates and Licenses..............................................363.11 Special Requirements of the Urbanised Gram Panchayats.....................................373.12 Management of Disaster..............................................................................................37

4. DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC DEVELOPMENT AND SOCIAL JUSTICE.....................................................................38

4.1 Introduction..................................................................................................................384.2 Land Reforms...............................................................................................................384.3 Better management of Natural Resources and Improved Land Use......................384.4 Promotion of Livelihood Opportunities in Non-Farm Sectors................................424.5 Alleviation of Poverty & Social Equity......................................................................434.6 Measures for Social Security......................................................................................474.7 Planning from Below for Economic Development and Social Justice....................494.8 Developing Panchayat-Private Partnership..............................................................50

5. AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT..................................................................................................................50

5.1 Introduction..................................................................................................................505.2 Current Status of Mobilisation of OSR.....................................................................515.3 Improving Collection of OSR.....................................................................................525.4 Improvement of Budgetary Control and Financial Management..........................535.5 Improvement of Accounting Practices and Computerisation of Accounts............535.6 Internal Audit of Panchayat Accounts......................................................................545.7 Social Audit..................................................................................................................555.8 Scrutiny of Panchayat Accounts by the Legislature.................................................555.9 Capacity Building for Better Management of Fund.................................................56

6. FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES.......................................................................................................................56

6.1 Introduction..................................................................................................................566.2 Employees of the Panchayats......................................................................................566.3 Capacity Building of Employees & Other Functionaries of Panchayats................576.4 Strengthening SIPRD, the ETCs................................................................................606.5 Use of Information and Communication Technology for Efficient Functioning...606.6 Strengthening the Directorate Office.........................................................................60

7. HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE PANCHAYATS...........................................................................................................61

7.1 Introduction..................................................................................................................617.2 Acts for which Amendments are proposed...............................................................627.3 Amendment of Panchayat Act / Rules.......................................................................75

8. ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS................................778.1 Introduction..................................................................................................................778.2 Sharing the vision in terms of human outcomes and setting goals locally.............778.3 Strengthening the Panchayat institutions..................................................................788.4 Delivery of services for social justice & economic growth.......................................808.5 Acquiring capacities by the Panchayat institutions..................................................81

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8.6 Monitoring and Evaluation.........................................................................................828.7 The citizen and the Panchayat....................................................................................82

9. THE APPENDICES............................................................................................................849.1 Benchmark for Implementation Strategy of Roadmap...........................................849.2 Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the

Constitution................................................................................................................1199.3 Self Evaluation Format for GPs...............................................................................136

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1. THE NEED FOR A ROADMAP

1.1 Evolution of Rural Local Governance in West Bengal

1.1.1 Conceptualization of the present role of Panchayats in the rural polity has charted a historical course from time immemorial. Panchayats in the village in ancient India was a loosely-formed body of the village elders, who used to resolve disputes among the villagers, looked after the common interests and tried to contend, often ineffectually, with external onslaughts. Since the life, especially the rural life was simple in those days; the Panchayat also had simple roles. In pre-independence era, the colonial rulers constituted Panchayats with acquiescent people assigning certain functions of palliative nature. Those Panchayats often acted as buffer walls against various grievances of the village people. Post-independence first generation of Panchayats, which came up in late fifties and early sixties of the last century, were constituted in the wake of the report of the Balwant Rai Mehta committee. Those were envisaged to be institutions that would reflect aims and aspirations of the people they represent and would help in steering the development programmes for their benefit. These Panchayats ultimately failed to deliver because of certain basic flaws in their composition and ideological approach and lack of political will for devolution. The major flaws in these institutions were (i) the Panchayats constituted particularly at the higher tiers consisted of a large number of members indirectly elected and therefore were not truly representative in character, (ii) the functional mandates for these institutions were neither clear nor coherent, (iii) they were on various issues, controlled and regulated by the appointed executives of the state government and (iv) the institutions were almost entirely dependent on contributions and grants from the government, which was too little and they were endowed with very limited opportunity for building up their own financial resources. Besides, the mandate for holding regular elections had no compulsive force since it was not backed by any legal sanction. Socio-politico environment of the period also did not lend support to these institutions and did not care for regular elections for their reconstitution.

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1.1.2 The second generation of Panchayats constituted in 1978 under the aegis of a new Act, viz., The West Bengal Panchayat Act, 1973 (West Bengal Act XLI of 1973), brought some fresh air in the Panchayat system. The members in all three tiers are elected through universal adult franchise. Elections at regular intervals have been made mandatory without any discretionary power of any authority to postpone such elections indefinitely [sections 7, 96 & 141]. Powers to collect tax and non-tax revenue are clearly defined. Functional domain of the Panchayats is more clearly delineated as compared to earlier Panchayats. The new legislation empowers the Panchayats to spread its wings in various fields of activities encompassing rural life. On this issue, provisions relating to the functional ambits of Gram Panchayat may be examined. Its roles in the education and mass education extension [section 20(1)(a) and 21(o)], health support, curative, preventive and environmental [sections 19(a), (b), (g), 20(1)(b), 21(h)], supply of drinking water [19(c) and 21(c)], agriculture [20(e), (j), (l), (m), 21(d)], irrigation [20(d)], animal resources development [20(h)], village plantation [20(k), 21(b)], cottage industry [21(i)], social welfare [20(f) and (g)] has been delineated. In fact, the provisions under section 19 to section 28 lay down various powers and functions of the Gram Panchayat with the objective of uplift of rural life. Although on some issues, the provisions are inadequate or ambivalent or not sustainable without supportive order or opportunity, powers and functions assigned to the Panchayats cover almost the entire spectrum of rural life and livelihood and these institutions have been very clearly recognized as the most dependable vehicle for rural development.

1.1.3 In course of a little more than another decade, the role of Panchayat has been further expanded and its functional area has been increasingly extended to include additional activities. All poverty alleviation programmes sponsored by the Government of India or otherwise, have been assigned to the Panchayat institutions (major portion to the Gram Panchayat). In any programme or scheme for extending any benefit to the weaker section including Schedule Castes and Schedule Tribes, the Panchayats even when it is not implementing the scheme, has been assigned the definite role of selection of sites and of beneficiaries relating to such schemes. In public distribution system, Panchayat institutions have been assigned the powers to intervene by way of supervision and monitoring. The Panchayats have been given a space for taking initiative in the field of raising nutrition level of the poorer people. However, through a recent amendment of the W.B. Panchayat Act, the Panchayats have been given more clearer functional responsibilities for taking up various works as provided under Eleventh Schedule of the Constitution. It is however a fact that despite larger powers and responsibilities of the Panchayats, the major role of the Panchayat during the eighties and early nineties, remained largely confined to acting as the delivery mechanism of the programmes of the Central and the State Governments and their own initiatives were not of very high order.

1.2 Major Activities of the PRIs of the State Since 1978

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1.2.1 The panchayat election in 1978 was a trendsetter, as it broke new grounds in two areas. First, for the first time in the country the political parties were allowed to contest elections openly with their party symbols. Secondly, direct elections were held to all the three tiers. Previously, the practice followed in all the states was to hold direct election to only the lowest tier and indirect election to the other tiers. In another way also the panchayats set up in 1978 were different from those of the rest of the country. Those who came to the leadership of these bodies through elections did not belong to the traditional upper stratum of the rural society, namely the landed gentry, who lost their economic and social power substantially due to massive vesting of ceiling surplus lands in the late 1960s and early 1970s. The new leadership came largely from the class of middle peasantry and professional groups like schoolteachers. It is the only state in the country where Panchayat elections have been held with clock-like regularity since 1978. No constitutional support was needed for this. The state was self-motivated to ensure continuity of the institution. Immediately after the new panchayat bodies took position, the state experienced one of the worst floods in 1978 that rendered thousands of people homeless and caused enormous loss of food crops, livestock and other moveable property. The entire work of flood relief and post-flood reconstruction work was entrusted to the newly elected panchayat bodies. They shouldered this responsibility in exemplary manner demonstrating unmistakably the strength of these representative institutions in providing services that require intimate knowledge of the grassroots and responsiveness to the local needs. Thereafter the state government entrusted implementation of the ‘food-for-work’ scheme – a wage employment generation scheme sponsored by the central government. At that time it was certainly a bold step. For, there was hardly any precedence either within the state or, for that matter in any other part of the country, to entrust the Panchayats with the responsibility of implementing very important development programmes practically without the control and supervision of the district bureaucracy. The programme relating to rural water supply was also handed over to them.

1.2.2 Panchayat and Land Reforms – West Bengal had a very high level of rural poverty as compared to many other states and the all India average. In 1973-76, when the all India rural poverty was at 56 per cent, as much as 73 per cent of West Bengal’s rural people lived below the poverty line. The wide difference however has narrowed down, more so after 1987-88. During the period from 1983-84 and 1987-88, rural poverty in West Bengal registered a fall of 15 percentage points from 63 to 48 per cent. The declining trend continued and as a result, rural poverty in West Bengal in 1999-2000 came down to 32 per cent, which is much closer to the national average of 27 per cent. In fact, in terms of the rate of reduction in rural poverty, West Bengal came next only to the state of Kerala. While agricultural growth seems to be the most proximate reason for the sharp decline in rural poverty various scholars have identified land reform and institutionalization of panchayats as the most crucial factors that could account for both accelerated agricultural growth and poverty reduction. (Dasgupta 1995, Saha and Swaminathan 1994, Rawal and Swaminathan 1998, Lieten 1992, Mukharji and Mukhopadhyay 1996).

1.2.3 The measures taken up in the land reform programme of West Bengal consist of the following

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Vesting of ceiling surplus lands in the state, the ceiling of agricultural lands one can hold being fixed by the West Bengal Estate Acquisition Act and the Land Reform Act (as amended from time to time) of the state. (There are separate ceilings for irrigated and non-irrigated areas).

Taking possession of vested lands by the state and distribution of the same to the landless and the land-poor households.

Registration of bargadars (sharecroppers) to ensure security of their tenure and fair share of the produce, as per the provisions of the Land Reform Act. (Previously, the contracts between the landowners and the sharecroppers were invariably oral, as a result of which they used to receive disproportionately less share of the produce of the land and were subjected to arbitrary eviction and other extra legal extortions.)

Distribution of homestead lands to the poor who had no title over the lands of their shelters.

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1.2.4 Beyond its direct effects, which are measurable, the land reform did have many other beneficial effects upon production and productivity, such as, bringing ‘peace to the countryside’ (though that happened after the initial disturbances, which led to many law and order situations, for establishing the new order) and creating an investment-friendly ambience, transformation of a rentier class into productive agents and the rise of the middle peasantry as enterprising cultivators. Land reform could provide substantial relief from the clutches of acute income-poverty to a large section of rural people. Removal of an important element of dependence and vulnerability of the land owner by the land-poor or the sharecroppers must have made a profound impact upon various aspects of the rural society, including dignity of the sharecroppers and the assignees of the vested land, and the rural economy. Panchayat’s most important role in land reform has been in respect of selection of the beneficiaries for distribution of vested lands, and helping the beneficiaries to exercise their rights against the powerful land owning class. The Panchayat Samiti – the intermediate level panchayat – has been given the authority to select the beneficiaries. Identification of so many beneficiaries spread over innumerable villages was not an easy task for the bureaucracy.

1.2.5 Panchayat & Alleviation of Rural Poverty – The Panchayats of the State has been entrusted with the responsibilities for implementation of all programmes directly aimed at alleviation of rural poverty. After 1978 all the centrally sponsored poverty alleviation programmes beginning with the Food for Work programmes and IRDP have been gradually entrusted with the Panchayats. There are several studies and concurrent evaluations by the GOI showing better targeting of both the employment generation and self-employment programmes, which have contributed in faster decline of poverty in the State as mentioned above. In fact alleviating poverty has been a core activity of the Panchayats of the State right from the beginning. Apart from economic gains of the poorer sections the major contribution of the Panchayats has been providing dignity to all of them and enhancing their freedom to participate in various development programmes. The Panchayats are also associated with various social security programmes and are instrumental in reaching those benefits to the poorest sections. Availability of all those services from the Gram Panchayats have helped the people to access the same and ventilate their grievances in case of failure, which keeps a check on the quality of those services.

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1.2.6 Panchayats and Agricultural Growth – In spite of being endowed with rich natural resources and favourable climatic conditions including large areas of alluvial soil, abundant surface and ground water resources and good amount of rainfall, West Bengal was characterized by agricultural stagnation from the time of independence to the 1970s. For many decades, the state lagged behind the national average in terms of the growth of agricultural production. James Boyce (1987) estimated that between 1949 and 1980, the annual growth rate of agricultural output in West Bengal was only 1.74 percent. But the scenario started changing since the early 1980s. Between 1981 and 1991, the food grain production of West Bengal grew at an annual growth rate of 6.5 percent, which was highest among the 17 major states of the country. Taking 1981- 82 as the base year, it is observed that with the exception of 1982 – 83, when the state suffered from severe drought, agricultural production increased more or less constantly up to 2000 – 2001 and since 1996 – 97 the state has been producing double the amount produced in 1981 – 82. The increase in agricultural output of West Bengal has been mainly driven by an increase in productivity rather than increase in agricultural area. 81 percent of the growth in agricultural output can be attributed to the growth in productivity. (Saha and Swaminathan, 1994). This trend has continued even in the 1990s. While agricultural area of the state increased by only 10 percent during the last two decades (from 1981-82 to 2000-2001), there has been 90 percent increase in productivity during the same period. Land Reforms for which the Panchayats played a crucial supportive role and helping the marginal producers with inputs including minor irrigation by the Panchayats played an important role in achieving the growth in production.

1.2.7 Along with the agricultural growth since early 1980s, agricultural wages have also increased. The most proximate reason for this is the higher demand for labour because of higher productivity and cropping intensity of agricultural lands. While in 1981 – 82, the average daily wage rate was not even Rs. 10, it increased to more than Rs. 55 during the last two decades. It is also observed that the wages have increased at higher rate during 1990s than that in the 1980s.

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1.2.8 Many scholars have noted close relationship between agricultural growth and the institutional reform of Panchayats.1 One of the reasons for this is that apart from the services provided directly by the Panchayats for facilitating the growth process, this linkage has to be discerned from the intangible, but valuable, contributions made by them in creating a production-friendly environment in the countryside. One of the areas where the Panchayats made important contributions relates to the creation of local public assets. Creation of infrastructure for improving communication or for irrigation facilities has facilitated the growth process. The involvement of Panchayats in creating and maintaining local public assets has made a qualitative difference. First, fixation of priorities and ‘location decisions [of Panchayats] for various facilities correspond relatively more closely to the felt needs of rural population’. Second, being relatively more transparent than a bureaucratic institution, chances of funding on ‘bogus schemes’ are much less in Panchayats. Thirdly, the individual schemes undertaken by the Panchayats are small, but the schemes executed every year by them are large in number. No centralized bureaucracy could handle the planning and implementation activities of such large number of small schemes spread over numerous villages. A recent survey shows that among the recipients of the ‘mini kits’, the share of small and marginal cultivators is noticeably high, amounting to approximately 87 per cent of the total kits distributed (Bardhan and Mookherjee 2004).

1.3 The Need for Change

1.3.1 Although iconic shift in the role and relevance of the Panchayat in the development matrix has been gradually taking place for some time, the amendment of the State Panchayat Act in 1994 following the 73rd Constitutional amendment has brought in the major change in policy and programme relating to the Panchayat.

1 The wages have increased at higher rate during 1990s than that in the 1980s. (BAES, Economic Review). Between 1979 – 80 and 1992 – 93, West Bengal showed the highest rate of growth of wages among all states (Rawal and Swaminathan, 1998). According to another calculation as quoted by Rawal and Swaminathan (1998), the daily wage rate for male agricultural labourers in terms of rice increased from 2.56 kilograms in 1983 to 5.07 kilograms in 1990. Though the information on wage rate of female agricultural labourers of West Bengal is not available in any government report since 1980s, some studies reveal that male-female wage differential is either non-existent or insignificant in rural Bengal (Rawal and Swaminathan, 1998, Sengupta and Gazdar 1997).

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1.3.2 In order to make the Panchayat institution an effective tool for socio-economic development of the rural population, it is not enough to leave the entire initiative to the people’s representatives elected through regular elections. The elected functionaries are representatives but not substitute of the people. Therefore, there is need for further deepening and strengthening the process of decentralisation for wider and more effective participation of the people. The Panchayat bodies particularly those at the lowest levels must have continuous interaction with the people and must be responsive to their needs and aspirations. The higher tiers of Panchayats should interact continuously with the lower tiers. Such interaction with the people is deemed to be achieved not only through frequent meetings of the Gram Sansads, and institutions at the lower level, proper functioning of the Gram Unnayan Samiti, and regular meetings of the Block Sansads and Zilla Sansads, but also through dissemination of information to the people and collection and collation of their reactions for improvement of the planning and implementation process. Organinsing the poorer section and raising their voice for placing their felt needs only can make the planned interventions meaningful to their lives in contrast with the top down plans which by and large are not so well integrated and effective to their needs.

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1.3.3 The Panchayats have now been empowered under the State Act as also under the Constitutional mandate to prepare development plan – perspective plan for five-year span and annual plans on its basis – with regard to resources available and also implement schemes for economic development and social justice as may be drawn up or entrusted upon them [section 19(1)]. An initiative has recently been taken to amend section 19 of the State Panchayat Act accentuating the role of the Gram Panchayat as a unit of self-government for achieving the goal of human development including social and economic development and securing social justice for all. It has further been laid down that in order to achieve the aforesaid goal, the Gram Panchayat shall prepare a development plan for five years, an annual plan based on Gram Sansad plan for each year and shall implement schemes under such annual plans as also schemes entrusted upon, transferred to or devolved upon it. Sub-section (2) of the said section has been amended to delineate the major thrust areas of the Gram Panchayat which have been enumerated as promotive and preventive health care including improvement of nutritional standard and community health management, pre-school and primary education as also parallel and mass education, development of women and children with empowerment of women and formation and facilitation of self-help groups, social welfare including welfare of the weaker sections, development of livestock, promotion of agriculture including irrigation facilities, development of fisheries, promotion of cottage-village-mini industries with welfare of artisans, improvement of the scope and quality of public distribution system, construction of minor irrigation system including water management and watershed development as also their maintenance and equitable distribution of benefits, construction and maintenance of various sources of safe drinking water, construction, maintenance and protection of public roads, promotion of social forestry and similar initiatives for development of plantation and environmental sanitation including management of polluted water and social waste. The amendment proposal has since been passed by the State Legislature and is likely to come in force in no time. The provision clearly indicate that the development effort should have a multi-faceted approach for improvement of quality of life of the people including its weaker groups so as to enable them to identify themselves as active partners in the process. By inference, such plans should have a holistic approach embracing all aspects of rural life. They should also be prepared in such a manner so that they have sustainable effects. In other words, each annual plan shall be built upon the progress made through the preceding annual plan. In all cases, such plan should have realistic approach based on the financial, human and other resources available.

1.3.4 It has been mentioned earlier that the Panchayat should have continuous interaction with the people since they are source of their power and authority and since their active participation shall ensure the success of the planning process. Transparency in all stages of functions is a sine qua non for achieving the desired goal of improving the quality of life of the weaker section of the community as also community as a whole. Besides, it is necessary to bear in mind that the human nature is intrinsically acquisitive and tend to occupy the central position in the process of decision-making and implementation. This phenomenon should be curbed by making all decision-making processes collective and participatory.

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1.3.5 In order to make the functions of the Panchayats more responsive, decentralized, transparent and accountable, certain legislative initiatives as shown below, has since been taken:-(a) Sthayee Samitis (Standing Committees) at the Zilla Parishad and the Panchayat

Samiti level were constituted earlier, such organs remaining responsible to the main body; they function as the executive arm for implementing programmes and schemes in various fields of activities.

(b) In the year 2003, five Upa-Samitis have been constituted at the Gram Panchayat level; their functions are similar to that of the Sthayee Samitis.

(c) In the year 2003, provisions have been made so that opposition members are represented in each Sthayee Samiti.

(d) Also in 2003, Block Sansad and Zilla Sansad has been constituted as accountability forums for Panchayat Samiti and Zilla Parishad

(e) Gram Unnayan Samitis constituted by the Gram Sansad, shall be the executive wing of the Gram Sansad and act as an extension arm of the Gram Panchayat.

(f) It has been emphasized that all major initiatives of the Gram Panchayat shall be validated by the Gram Sansad; on certain issues, initiatives shall begin at the Gram Sansad level.

(g) District Council for Panchayats have been constituted with the leader of the major opposition party in the Zilla Parishad as its Chairperson, with effect from 1994; the Council is empowered to examine whether financial norms and propriety is observed in the functional ambience of all Panchayat bodies within the district. It is proposed that the composition of the Council may be made a little more representative by bringing in larger number of members of different political colours so that impartial and balanced approach in all matters may be ensured. Besides, at present, the Council has an advisory role. Without prejudice to this role, the advices and recommendations of the Council may be given more importance and it may be enjoined upon the Zilla Parishad and the District Magistrate (when necessary, the State Government) to issue specific directions on the basis of its advices and recommendations. It may also be provided that the advices and recommendations of the Council should be placed before the auditors at the time of their inspections for their consultation.

1.3.6 It is felt that these measures are yielding good results in functioning of the Panchayats. There is, however, scope for considering further initiative through legislative as also executive route for making the Panchayats more functional and responsive.

1.3.7 In order to make the Panchayat a successful vehicle for socio-economic development, the following strategic approaches are necessary: In all development initiatives, participation of the people should be ensured. They

should be sensitized and made to feel about their ownership in the process. Plan should be prepared on the basis of resources available – local resources, human

and material and external resources from the government, non-government or financial institutions. Productive aspect of all such resources should be explored and dovetailed suitably with different programmes and schemes.

Plan should address the immediate felt-needs of the people and should aim at improving their quality of life. Plan should be prepared and implemented in a

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manner to bring some beneficial impact in the livelihood of the poorer section. This will help them to identify themselves with the planning process. For this purpose, bottom-up planning should be resorted to. In other words, planning process should start from the Gram Sansad level.

Apart from the schemes for economic development of the marginalized families, planning process should cover the areas (i) education, (ii) nutrition, (iii) health and sanitation and (iv) social security of such people. Apart from building up additional facilities in these areas, it is necessary to ensure that the families living in the peripheral area of the society should get equal opportunity from such facilities. In order to make such programmes successful, promotional and motivational initiatives should be taken up by making them a part of the planning process.

In order to enable the Gram Panchayat to formulate and implement such plan, capacity building of the Gram Panchayat is an imperative necessary. A sustained programme should be drawn up for a major thrust to enable all functionaries at the Gram Panchayat and sub-Gram Panchayat level to function and discharge their responsibilities at the desired level.

1.3.8 The Government will provide opportunities and incentives for a fundamental shift of culture by putting in place a renewed framework in which Panchayat bodies in West Bengal will operate. That will not only include aspects of planning and implementation for faster and more equitable economic development and social justice, there will be more focus on better delivery of quality citizen services for ensuring better quality of life for all. This will address the weaknesses and shortcomings in the existing framework, and allow and encourage the Panchayat bodies to be more participatory, transparent, accountable and responsive. It will open the door to more effective local political leadership, to re-invigorated local democracy, and to improve quality and expansion of local services.

1.3.9 Only if Panchayats whole-heartedly embrace this agenda for change will they be able to meet the needs of local people, businesses and the voluntary sector in their area, and fulfill their potential to lead their communities. It is local government, not state government, which has that vital local day to day relationship with people. Government programme is setting out an agenda for central and local government to work together. Within the conceptual framework designed, local government too needs to change and modernise, so that people everywhere can have the quality of life they have the right to expect.

1.4 Bringing About Change

1.4.1 Since 2003 the Government in the P&RD Department has been trying to accelerate the pace of rural decentralisation through various changes in the legal and administrative systems supporting the Panchayat bodies. A wide range of consultation was also initiated subsequently as a part of an initiative for “Strengthening Rural Decentralisation”. The main areas for the changes are: Amending the W.B.Panchayat Act and Rules framed under it to enable the

Panchayat bodies to function in a more effective manner

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Defining the functional domain of the Panchayat bodies more specifically to enable them to focus their activities in improving the quality of services delivered by them and respond to citizens demand for diversifying the areas of service

Improving capacities of the Panchayats including providing additional manpower support to the Panchayat bodies

Putting in place a structured system for preparing and implementing participatory plans at the village level and their integration with the plans prepared by the Panchayat bodies

Taking up in depth studies of various management practices of the Panchayat bodies for business process re-engineering.

Taking various steps for improving the ethical and functional framework for good governance and better delivery of citizen services.

1.4.2 This Roadmap is about the proposed roles and responsibilities of the Panchayats and how to reach the goals including the steps the Government should take for affecting the changes. It charts the future path of the decentralisation agenda for Panchayat bodies of West Bengal. The Roadmap will set out a strategy to give a bigger say for local people by activating the new political structures and widening democratic functioning of the

PRIs, strengthening financial and administrative accountability, establishing a new ethical framework projecting dignity for every citizen

irrespective of their socio-economic status to encourage participation for all in affairs of the community,

improving local services to be judged by the citizen, promoting the well-being of every one and achieving greater equity and will focus

on outcomes concerning various components of human development.

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1.5 Approaches for the Roadmap

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1.5.1 The Roadmap for the PRIs of West Bengal has been prepared based on the evolution of the system that has taken place so far and capacities acquired in delivering various services. The process of evolution has been guided by both the top down and the bottom up factors. The former relates to the steps taken from above by the State Government in assigning responsibilities and resources for delivering various services, which has been mostly structured in the lines of various schemes. The later relates to the demand from the people below, which impelled the Panchayats to deliver certain services sometimes without any mandate from above. The former is the supply driven and the later is the demand driven progresses in the process of evolution of the Panchayats in the State. Panchayats in West Bengal may be characterized by existence of a strong demand driven process of evolution in owning responsibilities and in future also the process should be facilitated through building up of capacities to enable the Panchayats to take on new responsibilities of their own. This also reaffirms that Roadmap for the Panchayats of the State will not be merely the Roadmap for devolution of responsibilities by the various departments of the State Government through the conventional exercise of activity mapping and assigning responsibilities from above but also the Roadmap for developing various capacities within the PRIs so as to respond to the need-based demands of the people and acquire more responsibilities of their own for realization of such demands, depending on local needs and aspirations. This process should be guided by setting milestones in various fields related to socio-economic development of the people so that the PRIs may work on their own, irrespective of formal devolution to reach those goals. In fact devolution through activity mapping provides certain space to the Panchayat bodies, which were so far occupied by the Government, but the experience shows that much space is available beyond that occupied by the Government and a pro-active Panchayat may tread on such spaces uncharted so far provided they have the capacity to do so. To provide due authority to the Gram Panchayats for taking activities related to those functions the W.B. Panchayat Act has been proposed to be amended shortly through which specific responsibilities shall be assigned to the those bodies by the State legislature. This assignment shall not reduce the responsibility of the state government in any way but shall also encourage the Panchayats to be more proactive in many areas, sometimes independently and sometimes in collaboration with the State Government. One can argue that those are not exclusive functions but concurrent jurisdiction of the Panchayats in taking up those activities. The considered views of the State Government is that in the present context it is more logical, pragmatic and productive to provide concurrent jurisdictions, which will help the Panchayats to acquire adequate capacities in voluntarily taking up those activities or utilizing the infrastructure and expertise of the government machinery on suitable occasions; the State Government may in due course provide exclusive responsibilities as and when the same will be necessary and appropriate. It is envisaged that the Panchayats of the State will be engaged broadly in three types of activities. The first one is the regulatory functions of the Gram Panchayats and it has been decided that section 21 of the State Panchayat Act shall be suitably amended to enunciate such regulatory functions of the Gram Panchayat. The proposed section 21 encompassing such regulatory functions, shall enlist, inter alia, functions relating to according permission for erection of new structure/building, assessment and collection of taxes, rates and fees under the Act, registration of trades, registration of vehicles not registered under the Motor Vehicles Act, 1988, registration of shallow or

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deep tubewells with motor-driven pump-sets installed for commercial purpose, registration of birth and death in the area, management of Gram Panchayat Fund, relief of distressed persons, drainage of rain water or accumulated water, preventive measures on epidemic, establishment and control of ferries, establishment and control of burning ghats, control of eating places enforcing hygienic practices and maintaining street lights where deemed necessary. This provision shall empower the Gram Panchayat to control and regulate private activities to ensure planned growth, to generate and maintain certain data for making future plans and to run its own administrative machinery. The envisaged amendment shall also identify some of the complementary functions of the GPs for improving the quality of life of the people. Another section 21A shall be provisioned in the proposed Amendment Act referred to in this paragraph, indicating complementary activities which should be undertaken by the Gram Panchayat for good governance and for frequent interaction with the people to sensitise them about their rights as also responsibilities and to make them conscious about their stake in the development process. Such activities are, inter alia, generation of awareness among the people on their role in the development process ensuring their participation in all stages of development beginning from preparation of development plan, enhancement of livelihood opportunities of the people, organizing voluntary labour for collective activities, organizing campaign against social evils, creating legal awareness among disadvantaged sections about their rights, maintenance of community assets, awareness building on civic responsibilities, promotion of co-operative movement, prevention of food adulteration, encouragement for consumption of bio-gas, providing bathing and washing ghats and construction of waiting sheds for travelers. The provision shall emphasize the need for building awareness among the people about their rights as also responsibilities and also the need for better life of the people. The second types of activities are those which will be assigned on the Panchayats to perform tasks on behalf of the State as an agent of the Government. The Functions assigned to the different tiers of the Panchayat bodies at different levels are detailed in the table at Appendix II. Implementation of many of the poverty alleviation schemes come under this category. In implementation of these programmes, the role of Panchayats is not actually limited to agency function only. Because of nearness to the people, they can select the right nature of schemes that will not only generate employment but create durable assets of the society for sustained development and for improvement of quality of life of the people. Besides, the Panchayats are best placed to select the proper group of beneficiaries for the related schemes and programmes with special emphasis on the disadvantaged groups of the community. Third types of activities, which are gradually gaining strength, are those which are taken up by the Panchayats neither as a devolved function nor as an agency function but those are taken up concurrently by the Panchayats for economic development and social justice for the people residing within its area and the proposed amendment of the W.B. Panchayat Act shall give legal authority to the Panchayats to do most of those activities. The Panchayats are required to keep the broad objectives of development of the state and existing interventions of the Government in mind to plan and implement schemes to strengthen the effort of the Government and execution of such activities depends on availability of fund and acquiring capabilities by the Panchayat bodies. The State Government should facilitate both building up capacities as well as augmenting resource of the Panchayats for strengthening local interventions by the

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Panchayats. The sector specific Roadmap presented below takes into account all those types of activities and try to spell out the goals and the processes through which the same will be achieved and what will be the role of the State Government in that process.

2. STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS

2.1 Introduction

2.1.1 Panchayats as democratic institution are to function with the active leadership of the elected functionaries. However, the elected functionaries are mere representatives of the people and not their substitutes. Though this is true for all elected bodies but the same is more significant, particularly at the lowest tier of the Panchayat, because they function with local issues requiring more active participation of the people. This chapter describes how the democratic functioning of the Panchayats will be strengthened and expanded for more widely and effective participation of the people, particularly the weaker section of the community and how to build capacities at all levels for achieving the same.

2.2 Participation at the Village Level

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2.2.1 Several changes have already been made in the W.B. Panchayat Act and Rules framed under the Act for expansion of democracy through more participation of the people in planning and implementation of various developmental activities at the village level. Though there is mandatory provision for calling meeting of the Gram Sansads for discussion and approval of local plans, the participation is still low. Legal changes have been made to entrust more responsibility including execution of schemes involving less fund and simple technology by the villagers themselves through constitution of the Gram Unnayan Samiti (GUS). The GUS is not a new tier of Panchayat but an integral part of the GP. GUS will be the representative body of the villagers at the village level to continuously interact with the people and maintain liaison with the GP. Proper functioning of the GUS will ensure more active involvement of the people in designing and ensuring their own development. However, to make it happen more than 45,000 GUS are to be formed and enough capacities to be built up to make them functional. The goal will be to form all the GUS, building capacities of their members and involving them in low cost or even no-cost activities for their own development as well as implementing some of the Sansad level plans to be assigned to them by the GPs within the next five years. The outcome will be measured by participation of at least 20% of the citizen in the Gram Sansad meetings and ability of the GUS to help in preparation and implementation of Gram Panchayat plans showing Sansad-wise break up. Experience shows that the activities, which can be planned and taken up at the Sansad level, though small in size yielding limited benefit in isolation, have considerable impact when multiplied and are very important in the local context. For this purpose, there is no need for devolution of functions by the State Government as no such micro-level activities are planned or implemented by the State Government. The main challenge is to improve the social capital at the village level and organizing the GUS involving all political parties and various sections of the community including the women and the poorer sections as provided under the rules and improving their capacities to be able to plan and implement micro-level interventions with whatever resources they may get hold of.

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2.3 Organizing the Poor for Their Participation in Panchayats

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2.3.1 Making legal provision and providing structural framework is not enough for the poorer section of the community and the women to participate in the process of development. In order to have their voice heard they are to be organized in groups and their capacities are to be increased for being able to voice their demands and influence functioning of the Panchayats in their favour. This will be done by organizing the poor, particularly the women in Self Help Groups (SHGs). SHG movement, especially of women, in the State has gained a lot of momentum and more than four lakh SHGs have been formed out of which majority are women. Organizing the poor in groups will be strengthened further through the initiatives of the Gram Unnayan Samiti, Nari, Sishu Unnayan O Samajkalyan Upa-Samiti of the Gram Panchayat and Sishu O Nari Unnayan, Janakalyan O Tran Sthayee Samiti of the Panchayat Samiti so that every poor rural family has at least one member included in an SHG. Under the guidance of PRDD, special drive will be taken up by the Block level officials with active support from the DRDC to improve their understanding of the socio-economic situations in their own context and services available for its improvement so as to enable them to avail of those services and participate in social and economic development of the area including augmenting their own income. All of them will be provided, with facilitation from the State Government machinery and the Bankers Committees like SLBC and DLBC, access to credit from banks/financial institutions within the Eleventh Five Year Plan period. Office bearers of the Panchayats particularly at the Gram Panchayat shall render their support in the negotiations with the Banks for extending credit facilities to these poor groups. Their achieving minimum level of income will be crucial for being able to participate freely, which is essential for expansion of democracy. Legal provision has been made for their representation in the GUS. Also, the SHGs are being organized further in Clusters within the GPs and the Clusters are being federated in bigger bodies known as Federations in each Block. Those are being formed by the women SHGs in general and men are also involved in certain areas. Orders have been issued for representation of the Clusters and the Federations in the Upa-Samitis and Standing Committees of the GP and the PS respectively, as invited members, so that the they can give their feedback for decision making in their favour and whatever decision is taken can be communicated to their members for wider knowledge and participation. The task is to form Clusters and Federations in all the GPs and PSs respectively within the Eleventh Five Year Plan period so that every Upa-Samiti and Standing Committees has representations of the poor group of women to act as a pressure group. Though they will not have voting rights, they will function as the watch dog of the poorer section and the women as well as to influence those bodies to protect and promote their interests. The process will also strengthen the civil society to build up healthy pressure on the Panchayats to remain pro-poor in their functioning and to pay enough attention to the issues relevant for the women. The Government proposes to take up a time bound programme for federating the SHGs within the year 2012 as mentioned. In order that the Clusters and the Federations can function and work for the development of their own members they need to function in close association with the PRIs. Within the period mentioned every Cluster and every Federation will have their office within the premises of the GP or the PS, as the case may be, or will have their own offices in the immediate vicinity of the Panchayat offices. The Gram Panchayats and the Panchayat Samitis shall extend active co-operation to this process. Building capacities of the Panchayats to utilize the Clusters and Federations as

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their agents for poverty alleviation and making social changes for upliftment of the women will be an important task to be achieved within the said period. Respective roles of the Panchayats as also the State Government along with a time frame for different functions have been captured in the Matrix showing implementation strategy in item No. 2 of the key issues under the heading ‘Organising the poor for their participation in Panchayats’.

2.4 Strengthening Functioning of the Upa-Samitis and Standing Committees

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2.4.1 The process described in sections 2.2 and 2.3 will strengthen vertical decentralization for active involvement of the people at the village level and those, particularly the women belonging to the poor community, in the affairs of the Panchayats. There is also need for horizontal sharing of power and responsibilities in functioning of the Panchayats. All the three tiers of Panchayats now have standing committees (the committees at the GP level are known as Upa-Samitis), whose roles have been broadly specified. Guidelines have also been laid down for their functioning. This is the forum for developing appropriate coordination and convergence of activities of the Panchayats and the State Government through its line departments. While some of the functions of the State Government have been devolved on the Panchayats there are other district sector activities, which will be implemented by the respective departments. In such cases also all the decisions related to planning should be taken in consultation with the Panchayats in general and the Standing Committees in particular, which is in consonance with the guidelines for formulation of the Eleventh Five Year Plan. In respect of district sector schemes of the line departments the Panchayats will be required to play a stewardship role in reaching full benefit of the programmes to the people and ensure convergence with its own activities either as a part of the devolved function or as per their own initiatives beyond the periphery of such devolution. In respect of the District sector activities which are to be devolved on the Panchayats, the Standing Committee will formulate its own plan keeping the broad policy of the State and the local needs in mind. The Development and Planning Department of the State Government has laid down the policy and principles of the Government in this respect. In its communication to all departments of this Government, it envisaged that all schemes shall be split up into two groups – one for implementation by the departmental machinery and the other for implementation by the local bodies i.e. the Zilla Parishad, Panchayat Samiti, Gram Panchayat and urban local bodies. Such schemes will be assigned, inter alia, to the Zilla Parishad, Panchayat Samiti or Gram Panchayats in consideration of their territorial jurisdictions as also the administrative, technical and financial requirement of any of these schemes. Such assignments will be coupled with flow of fund and technical support where necessary. Such schemes shall be drawn up with their focus on human development with special emphasis on concerns of women and children. Besides, Scheduled Castes, Scheduled Tribes and backward areas should get their due shares of such schemes. This methodology is in process and is expected to begin its course on and from 2007-08. Both in case of implementation by the departmental officials or by the Panchayat body itself, there is need for regular interactions between the Standing Committee and functionaries of the concerned departments at the appropriate levels. The Standing Committees have representation of officials of the line departments of the appropriate levels and there is need for more convergence of activities related to the own district sector programme of any department as well as devolved functions related to the department for which decisions are primarily taken by the Standing Committees.

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2.4.2 At present the functioning of the Standing Committees are still weak and there is need for both development of capacities of the elected members of the Standing Committees as well as changing the attitude of the official members for their better participation in functioning of the Standing Committees. The linkage between the State level functionaries and the Standing Committees of the Zilla Parishads are also weak and varies widely for different departments. The State Government will ensure interactions between the State level functionaries, including ministers in charge of departments and the elected members of the Standing Committees of the Zilla Parishads at least once in a quarter for guiding and apprising them of the State policy and development programmes. The district level officials will interact with the members of the Standing Committees at the Block level. There will be similar integration of activities between the Block level standing Committees and the GP level Upa-Samitis. The proposed system may be accommodated well within the existing legal framework. At present, the district-level officers of different departments are appointed members of one or other Sthayee Samiti of the Zilla Parishad. Likewise, Block level and sub-Block level officers are members of the Sthayee Samitis of Panchayat Samiti and Upa-Samitis of the Gram Panchayat. In some cases, higher level officers have also been made members of a lower tier Panchayat. Besides, a Sthayee Samiti may invite an officer/functionary for facilitation/discussion. It may also be mentioned that the policy of linkage and interaction is pronounced in the Act by making the MPs and MLAs ex-officio members of the Zilla Parishads and the Panchayat Samitis and by making Zilla Parishad members and Panchayat Samiti members ex-officio members of the Panchayat Samitis and Gram Panchayats from where they are elected. Based on this analysis, there is no legal obstruction if a higher level officer or functionary attends any meeting of a Sthayee Samiti for discussion or deliberation. In fact, it will strengthen the process of interaction and collaboration envisioned in the Act. The Sthayee Samiti may invite such persons suo motu in consideration of the issue involved or at the suggestion of an officer-member. This will ensure convergence of activities of the State and the Panchayats and will help taking up various concurrent activities for promoting the same goals without duplicating each other’s effort. For example if the Agriculture Department feels that growing of oilseeds will be promoted in certain area they may take up distribution of mini-kits for oil seeds in consultation with Standing Committees concerned and at the same time the Panchayat may also decide to increase the coverage by distributing additional mini-kits out of their own fund and may also provide other local supports like extension of irrigation. This is in fact happening in a very small scale and the strategy will be to develop capacities at all levels so that the Panchayats join hands with the State Government to intensify development activities with its own resources. Since the programmes with umpteen number of sub-programmes are varied and divergent, it is not possible to suggest a rigid line of action in this regard. The Sthayee Samitis / Upa-Samitis or the Panchayat bodies shall be required to shape their decisions on the basis of the local needs and available resources to meet that need. This will also help better implementation of the State plans because of convergence of activities at the lower level.

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2.4.3 One essential requirement for proper functioning of the Standing Committees is to have their own budgets. The process is to start with allocation of budget Standing Committee wise before starting the planning exercise for the next year. Provisions have been made for taking all those steps and financial power of each Standing Committee has been prescribed for all the three tiers. For decisions involving higher amounts approval of the Standing Committee on Finance or the General body is to be taken, as the case may be. Steps were taken for preparing budget Standing Committee wise from the year 2006-07. It seems that there is need for tremendous capacity building and sustained monitoring for achieving the desired goals. The same will be achieved for all the Standing Committees of the Zilla Parishads and the Panchayat Samitis by the year 2007-08 and 2008-09 respectively. In respect of the Gram Panchayat preparation of prior allocation and working out budget for all the Upa Samitis will be achieved by the year 2009-10. Training and capacity building exercises including improvement of the manuals for functioning of various Standing Committees will be organized for that purpose.

2.5 Defining the Roles of Members Who Are Not Office Bearers

2.5.1 The role of ordinary members would be to represent their constituents, participate in the policy and budget decisions of the general body, suggest policy improvements, and scrutinise the executive's policy proposals and their implementation. The precise balance between the roles of the office bearers and other members in initiating policies will depend on the detail of the arrangements in place. Each member will become a champion of his/her constituency defending public interest in the Panchayat body and channelising the grievances, needs and aspirations of their electorate into the scrutiny process. They will get feedback from the GUS of which they are the chairpersons and will take up those issues in the general Body meetings of the GPs. Regular meetings of the General Body and participation of all the members is a salient part of what they own to their constituents and will be an important indicator of democratic functioning of those bodies. The members would also continue to have other important responsibilities vital to the effective functioning of their constituency. These would include:

reviewing and questioning decisions taken by the office bearers. advising them on decisions and policy on local issues; reviewing policy, formulating policy proposals and submitting proposals to the

standing committees; suggesting plan proposals and contributing in final preparation of annual action

plan; considering the budget proposed, proposing amendments and voting on the final

budget; andThe Government will take steps for defining their roles and set up mechanism for their capacity building and monitoring of the process.

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2.6 Increasing Participation of the Political Parties in Opposition

2.6.1 In order to make the development initiatives more inclusive there is need for consensus building among all the political parties, who have representation in the Panchayat. Provision has been made for representation of one member from the opposition political parties in each of the Standing Committees and the Finance Upa-Samiti of the GP. Provision of law provides the framework only and effective participation of all political stake-holders will require imbibing democratic spirit by all the members and the majority will have to create conditions for participation of the members from the political parties in opposition with freedom, mutual respect and dignity. There is need for change in attitude of the members of the majority to listen to the voice of the minority and place all facts before them to justify decisions, if taken with disregard to the suggestions of the minority opinion. The minority on the other hand, should also not feel discouraged and frustrated just because one or two proposals mooted by them, have not been accepted by the majority. The State Government will plan for providing more training and capacity building inputs for effective participation of members from the political parties in opposition. Since all the political parties are in opposition in some of the Panchayat bodies there is need for active involvement of political parties in consensus building for the development process. Many of the social and economic objectives, some of which are even covered by legislation, are beyond any political debate and all the parties support the same in public. The capacity building initiatives will attempt to unite all of them behind those issues for maximizing benefit.

2.7 Functioning of the District Council

2.7.1 One very important aspect of involvement of the political parties in opposition is to work as the watch dog for monitoring activities of the majority. An institutional structure for the same has been provided by creating the District Council in all the Zilla Parishads, which are supposed to go through records and physically inspect all schemes being taken up by any tier of the Panchayat. The District Council is still weak as an institution and the same will be strengthened for its more effective functioning. The approach towards strengthening of the District Council has been focused in the preceding paragraph 1.3.5, sub-paragraph (g). It is expected that the appropriate statutory provision shall come into place by the end of 2007. Steps will also be taken to strengthen its staff support for augmenting its delivery mechanism.

2.8 Improving Accountability

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2.8.1 Improving accountability is one key pre-requisite for better functioning of the Panchayat. At the village level such accountability is attempted by calling all the voters in Gram Sansad meetings once in six months for sharing information and receiving suggestions of the people. In higher tiers such method of direct accountability to the citizens cannot be worked out. As an alternative, forum known as Block Sansads and Zilla Sansads have been created for the intermediate and the district level. Those Sansads are constituted by all the elected members of the concerned body and the representatives from the lower tiers as well. The system is still evolving and the State Government will take up measures for strengthening the system by improving upon the institutional mechanism for organizing those Sansads as well as the quality of transactions that will take place in such forum. The institutional mechanism will include working out the essential disclosures to be made in those meetings, format for disclosures and standardization of some of the essential items to be included in the discussions. Improvement in functioning of those institutions will be continuous in nature. However, it is expected that some minimum standards will be achieved in the next three years.

2.9 Other Ethical Steps for Good Governance

2.9.1 Strict observance of rule of law, following financial disciplines and maintaining objectivity and integrity are essential ethics on which the Panchayat system has to be built upon. Maintaining transparency in all transactions and providing access to information to the citizen will be given due importance. Apart from scrutiny by the District Council, the auditors and administrative inspections, emphasis will be given on development of citizen’s report card to judge the ethics being followed in the affairs of the Panchayat with simultaneous development of the capacity of the citizen to collate, sift and evaluate available information within the precincts of the rules and procedures and the ground realities. It is difficult to work out a Roadmap on those items. However, the State Government will take up appropriate advocacy programmes for the people to demand highest standards of honesty, integrity and objectivity. Also in order that any person can judge the same there should be access to all information upholding the spirit of the Right to Information Act. Experience shows that individual person, who is from the marginalized section and have apprehension of loosing patronage of such bodies are not in a position to come forward for demanding transparency and information, particularly if the same has been taken against their interest until and unless the persons coming from the same stratum and having similar stakes, can form well-knit groups, maintain solidarity and place their demand in a unified voice. There is need for engagement of civil societies for taking up the cause of such persons to facilitate formation of groups of such persons and to work as pressure groups for maintaining objectivity and integrity in functioning of the Panchayats. Subject to certain conditionalities involved, a timeframe to achieve this goal has been indicated in the Matrix showing Implementation Strategy in item No. 2 against the issue captioned ‘Other ethical steps for good governance’.

2.10 Interface between Panchayat and Civil Society

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2.10.1 Development of social capital by encouraging civil society to get engaged with the functioning of the Panchayats will be an important aspect of institutional strengthening of the Panchayat system. To promote that the Government wishes to see consultation and participation embedded into the culture of all Panchayat bodies. The Government proposes to ensure that all statutory obligations for consultation at all levels are followed up in letter and spirit to ensure grater transparency of functioning. This would imply a more focused set of interventions for improving the quality and regularity of the consultation process in which the participation of the civil society will be very much desirable. However, this will be an evolving process and it is difficult to chart a Roadmap for the same except that all possible steps will be taken for promotion of civil societies and for creation of an ambience so that they may mutually reinforce each other in better understanding of the issues and strengthening the processes of good governance. A Civil Society Support Programme (CSSP) is also being launched in the state shortly primarily with the purpose of supporting a more accountable civil society influencing government policy and practice to ensure better access to services by the poor. The goal is effective implementation of pro-poor policy in West Bengal.

3. IMPROVING CORE CIVIC SERVICES

3.1 Providing Civic Services to the Citizen

3.1.1 Most of the civic services are best provided by the Gram Panchayats (GPs), being the closest to the people. The upper tiers may also remain associated with directly providing certain services requiring higher engineering skill and organizational capacities or having impact over a wider geographical area and may also bear the responsibility of providing necessary supports in delivering services by the GPs. Therefore, the general approach should be to provide as much services as possible by the lowest tier, that is the GP, and the upper tiers working for providing support to the GPs in realizing that goal. The services that the PRIs should provide in various sectors are described mostly in this chapter and some of the other services have been described in subsequent chapters.

3.2 Drinking Water Supply and Sanitation

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3.2.1 Let us first discuss the issue of conservation of water for sustainability of drinking water sources and regulation of use of ground water for use in industry/agriculture. At present there are a few programmes running in this field. Watershed Development Programme to capture and store rain water is implemented by the Panchayat Samiti under the guidance of the Zilla Parishad in the drought prone area. Gram Panchayat may also implement such programmes of smaller dimensions. Newly introduced Hariyali programme for conservation and utilization of surface water also has a place in this scenario. Swajaldhara programme is again an initiative for piped water supply in rural areas especially where sub-soil water cannot be extracted. Besides, the Bengal Tanks Improvement Act, 1939 (Bengal Act XV of 1939) and the West Bengal Tanks (Acquisition of Irrigation Rights) Act, 1974 (West Bengal Act XXIII of 1974) have provisions for acquisition and improvement of tanks for irrigation and other purposes. Although Gram Panchayat has no authority under these Acts, it may initiate proposals and facilitate utilization of available water. In all such cases, Gram Panchayat may take the initial steps to identify the location of the schemes and to select the beneficiaries for specific actions at the higher level. The State Government may disseminate information relating to these programmes and statutory provisions among the Gram Panchayats in particular and may facilitate implementation of these programmes initiated by the Gram Panchayat or any other Panchayat body. Initiatives in this respect by both the GP and the higher tiers may be taken depending on the geographical area and the technology involved.

3.2.2 Water supply to all the habitations needs to be ensured. To do this it is necessary to develop database for habitations with seasonal shortage of supplies and those having water quality problems. This will be best done by the Panchayat Samiti with full support from the Zilla Parishad with access to the database of SWID and similar other organisations linked with local knowledge and experience.

3.2.3 Source based committees will be promoted for maintenance of installations through regular collection of user charges and acquisition of skills by selected (women) users. Maintenance of these installations is entrusted upon either the Panchayat Samiti or the Gram Panchayat. Formation of users’ group is the responsibility of the Panchayat body concerned although the Panchayat Samiti may take the help of the Gram Panchayat in formation of such users’ group and in monitoring and supervising its functions. Users’ group may be given the responsibility of running the installation, equitable distribution of available water, collection of charges and minor repairs. Such joint ownership of the users’ group is very likely to result in better utilization of water.

3.2.4 Promotion of habitation based small piped water supply schemes has been targeted under Swajaldhara with connection to every household in the locality and group stand post in certain cases with recovery of at least 50% of the running cost from the user group and having maintenance liabilities.

3.2.5 Capacities of the Rural Sanitary Marts (RSM) will be built up by the Panchayat Samitis to also deliver water supply engineering related services and monitoring quality of water by establishment of laboratories or using existing laboratories.

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3.2.6 Surveillance of water qualities in each Block by the RSMs on payment will also be targeted. Special drive will be taken in areas with arsenic contamination/salinity. This will be the primary responsibility of the PSs but the part of the implementation related to collection of samples etc will be the responsibility of the GP. The water quality testing arrangements are to be financially sustainable.

3.2.7 Attempts will also be taken for promotion of surface water based water supply arrangements in areas with arsenic contamination/salinity or exhibiting seasonal problem because of excess drawal of ground water. This will be the responsibility of the Zilla Parishads (ZPs) to take up with the State Government for actual implementation by the State Government (PHED). The PRIs may be associated with distribution of water to the household level after receiving water in bulk from the PHED.

3.2.8 100% access to safe sanitary toilets in all the habitations have to be ensured. GP/Block wise plan for such 100% coverage is needed in each district depending on the present progress and keeping the area free from open defecation.

3.2.9 It has also been targeted to provide sanitation facilities at all public places and the responsibility will lie on the GP, PS or ZP depending on the place. Major initiatives in this respect shall be taken by the Janaswasthya O Paribesh Sthayee Samiti of the Panchayat Samiti and Siksha O Janaswasthya Upa-Samiti of the Gram Panchayat. They will take actions in regard to public places under their respective control and management. Janaswasthya O Paribesh Sthayee Samiti of Zilla Parishad shall monitor the progress in this respect. This has been indicated in the Matrix showing Implementation Strategy in activity (j) under the issue ‘Drinking water supply and sanitation’ in item No. 3.

3.2.10 Sewerage and solid waste management plan in each habitation for proper environmental sanitation have also been targeted. It is also targeted to provide conservancy services in urbanized or other GPs where such services are necessary.

3.3 Services Related to Public Health

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3.3.1 Improvement of public health is associated with a large number of activities and responsibilities by the local bodies, besides those related to water and sanitation as described above. Responsibility for improving public health lie with all tiers from the central government to the GPs and the same also demands informed and active participation of the people for desirable outcome. There are many national level programmes, including the National Rural Health Mission (NRHM) as well as separate state government initiated measures for improving various aspects of preventive and promotive healthcare. The Panchayats will be responsible for organizing IEC activities and mobilizing the community for their active participation in those programmes and will attempt to reach the targeted objectives in respect of their areas by utilizing the available services. The National Rural Health Mission envisages that a) The District Health Mission will be led by the Zila Parishad, b) The DHM will control, guide and manage all public health institutions in the district, Sub-centres, PHCs and CHCs, c) ASHAs would be selected by and be accountable to the Village Panchayat, d) The Village Health Committee (A functional committee of the GUS) of the Panchayat would prepare the Village Health Plan, and promote intersectoral integration, they will also be provided with sectoral untied fund of Rs. 1000/- per year, e) Each sub-centre will have an Untied Fund for local action @ Rs. 10,000 per annum. This Fund will be deposited in a joint Bank Account of the ANM & Pradhan and operated by the ANM, in consultation with the Village Health Committee, f) PRI involvement in Rogi Kalyan Samitis for good hospital Management, g) their would be adequate provision of training to members of PRIs. All these elements have been included in the plan of action worked out by the Health and Family Welfare department in their implementation plan for NRHM in West Bengal. The Panchayats will also add their own resources for making those programmes reach the entire community, particularly the weaker and the poorer sections and will ensure better delivery of all such public health programmes to those people. In case such services are not available or are of poor quality the Panchayats will mediate with the Government for ensuring delivery of public health related services for which the responsibility lie with the Government. Many of the proximate factors for good health are either delivered or may be coordinated by the Panchayats for proper convergence of all efforts by various bodies. The GP will provide that forum at the lowest level, which will be most crucial for ensuring convergence for all such activities. The other two tiers will also remain responsible for similar convergence at respective levels. All these bodies will also be associated with surveillance of public health outcome for assessing status in respect of their citizenry and will work for possible improvements with available resources. The following gives a broad outline of what the Panchayats will be doing in respect of public health apart from what has been stated earlier in relation to water and environmental sanitation.

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3.3.2 Registration of birth and death – Power has been already given to the GP for registration of birth and death. In exercise of power conferred under section 6(5) of the Registration of Births and Deaths Act, 1969 (18 of 1969), the Chief Registrar of Births and Deaths, West Bengal (Director of Health Services), empowered the Block Sanitary Inspectors or any other person functioning as Registrars under the aforesaid Act to appoint the Pradhans of the Gram Panchayats within their respective jurisdictions to act as Sub-Registrars (Notification No. HF/O/FW/14C-2/94(I)/174-P dated 19/5/1997). On being so appointed, the Pradhans are acting as Sub-Registrars, that is, they are collecting information on births and deaths, maintaining registers in the prescribed manner and making available such extract copies of the registers as may be intended for. They are also sending periodical reports to the Registrars on the work done by them. The PRDD has circulated an order No. 4231-PN/O/1/4P-5/2003 dated 12/11/2003 delineating the functions and responsibilities of the Pradhans on this issue. At present all such events, particularly all deaths are not registered though such services are provided free of cost. The GPs will be required to ensure cent percent registration of birth and death, which occurs within its jurisdiction. In order to achieve this purpose, the Gram Panchayat shall motivate all its members as also members of the Gram Unnayan Samitis to sensitise the people in general and to collect follow up information in this respect. That will also help the GPs to maintain the vital statistics of the population living within its area. Based on analysis of such data the GP will make possible interventions in reaching services related to family planning, mother care and child health interventions, campaigning for following the legal provision related to the age at marriage etc.

3.3.3 Immunisation of the children – The GP will be responsible for mobilizing the community in order to achieve 100% immunisation of children with appropriate support from the upper tiers of Panchayats and the State Government. The responsibility of the GP will be to see that adequate services are available within its area and, if not, will mediate with the State Government through PS, if necessary, so that every newborn has access to such services. The GP will also mobilize the parents and the community to take benefit of the services and will keep track of the actual coverage. All the doses are not taken by some children and to avoid that the GP will try to maintain the immunization data child-wise in computers, as and when they acquire the capacity to do so. The state Government will assist the GPs to acquire such capacities within next three years. The purpose will be to track every new born to be sure that all the doses have been administered to every child. The GPs will take the assistance of the ANMs and the ICDS workers in accomplishing this job. Necessary outreach services will be organized by the GP with the available health and ICDS workers for reaching the immunization related services to the areas located far away from sub-centres.

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3.3.4 Safe motherhood – The Panchayats will work towards providing access to government services related to birth preparedness for safe motherhoods to its residents and will utilise the support to be available under NRHM towards that goal. The poorer section of the society do not always access such services because of their lack of awareness as well as difficulty in access or even non-availability of such services. The Panchayats will work for increasing awareness about availing such services like tetanus vaccination, pre-natal and post-natal check-ups and other good practices for safe motherhood. Those bodies will also take follow up measures including medical check up in deserving cases. Members of ASHA and women SHGs will be utilized to campaign and to keep vigilance on such matters. In case such services are not accessible to all, the GP will identify those areas and will mediate with the State government directly or through the PS for making available such services. GPs will also work towards taking appropriate measures for achieving at least 80% institutional deliveries and will ensure that the remaining births are attended by at least skilled persons. If the government maternity facilities are far off, the GPs will develop infrastructure in their head quarter health sub-centres or in other suitable places for safe delivery of mothers with the help of the ANMs working in their jurisdiction. They may arrange skilled birth attendant from among the local women for providing services. The GPs will also monitor events related to maternal death and will take all preventive measures directly or with the support of the higher tiers or the State Government to avoid death of either the mother or the child.

3.3.5 Preventing malnutrition – High incidence of malnutrition among the adolescent girl, mother and children is a major area of concern related to public health. Prevention of malnutrition will depend on several interventions by the Government, Panchayats and the households. The GP will be the lowest level at which the nutrition related data, mostly collected in the ICDS centres, will be monitored, aggregated and analysed for all possible interventions at that level. In order to do that the GPs will ensure that all the children of the area up to the age of three years are brought under regular surveillance through the ICDS programme or otherwise. Monitoring and analysis of the weight at birth and latter months of all the babies will be an important component of the activities for planning and implementing both short and long term interventions. Such interventions will include identifying the malnourished children and ensuring that they get adequate supplementary nutrition through local arrangements for which the GP will make, for economically weaker households, provision out of their own resources, if no such provision is there out of any programme. This is one of the concurrent activities where GP will take measures on its own initiative where State intervention is inadequate or has not reached at all. The Panchayats will also work for increasing the awareness of the people particularly the women including the adolescent girls for promotion of adequate nutrition for all. To supplement the general publicity and institutional efforts (medical advice) of the Health & Family Welfare Department of the State Government, the GP will also work for spreading awareness related to breast feeding and promotion of low cost nutrients including motivating the poorer families for developing kitchen garden for increasing the supply of nutrient foods and proper functioning of various feeding programmes at the ICDS centres and schools. GPs will also remain responsible for construction and maintenance of ICDS centers.

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3.3.6 Prevention of diseases – Prevention of communicable diseases in general is the task of the Government. However, the same becomes effective only when the entire community participate in those programmes. The role of the Panchayats will be to participate in all such programmes and utilize the resources available through existing programmes of the State and the Central Government to prevent communicable diseases by ensuring active participation of the people and adding their own efforts and resources for effective implementation of all those programmes. The outcome will be measured by the reduction of burden of disease of their residents and absence of outbreak of communicable diseases for which the GP will remain vigilant. The GP will pass on any incidence of outbreak of communicable diseases to the appropriate agencies and will provide all local supports to make government interventions in containing the same along with taking up local measures for preventing recurrence of such incidents. The Panchayats will take initiatives for control and home management of diarrhea and prevention of other water-borne diseases through awareness building and skill training. The Panchayats will also assist in building up awareness on diseases like AIDS for its prevention within its area. West Bengal has high incidence of Thalasemia and the same can be reduced by avoiding marriage in which both the bride and the groom (their mismatch) are carriers of the congenital ailment. Awareness building in such case also, which is not really communicable diseases, should be taken up by the Panchayats for preventing such ailments. GP should motivate the people through group discussions and discussions in larger forum to check the blood groups of the prospective bride and groom before marriage so that there is no mismatch and if necessary get medical advice.

3.3.7 Vector control – The Panchayats will work in association with the Government for controlling breeding of mosquito and other insects which are responsible for spreading disease. Those bodies will also take local measures for vector control and ensure participation of the people in all such measures like avoidance of accumulation of water, regular clearing of shrubs and bushes. Maintenance of environmental sanitation through proper drainage and sewerage, as already described and keeping the area free from open defecation will be important tasks of the Panchayats in this respect.

3.3.8 Food safety – As local government, the GP being too weak will not be able to enforce measures related to food safety nor have the Panchayats been legally empowered with that responsibility. However, even without such formal assignment the GPs may promote adoption of certain broad hygienic measures in respect of sale of readymade food to reduce the probability of spreading of infectious diseases and link the same with issuance and renewal of trade licenses for food related business or vending of food in public places and fairs etc. In order to spread awareness in this respect, GP may request the local officers of the Health and Family Welfare Department to participate in the meetings of Gram Sansad and Gram Sabha and explain the relevant issues to the people.

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3.3.9 Monitoring of events of death of children and pregnant mothers – In order to reduce the IMR and the MMR to the desired level the Panchayats will be required to monitor all such events, which occur within their areas. The Health Supervisors, posted at the GPs, have already been entrusted by the Health & Family Welfare Department with the responsibility of conducting audit of all such deaths and reporting the same to the Gram Panchayats. The GP will have the responsibility to act on the basis of such reports by taking up suitable interventions locally as well as mediating with the higher tiers as well as the officials of the Health & Family Welfare Department for initiating possible measures in preventing such deaths.

3.3.10 Convergence of all public health Related Activities – Convergence of all public health related activities and assessment of quality and extent of delivery of all the related services will be an important task of the GPs. The State Government has already introduced a review meeting by the GP in the last Saturday of every month and officials of Health & Family Welfare Department and the Women & Child Development and Social Welfare Department along with functionaries of the GP attend this meeting. Convergence of such efforts at the Block and District levels will be similarly coordinated by the PS and the ZP.

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3.3.11 Provision of elementary curative services – Access to curative services in interior rural areas is still limited because of non-availability of qualified doctors in villages and because government doctors are available only in the PHCs, which caters to a large area and are located far away from many villages. Even traveling to those centres by the sick people involves considerable expenses and loss of time and income. As a result of that the poorer sections of the community are not in a position to take full benefit of available curative services of the Government and the only solution is to reach curative services closer to the people. The State Government will ensure that curative day care facilities are available within the geographical area of every GP. Such services are already available in GPs where government health centres like BPHC and PHC are located. The GPs, where no such centre exists, will be provided assistance by the State Government to run a dispensary by engaging a graduate doctor from any system of medicine. The doctors of the PHCs, which run only out-patient services, will also attend outdoor clinic in some of those GPs, particularly which are located in remoter places, to the extent permitted by the strength of doctors available in such PHCs of the same Block. In fact homeopathic dispensaries are being run at present in 675 GPs and 300 more such dispensaries along with 200 Ayurvedic dispensaries are going to be opened soon in GPs without having any Government or Panchayat owned clinic. The remaining GPs will also be covered as soon as possible (preferably by the year 2007-08, subject to availability of doctors on hire) so that every GP has some dispensary to provide elementary curative service to the people. All the doctors in those GPs are engaged on contract by the GPs and expenses for medicines etc are borne both by the State Government and the GPs themselves. Depending on availability of allopathic doctors, the GPs will be allowed to hire such doctors to treat patients in those clinics at least once a weak, in addition to the homeopathic/Ayurvedic doctor to improve the coverage. As already mentioned, in some of the remoter GPs Government allopathic doctors will be sent on rotation to provide outdoor treatments. Patients from all the clinics will be referred to the PHC/BPHC, if necessary. Every GP will develop appropriate infrastructure to allow running of such clinics and will maintain data related to treatment in such clinics for necessary disease surveillance. In fact the GPs are being assisted to develop proper infrastructure in their head quarter sub-centre as per model plans circulated for that purpose. All the GPs will have such infrastructures within the year 2008-09. Such sub-centres will also have labour rooms to provide facilities for delivery with the help of the ANMs at the sub-centres, if the Government health centres are located far away from the GP. The GPs will be also encouraged to arrange for simple pathological tests facilities in the head-quarter sub-centres with private partnership, if necessary.

3.3.12 Building capacities of the Panchayats – The State Government will work to augment the capacities of the Panchayat functionaries, particularly those at the GP level for being able to converge all the activities related to public health, monitor the progress of implementation of various programmes and be able to plan and implement local interventions for better outcome of the existing programmes to be judged by reduction of burden of diseases and better nutritional status of the population. The available functionaries of the State Government will be responsible for providing necessary support to the local body concerned for achievement of the said tasks.

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3.4 Services Related to Universal Literacy and Elementary Education

3.4.1 The 86th Amendment of the Constitution confers right to all for receiving education up to the age of 14 years. The PRIs should work in association with the State Government for realizing the goal for their entire population. This is one of the most important sectors, where the Panchayats will have activities of all the types like the devolved function, the agency function and the collaborative function. The State Government will gradually devolve all the non-academic functions related to school education, which will include maintenance of buildings and other physical infrastructure like water supply and sanitation facilities, play grounds etc. in respect of schools run by the West Bengal Primary Education Board, West Bengal Board of Secondary Education and the Board of Madrasah Education. This is being done at present only partially out of own fund of the Panchayat and there is need for devolving responsibilities in respect of activities being taken up under the SSA (Sarva Shiksha Abhiyan). For implementation of the SSA, the Chairperson of the Zilla Parishad is involved as Chairman of the District Level Committee on SSA and the same should be replaced by proper institutional involvement of the Zilla Parishad and other Panchayat bodies through clear assignment of responsibilities. The Government of India has to take a decision in this regard for ensuring involvement of the Panchayats in implementation of the SSA. There is a Siksha, Sanskriti, Tathya O Krira Sthayee Samiti (Standing Committee on education, culture, information & sports) at Zilla Parishad and Panchayat Samiti level. Likewise, there is Siksha O Janasasthya Upa-Samiti at Gram Panchayat. Sabhadhipati, Zilla Parishad, Sabhapati, Panchayat Samiti and Pradhan, Gram Panchayat are ex-officio members of these bodies at appropriate level. These bodies may be entrusted with the responsibility for implementation of the SSA and the parallel committees set up for the purpose, may be dissolved. At present the field functionaries of the School Education Directorate is not associated with the Panchayat Samitis excepting in attending meetings of the Standing Committees. There is need for placing their services with appropriate levels of the Panchayats for obtaining their help in managing all non-academic activities of the schools by the Panchayats. They may be given a Panchayat related designation to highlight their role in the Panchayats. PRDD proposes to take up this issue with the School Education Department so that the State Government may take a firm decision in this respect with a specific timeframe to implement the decision.

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3.4.2 However, the Panchayats of the State has been fully devolved the responsibility of opening community managed education centres for primary and upper primary level education. This is being done under a special programme of the State Government for universalizing elementary education with focus on reaching the education related services to the backward areas and ensuring participation of all those sections of the community, who are lagging behind. The programme known as the Shishu Shiksha Karmasuchi allows opening of Shishu Shiksha Kendra (SSK) for imparting primary education and Madhyamik Shiksha Kendra (MSK) for imparting upper primary education by the community after obtaining concurrence of the Panchayats. The Panchayats have been assigned the responsibility of extending support to the SSKs and MSKs in area having inadequate access to such services with the initiative of the local community. The community takes responsibility of managing the schools and financial support for the same are received by them from the Panchayats. It will be the responsibility of the GPs to ensure 100% enrolment and their retention till class VIII standard using the State sponsored or Panchayat sponsored institutes. The PS will remain responsible, for which necessary support will be provided by the State Government, for bridging the gap in available infrastructure and improving the existing infrastructure to provide access to all the children living in its area. Adequate physical infrastructure for all primary and upper-primary schools & SSKs/MSKs are to be built up within the 11th Plan period and the ZP and the State Government will overview the progress and bridge the gap with resources in their command, including those available under the SSA, wherever necessary. Assigning responsibility on the Panchayats in this regard will not be enough unless their capacities in achieving tasks of cent per cent enrollment and retention of all children at least up to the level of elementary standard (class VIII) are augmented by the Government. The responsibility of the State Government will be to augment the capacities of all the tiers of Panchayats for achieving this important goal. Achieving universal elementary education is also related to abolition of child labour. The Panchayats will be sensitized to the urgent need for abolition of child labour from respective areas and achieve the status of “No child labour GP” as soon as possible. It will be too ambitious to think that the problem will be solved by merely involving the Panchayats in achieving the same. However, this will be a priority of the Panchayats in addressing this issue for which necessary support has to be also provided by the State Government. The PSs will organize bridge courses for the liberated child labour for which support will be extended by the state Government.

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3.4.3 The Panchayats work as an associate of the School Education Department in implementing the Mid Day Meal programme with due support from the upper tiers. The GPs engage the SHGs for cooking and distribution of food and also have constructed kitchen sheds for running the programme. The GPs face the day to day administrative problems and mobilize the community for improving the quality of food through local donations. The responsibility should be totally devolved to the GPs and responsibility of supervising the same should be entrusted with the PS and the ZP by issuing formal orders, which is yet to be done. The GPs should also be given the responsibility of procuring rice locally and get paid at the usual rate so that local rice could be used and local people get market for adding value to their agricultural produce and sell the same there itself. Thus, the local people shall acquire ownership to this programme and participate actively in its implementation. This will also ensure quality of food for children. However, that will require concurrence of the GOI for which they have been moved. PRDD proposes to take up this issue with the School Education Department so that the State Government may take a clear decision on it and refer to the GOI for concurrence as may be necessary.

3.4.4 The National Literacy programme is being implemented through the Zilla Saksharata Samiti. The Panchayats are asked to support the programme whereas the need is to devolve the responsibilities on the Panchayats. Item 19 of the Eleventh Schedule of the Constitution includes Adult and non-formal education as one of the subjects to be considered for devolving on the Panchayats. It is, therefore, quite natural that the activities related to adult and non formal education, which need to be taken up at the district or below that level, should be devolved on the local bodies. Such devolution will help the Panchayats to own the task of bringing their entire citizen from out of illiteracy through local initiatives and the same will have the following advantages. It will be easier to mobilize the entire community within the jurisdiction of the

Panchayats towards achieving a society free from illiteracy. Convergence with other programmes for socio-economic development, which are

implemented by the Panchayats, will be easy to achieve for more functional use of the acquired literacy.

It will ensure bottom up planning for all activities related to Continuing and Lifelong Education and the same will be more effective to suit the local need.

If the Panchayats envisage the programme as their own, it will encourage those bodies to utilize all their resources for enriching the programme.

Close monitoring by the local government will improve quality of implementation of the programme. Also, all corrective measures can be taken more quickly and precisely based on local need.

The implementing machinery will be directly accountable to the community through the local bodies. That will improve the quality of implementation and help in achieving locally determined targets.

Since success of the programme centres around effective sensitisation of the people, the Panchayats with their closeness to them, are most likely to achieve success.

Since most of the target group people are otherwise occupied, it may be necessary to restructure on the basis of ground reality, the operational strategy for which the Panchayats are best equipped.

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3.4.5 The State Government will devolve the responsibility of managing all programmes related to adult and continuing education to the appropriate level of the Panchayats. The National Literacy Mission Authority should issue enabling guidelines to make it happen faster.

3.5 Road Connectivity

3.5.1 The Panchayat of the State are constructing and maintaining roads from the beginning of constitution of those bodies as an important civic service. A large share of fund under the control of the Panchayat is used for that purpose. Each Zilla Parishad has already developed a District Rural Road Plan (DRRP), of which some of the roads are owned by the Government and the rest are maintained by the Panchayats or are required to be constructed for providing all weather road connectivity to all the habitations of the State. Each tier of Panchayat will have exclusive jurisdiction on certain types of roads included in the DRRP and not owned by the Government and High-Way authorities. All “THROUGH” roads and “LINK” roads, shown in the Core Network prepared for the district under the PMGSY should be owned by the Zilla Parishads (ZPs). All other existing metal roads shown in the DRRP and constructed under RIDF or other programmes and not owned by the PWD or other government departments will be owned by the ZPs. Other roads constructed by the PS wll be maintained by those bodies. All roads constructed by the GP, other roads connecting the “LINK” roads with the habitations fully confined within the GP and roads within the habitations will be owned by the Gram Panchayats (GPs). Out of roads owned by the GPs those which are wide enough for movement of small four wheel vehicles will only be termed as village tracks. Minimum width of carriage way of such roads should be 2.5 meter although efforts should be made to widen the road to a width of 5.0 meters at least in different sections as far as practicable. GPs should not construct or maintain any road of width less than the minimum width of 5.0 meter for the carriage way, to make the same at least of the standard of a village track particularly where such track connects the village with a major arterial road. All the ZP roads will be all weather metal roads, whether sealed or unsealed. Roads of PS will be all weather roads but the riding surface may or may not be metalled. GP roads will be either all weather or fair weather. Responsibility of maintaining the roads will be on the Panchayat body owning that road. Any Panchayat body not having enough technical expertise or if it finds otherwise convenient may entrust construction or repairing of a particular road owned by those body to the higher or lower tier of Panchayat on mutual consent and will also bear the related expenses. The right to collect toll or impose condition on flow of traffic as per law will lie on the Panchayat body owning that road. Other responsibilities of the Panchayats related to road connectivity are as mentioned below.

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3.5.2 Panchayats to maintain the list of roads – Based on the said principle all the Panchayat bodies will prepare a list of roads already owned by them or required to be constructed by them to provide effective connectivity to all the habitations under their jurisdictions and show the same in map. The maps should be preferably GIS based. Roads already in existence and the roads, which are proposed to be constructed to provide the desired connectivity, should be clearly shown on the map. Existing road should be shown in continuous line and the proposed roads should be shown in broken lines. The maps should be made public for their knowledge and comments. All the roads should be properly named and the identity of the roads should be unique so that the same could be identified without any ambiguity by ordinary people. The list of existing roads will be maintained in a register in the name of Road Register, which will be treated as a subsidiary Asset Register of the Panchayat body concerned. The entry should include exact length, specifications and the year of construction. Asset value of the roads appearing in the register should be worked out every year, if possible. Total investments made on each road for construction and upgradation, which are of capital nature should be entered in the register. At the end of each year total investment made by any Panchayat body for construction and upgradation of roads, which will be classified as capital expenditure should be entered in such Road Register. A timeframe for preparation of the list of roads, existing and proposed, is indicated in the Matrix showing Implementation Strategy in item No. 3 under the issue of Road Connectivity.

3.5.3 Preparation of a perspective road plan by each Panchayat body – Each Panchayat body should work out the length of the existing roads which satisfy the specifications, roads which are to be upgraded to reach the specifications and the new roads to be constructed separately. All new roads are to be constructed as per specifications only. Based on the said information all the Panchayat bodies should come out with a perspective plan showing the list of new roads to be constructed and the roads to be upgraded. The plan should be prepared after wide consultation with the community and the same should be formally approved by the General Body. The draft should be shared with the higher bodies before finalization of the same by the Gram Panchayats and the Panchayat Samitis. The document for the plan so prepared should be in readiness for taking decision on all future investment on road sector by the Panchayat bodies. A timeframe for this purpose has been shown in the Matrix showing Implementation Strategy in item No. 3 under the issue of Road connectivity.

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3.5.4 Maintenance of roads owned by the Panchayats – Maintenance of roads will be an important responsibility of the respective Panchayat bodies and the body will allocate enough fund based on its resources for that purpose in the annual budget. Maintenance of roads should be given more priority in respect of utilization of own fund including untied fund and grants as per recommendations of both the central and the state Finance Commissions. Depending on the total length of roads under its jurisdiction and asset value of the roads there will be need for investment on maintenance every year, which should be reflected in the budget. The Panchayat bodies should take up new roads with their resources only after ensuring that the existing roads will be maintained properly. Requirement of fund for that purpose should be worked out to assess whether it will be possible for maintaining the roads regularly. Instead of repairing the roads after the riding surface gets damaged seriously, preventive and regular maintenance including sectional repair is to be done on a regular basis and the budget of the Panchayat body should clearly reflect allocation of fund for maintenance of roads. Maintenance should be such that value of the total road assets does not get reduced and there is no need for fresh capital investment to reconstruct the road within its life span. The Panchayat bodies should mobilize more revenue including collection of tolls from newly constructed roads to meet the maintenance needs.

3.5.5 Documentation of all maintenance works – The Road Register maintained by each Panchayat shall have provision to show the year wise and road-wise amount spent on maintenance of road. This register will provide the history of maintenance of each road by the Panchayat body concerned. Thus at the end of each year total investment made by any Panchayat body for maintenance of existing roads will be entered in the Road Register and will be classified as revenue expenditure and will be clearly shown road-wise and will be shared with public as a part of Annual Report. Zilla Parishad, Panchayat Samiti or Gram Panchayat, as the case may be, shall entrust upon an employee the task of entering the required data in the Road Register as soon as a scheme for repair/maintenance of a road is competed and the final payment in this respect is made. It shall be provided that final payment shall be made after it is certified on the claim paper that the particulars have been entered in the Road Register. An officer shall supervise this function. A direction in this behalf shall be issued to the Panchayat bodies by PRDD.

3.5.6 Road safety – The Panchayat body owning any road should be responsible to ensure safety of the roads to the extent possible. Some of the aspects are to be taken care of while designing the roads. The Panchayats should also arrange proper road signs particularly in sharp turns and by controlling traffic speed in congested areas and will educate the inhabitants about all safety measures. The Panchayat body should regularly monitor if there is any place, particularly on new roads, where accidents are occurring repeatedly for taking necessary corrective measures. The technical officer in charge of construction/maintenance of the road shall be responsible for monitoring the extent of risk element and initiate action accordingly.

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3.5.7 Street lighting – The Panchayats owning the road will also remain responsible for providing street lights in places where the road passes through habitations and deserves such facilities and in places where lighting is necessary from the safety point of view. Section 21 of the State Panchayat Act has entrusted the responsibility for street lighting upon the Gram Panchayat. However, the operational aspects like identification of the locality, rates to be imposed on the people and other related issues shall be decided by the Gram Panchayats. Stretches of roads requiring street light shall be determined on the basis of density of population in the locality and because of traffic hazards as a result of sharp bend, fog etc. Gram Panchayat may fix a lighting rate prescribed under the West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004.

3.6 Irrigation, Drainage and Flood Protection

3.6.1 The Panchayats are providing irrigation facilities to the farmers mostly through surface water irrigation sources and individuals have been facilitated to own ground water installation. In some cases the Panchayats have also installed irrigation sources like deep tube wells and river lift irrigation facilities, which are generally maintained by the users. All the three tiers have been involved in such works depending on the size and complexity of the irrigation system. The Roadmap for irrigation will be to utilize the available rainfall to create as much irrigation potential as possible and to sustain the same. However, medium and large irrigation will be under the jurisdiction of the State Government.

3.6.2 Providing appropriate drainage facilities for each habitation will be an important task of all the tiers of Panchayats depending on their geographical spread and technical complexity. The responsibility will primarily lie on the GPs and what cannot be taken up by the GP on ground that the same is beyond its technical competency or the command or impact area is spread over more than one GP the higher tiers will be involved. Flood protections from major rivers are done by the Irrigation & Waterways Department. The Panchayats maintain the traditional Zamindary embankments and also takes up other local measures. This will be generally the responsibility of the PS and the ZP will extend necessary technical assistance directly or with the support of the I & W Department.

3.7 Housing and Development of Habitat

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3.7.1 Availability of durable houses for all the households residing within any GP will be an important goal of all the GPs. Also, every household should have at least two rooms, one kitchen and toilet facility with piped water supply, proper sewerage and electricity connection. The present status is far behind the desired goal and the GP as well as the other tiers of the Panchayat should facilitate in all possible ways to reach the goal. Since the decision to have such facility to be taken is in the private domain the Panchayats can only facilitate the process and make it easier for the households to achieve that goal through appropriate infrastructure development and other possible interventions. It is felt that in order to motivate the people for construction of a model residential house, the GP should allow some incentive to the less affluent people. A person submitting a building plan on a homestead land measuring 0.02 acres to 0.03 acres may be encouraged to construct a house having at least two habitable rooms, one kitchen and one bathroom-cum-water closet of at least minimum prescribed size (it is not possible to construct such house in the prescribed manner on a land of lower size). If such a building is constructed, the GP shall refund fifty per cent of the fee paid for obtaining permission for the construction on application by the owner after completion of construction. Besides, if for the purpose of taxation, such a building to have an annual value of rupees twelve thousand or less, the GP shall allow special rebate of fifty per cent on the assessed tax on such land and building under section 46 of the State Panchayat Act. PRDD shall finetune this proposal and issue a direction to the Gram Panchayat. Availability of homestead land and proper development of the habitat for healthy living are essential for realizing the goal related to housing for all. The GP will be responsible for development of eco-friendly sanitized atmosphere around the neighbourhood and enforce the prescriptions for allowing building set-backs and open spaces, among others, for ensuring proper habitat for all the families living in within its jurisdiction so that providing essential civic services to all the households becomes easier. The State Government will extend necessary resources for achieving the same. Very poor families are to be assisted to have at least one permanent dwelling house on their own land and those who do not own homestead land should be provided with minimum quantum of land. The GPs should be assisted to acquire the capacity for proper planning and development of habitat to accommodate every household, living within its geographical area, to have a durable house. The building plans, for which Gram Panchayats are the sanctioning authorities under the law, should also be regulated to ensure healthy living for every one. There should be access to adequate playing ground, space for the children and enough community space for healthy living. The GPs will be assisted by the state government to acquire capacities for providing all those services and depending on their capacities they have to decide on the time frame for achieving the goals. The upper tiers will provide possible support for the GPs to reach the said goals. It is very difficult to prescribe a time frame for achieving such goals, which require flow of substantial resources beyond the reach of the Panchayats and even the State Government. However, the vision will help to channelise the available resources more effectively towards that goal.

3.8 Sanctioning Building Plan and Enforcing Other Regulations for Community Living

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3.8.1 As per section 21 of the W.B. Panchayat Act, as amended recently, one of the regulatory duties of the GP is to accord permission for erection of new structure or new building or addition to any structure or building to prevent unplanned growth and to protect environmental ambience. The scope for intervention on this issue has been further elaborated in section 23 of the said Act. The GPs are doing the same traditionally. However, with growing trend for construction of bigger buildings, increasing density of population and more need for protecting environment there is need for augmenting capacities of the GPs and in some cases that of the higher tiers for proper assessment of building plans and control growth of urbanization. The State Government will take measures to augment capacities of all the technical staffs of the Panchayats. The State Government has created a post of Nirman Sahayak – a Diploma Engineer – in the establishment of GP in place of para-technical staff. The process is going on and such an employee will be available ultimately in all the GPs. Besides, the State Government shall take measures for capacity building of the engineers at all levels for preparation/validation of building plans ensuring abundance of light and air and other eco-friendly features. This apart, a new provision has already been introduced to encourage construction of structure for rain water harvesting on the roof of a building. The technical officers concerned shall be given training on construction of such structures.

3.9 Marketing and other facilities for Promotion of Economic Activities

3.9.1 There should also be adequate marketing facilities for selling local products as well as for buying the commodities ordinarily required by the citizen within reach of all the habitations. With gradual transition of the economic activities from the primary to secondary and tertiary sector activities and keeping in mind the intense pressure on land in the State, the Panchayats will be responsible for creating infrastructure for taking up non-farm economic activities including activities in the service sectors. Each GP will be required to promote one marketing centre cum business hub for meeting their local needs unless bigger centres adequately catering to such needs are promoted by the PS or the ZP within its area. Planning and implementation of development of larger marketing centres for taking up wider range of economic activities will be the responsibilities of the PS and the ZP depending on the complexity and size of the same. The State Government shall encourage the Panchayats to take up such programme on application of available untied fund and/or own source fund as a supplement to the agricultural markets built up or proposed to be built up under the sponsorship of the Department of Agricultural Marketing. This department shall also be requested by the PRDD to maintain close liaison between these two streams of initiatives.

3.10 Issuing Trade Registration Certificates and Licenses

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3.10.1 The GP has the authority to issue trade registration certificate for carrying out any business within its jurisdiction. The GP will ensure prompt services for obtaining such certificates against prescribed fees and renewal of the same. Similarly, the Panchayat Samiti is empowered to issue license for running certain offensive and dangerous trade and realise license fee therefor. The State Government has issued notifications enlisting offensive and dangerous trades and the maximum rates of license fees and renewal fees that may be realised. Maximum rates that may be imposed as fees for issue of Trade Registration certificate for different trades, have been laid down in item No. 6 of the Table for fees, rates and tolls to be levied by a Gram Panchayat under section 47, annexed in terms of rule 58 of the West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004. Again, in terms of section 116 of the West Bengal Panchayat Act, 1973 as subsequently amended, the State Government has issued notification No. 4236/PN/O/I/1T-1/04 dated 21.12.2004 declaring 28 types of trades and business as offensive and dangerous and another notification No. 1272/PN/O/I/1T/04 dated 28.03.2005 specifying the maximum rates that may be levied by the Panchayat Samiti for running such trades.

3.10.2 The objective behind empowerment of the Panchayats for issue of such certificates/licenses is not limited to augmentation of their resources. It is expected that the Panchayats will take initiatives for providing required services through the network of trades and businesses in the locality, ensure environmental sanitation and eco-friendly ambience, prevent unlawful business in the area and keep tab on trades and businesses within the area. The State Government proposes to amend the related legal provision under which GP may limit scope of trade in a particular commodity on the ground that the local market is saturated or may advice trade in a specified commodity which appears to be scarcely available in the area.

3.11 Special Requirements of the Urbanised Gram Panchayats

3.11.1 Some of the GPs of the State are experiencing more rapid urbanization. 2001 census has identified 282 census towns and out-growths, which are located within Gram Panchayats. Because of higher density of population in those areas there will be more need for improving certain types of civic services like solid waste management, drainage, street lighting etc and the GPs should be more equipped in assessing building plans before passing the same. Many of those GPs come under some of the authorities formed under the Town and Country Planning Act and there is need for convergence and harmony of plans taken up under the said Act as well as the plans of the local bodies. A special initiative will be taken to build capacities of those GPs to improve the quality of lives of the people living in those areas. In order to identify the target areas and to prepare a blue-print of action, PRDD shall take up a study by an expert team.

3.12 Management of Disaster

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3.12.1 Proper management of disaster depends a lot on preparedness and many of those activities are to be taken up at the community level and at the levels of the local governments with due support of the State Government. All preparatory steps that can be taken up locally may be taken up by the GP and the PS for which separate devolution is not necessary. The real constraint is developing capacities of the local bodies and the community, who invariably face the first onslaught of any disaster before external helps can reach the affected areas. Steps will be taken by the state government for building up such capacities in all the GPs with emphasis on areas which are more prone to certain types of disaster like cyclone, flood etc. The State Government has already issued orders for involvement of the Panchayats in identifying beneficiaries in providing relief to persons in post disaster situations. Panchayats of the State has successfully handled such situations in the past and further capacity building of the Panchayats will include both better preparedness for minimizing loss of human life and property by taking preemptive measures and imparting management skills for tackling such situation with total involvement of the community for early restoration of normalcy.

4. DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC DEVELOPMENT AND SOCIAL JUSTICE

4.1 Introduction

4.1.1 It is very difficult to distinguish between what are the essential responsibilities of the nature of core services and what are the other responsibilities of the Panchayats for economic development and social justice as laid down in article 243G of the Constitution [inserted by the Constitution (Seventy-third Amendment) Act, 1992 coming into force with effect from April 24, 1993]. The line of demarcation in this respect is in many segments very thin or blurred. However, the previous chapter broadly describes mostly those civic functions which are essential for all those living in their jurisdiction irrespective of their social and economic position for living in a society. The present chapter describes more of those activities which are to promote economic development of the poorer sections and social justice. Through recent amendment of section 19 of the W.B. Panchayat Act many of those activities have been mentioned as obligatory duties of the Panchayats. Most of those are of developmental nature for promotion of economy and social equity and, therefore, has been mentioned here.

4.2 Land Reforms

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4.2.1 The State Government has been already entrusted with the responsibility of identifying beneficiaries of land reforms on the Panchayat Samiti. While the same responsibility will continue, the Panchayats will be more associated with improving land of the beneficiaries of land reform so as to improve their productivity and helping those beneficiaries for accessing other inputs like irrigation water, fertilizer and bank credit etc. Irrigation facilities are extended by the Panchayats by taking up surface water schemes out of employment generation programmes and the same will be intensified and in other cases the Panchayats will mediate with the banks for acquiring pump sets or getting other credit related inputs. Those beneficiaries will also be assisted for producing bio-fertilisers for improving productivity. Land of assignees of vested land, if not fit for cultivation or not so productive will be improved using fund available from NREGA or other programmes so as to improve the productivity and asset value of the land. In addition to such programme related fund, the State Government encourages the Panchayats to apply untied fund and own source revenue for this purpose. The State Government shall also open dialogues with the Bankers’ forum to provide credit to such persons without being too fussy about the security provision. The State Government shall also advice the Panchayats to motivate the small and marginal farmers on this issue.

4.3 Better management of Natural Resources and Improved Land Use

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4.3.1 Agriculture and allied sector – Sustainable development and management of natural resources like land and water is essential for providing livelihood to large numbers of families depending on such activities. The PRIs should be responsible for assessing the available natural resources and how the same may be utilized for generating maximum economic gains keeping in mind the need for generating as much employment as possible and ensuring food availability. Although land belongs to private individuals and crop planning is done in the private domain the Panchayats along with the State Government will work for maximum utilization of available land resources for intensifying agriculture. The role of the Panchayat will be to provide supporting infrastructure to ensure optimum and sustainable utilisation of land and water. The same will include land reclamation utilizing fund from various employment generation programmes so that every plot of land excluding the water bodies are either covered with crop or if the land is not suitable for cropping the same should have tree cover. Degraded land is generally owned by the poorer sections having no means to improve the same and Panchayats will be responsible for improving all such land to at least have tree covers using fund available for employment generation or under various watershed development programmes. Land which can bear crop should be cultivated at least twice for which the Panchayats will play a stewardship role to utilize the available State extension machineries and programmes as well as will also work concurrently for improving cropping intensity and diversification of crop for better return and sustainability. The officials of the line departments will provide necessary assistance for this purpose and the Panchayats, particularly the GPs will be allowed to develop para-professionals within its areas for utilizing their services. Arrangement shall be made with the intervention of the ZP or if necessary, of the PRDD to impart training to such para-professionals by the agronomists and other experts of the Agriculture Department. Such training module shall focus on regional variation as regional needs and opportunities. In order to improve the cropping intensity the PRIs will work for providing micro and minor irrigation and will also mediate with the State extension machinery for improving agronomic practices for improving yield. In order to introduce new crops or improving cropping intensity the Panchayats of all the three tiers will be at liberty to act concurrently with the State Government for providing mini-kits to the poor farmers. They will assess the crop yield every year and work for increase in total production and economic returns of the farmers. Farmer’s perception and satisfaction are the ultimate measures for the crop yield and the result of improved practices on crop yield. In addition to the result of sample-based crop cutting method usually adopted by the Agriculture Department, the GP shall be encouraged by the PRDD to gather farmers’ views on crop yield and rate of increase of crop yield and compare these figures for future actions. Some of the activities, for which the Panchayats have required competence, will be taken up directly by those bodies and in respect of other interventions requiring more resources or technical expertise they will mediate with the State machineries for achieving desirable goals. Some funds are available from the Agriculture Department of the State Government for implementation of various programmes. GP and other higher tier Panchayats shall see that such funds are properly and productively utilized. Besides, untied fund may be utilized as additive to such programmes where necessary. PRDD shall also see that the experts of the Agriculture Department and the Water Investigation and Development Department provide technical inputs to these farmers. They will have the liberty to introduce new

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crops, with the support of the state extension machinery for higher economic returns keeping in mind that such diversification does not affect the need for cereal consumption of the area. The PRIs will similarly promote activities related to horticulture, sericulture and cultivation of different commercial crops.

4.3.2 Promotion of agro-forestry and social-forestry – Those activities have been already devolved on the Panchayats for taking up plantation in all possible areas excepting those which are declared forests. Every GP will prepare nurseries of their own with the help of the local SHGs and take up plantation of only those species which are preferred by the community. The GPs will study the area to find out which land is unfit for cropping and irrespective of its ownership will either direct plant trees or assist the owner if they belong to the SC/ST families or are land reform beneficiaries for planting trees. The other owners will also be motivated for improving tree cover for meeting the bio-mass need of the area. Promotion of horticulture and other species will be taken up for generation of further economic activities using the planted trees and the Panchayats will also develop their own assets in terms of plantation of valuable trees for generation of income on a sustainable basis. There will be a few cases where absentee landlords may not take any initiative in this respect. In such cases, GP shall act as a catalyst to motivate the landowner to allow a group of local persons like SHG to utilize the land either for raising crops or for plantation under an agreement, leasehold or otherwise. If these initiatives substantially fail, PRDD plans to approach the Land and Land Reforms Department of this Government for a legislation to the effect that no landowner shall keep any portion of his holding as fallow and if any plot of land remains fallow for one year, the GP shall take possession of the land without any prejudice to the right of ownership and if such land is utilized for raising crop or for plantation, the owner shall have no claim on the accretion or its usufruct.

4.3.3 Development of Water-bodies and Promotion of Fishery – Water conservation by storing surface water is an important activity which all tiers of Panchayats will carry out using employment generation programmes. That will help growing at least two crops in the command area of such water bodies, which will be actively promoted by providing mini-kits to all poor farmers having land in the command area. There is an increasing trend of SHGs taking lease of land for growing second crop and all such groups will be assisted to grow second crop and augment their income. The water bodies will be also intensively utilized for pisciculture. Those bodies owned by the Panchayats or for which Panchayats will spend fund for excavation will be given on lease preferably to the SHGs or the fisherman groups, for which enabling order has been already issued. Taking up composite culture of fishery and duckery together on such water bodies will be promoted for generation of more economic activities in their areas. The Panchayats at the intermediate level and as and when necessary at the Zilla level will also mediate with the officials of the Fishery Department for extension of technology and with banks for providing credit to the producers for more production of fish.

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4.3.4 Water and Soil Conservation Measures – The Panchayats have been entrusted with the responsibility of taking up water and soil conservation measures out of various programmes including wage employment programmes and the watershed development programmes. This is in addition to what some of the Government departments like the soil conservation wing of the State Government is doing. Technical supports for taking such schemes are available at the level of the PS. In case of need for higher level technical support the same will be provided by the DRDC of the Zilla Parishads as well as the soil conservation wing of the Agricultural Department. The State Government will be responsible for strengthening the technical capabilities of the Zilla Parishads through the DRDC and the WBCADC for supervising and supporting all activities of the lower tiers of the Panchayats in better conservation of soil and water within its area.

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4.3.5 Promotion of Animal Husbandry – Animal husbandry and development of livestock is extremely important for expanding the economic opportunities of the poorer section of the community. Activity mapping for this sector provides the responsibility of selecting beneficiaries in various government schemes and getting associated with the effort of the government for better extension of improved practices as well as taking other promotive measures. One Livestock Development Assistant has already been placed with the GPs for better integration of the activities of the State with those of the Panchayats. A team of para-professionals, known as “Prani-bandhu”, who are identified by the GPs have also been developed to provide services to the community against payment. They remain tagged with the GP and provide useful support in the field of animal husbandry. In addition to getting associated with the effort of the State the Panchayats are promoting activities in this sector with its own fund as well as fund received from poverty alleviation programmes and they receive support from the field officials of the Animal Resource Development Department, who works as officers of the Panchayats in their ex-officio capacities. Providing inputs for animal husbandry like chicks, ducklings, kids and piglets etc out of own fund of the Panchayats to the poor families and particularly the members of the SHGs have been found to be very useful for augmenting income. Capacities of the Panchayats will be augmented for intensifying those works as well as increasing the supply of inputs within its area by promoting breeding and hatching activities in consonance with the provisions under clause (i1) of section 21 of the State Panchayat Act entrusting the responsibility of the GP relating to dairying and poultry. They are also associated with development of infrastructure and providing skill training for promotion of both breeding and rearing activities. The Panchayats will also organize the producers for having better bargaining power in negotiating for buying inputs and selling products and the Panchayats will also mediate with the large producers for linking the small producers, particularly the SHGs with such larger organizations for better price realizations and marketing support. Upgrading of marketing skill is a prime need for success of this programme. It is not possible for an SHG to organize a marketing channel except for a limited marketing arrangement in local area. In order to streamline this activity, SHGs are encouraged to join together and form Clusters. Such Clusters are again grouped into Federations. An effort is also in the offing to constitute a society under the Societies Registration Act that will, inter alia, help in the marketing of SHG products. Larger organizations of Federations shall also take initiatives in marketing of products. PRDD is taking initiatives to improve the marketing skill of larger organisations with the help of Government Departments, NGOs and corporate bodies. There are veterinary dispensaries for improvement of animal health and day-to-day running and maintenance of those dispensaries will be handed over to the appropriate tiers of the Panchayats. Service of LDA should be placed with the Gram Panchayat. Running and maintenance of veterinary dispensaries may be made the responsibility of the Panchayat Samitis when Veterinary Surgeon and higher level technical officers should continue to render technical support. Block Livestock Development Officer and VS should also have closer ties with the Panchayat Samiti for which they may be given a Panchayat related designation. Similarly, the district level officers may be linked with the Zilla Parishad.

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4.3.6 Restructuring the West Bengal Comprehensive Area Development Corporation – The West Bengal Comprehensive Area Development Corporation (WBCADC) is a statutory body under the Government of West Bengal. This organization came into being in 1974 for taking up intensive activities mostly in the agriculture and allied sectors in the notified project areas. The same was brought under the administrative control of the Panchayat & Rural Development Department from February 2004 with the intention to make them work in close association with the Zilla Parishads and provide support in those fields. The Corporation has 21 notified Projects, which are located throughout the districts of West Bengal and all agro-climatic zones of the State are covered by the Projects. The State Government will restructure the WBCADC so that instead of taking up developmental activities in certain notified locations the project units function under the overall control and guidance of the Zilla Parishads and become the technical support organizations of the Zilla Parishads in promoting livelihood in the agriculture and allied sectors. The WBCADC also produce seeds of various crops and other inputs like horticulture saplings, fingerling for fish, chicks, piglets etc. The WBCADC will work as per directions of the Zilla Parishads for supplying inputs as per their requirement and will also provide extension support for introduction of new crops or adoption of new technology. The Zilla Parishads will also invest on the available infrastructure of the WBCADC for augmenting their production capacities and will engage experts to work for that organization for which fund will be provided by the state government to the Zilla Parishads.

4.4 Promotion of Livelihood Opportunities in Non-Farm Sectors

4.4.1 The Panchayats will also work for expansion of livelihood opportunities in the secondary and tertiary sectors by developing appropriate infrastructure, arranging skill training for the people, particularly those from the poorer and weaker sections of the community. They will also mediate with the financial institutions for providing better access to credit for deployment of the same in production of goods and services. Under Article 243G of the Constitution of India as also under section 19 of the State Panchayat Act, GP is empowered to take measures for economic development of the people of its area. GP may, therefore, carry out programmes for such economic development. In such cases, however, GP will essentially act as a facilitator and extend handholding support to the needy persons. All those activities are normally done by the State Government. However, the nature of the activities are such that the Panchayats have no difficulty to promote those activities within their areas with their own initiatives and resources as well as mediating with the State machineries and other available institutions for better implementation of their plans and programmes in those sectors.

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4.4.2 Household and Other Small Scale Industries – In addition to the efforts being made by the State Government for promotion of small scale and household industries, with all possible supports of the Panchayats, the Zilla Parishads and the Panchayat Samitis are permitted to develop infrastructure for promotion of those activities. Some of those are taken up as part of implementing various schemes, which have been assigned to the Panchayats. They are also allowed to buy land and develop infrastructure, arrange skill training and mediate with banks for credit support. Some of those activities are linked to the self-employment programme, implementation of which has been assigned to the Panchayats. On certain occasions, GP plays the role of advocacy. In addition to that the Panchayats are permitted to hire experts, draw up special plans either out of its own fund or fund from various programmes. Identification of key economic activities and development of skill, common infrastructure including production infrastructure and marketing supports will also be provided mostly through the District Rural Development Cell (DRDC) of the Zilla Parishads. The role of the State Government will be to increase the capacities of the DRDCs for extending support to the Zilla Parishads and creating other enabling conditions for expansion of non-farm economic activities in all possible sectors and in every possible geographical location. Land is a very scarce commodity and the Panchayats are allowed to acquire land for these purpose. The procedure for acquiring land by the Panchayats will be streamlined to allow those bodies to acquire land for promotion of activities in non-farm sectors.

4.4.3 Promotion of Service Sectors – The service sector is fast growing and has the potential to provide more employment. The benefit of expansion of service sectors has gone mostly to the urban areas because of available infrastructure and other supporting facilities. The Panchayats, particularly those located in peripheries of the urban areas will be assisted by the State Government for development of conducive infrastructure for growth of service sectors. Some of the services are expanding and have potential to grow fast even in interior rural areas. As a part of planning exercise those will be identified for being promoted by the Panchayat themselves or by the State Government on recommendations of the Panchayats. Developing Infrastructure for Promotion of new economic activities with larger employment potential like the IT and the ITES services will be an important task of the Panchayat for which due assistance will be provided by the State Government. Developments of rural markets have already been assigned to the Panchayats and those bodies have also constructed several market complexes for private trades of the locality. It will be the responsibility of the Panchayats to develop the markets and create more space for conducting business by the local people. The viable proposals will be funded by the State Government. That will also include establishment of Rural Business Hubs, in collaboration with private owners, if suitable offer is available.

4.5 Alleviation of Poverty & Social Equity

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4.5.1 Providing wage employment to the unskilled workers – All schemes for providing wage employment under various poverty alleviation programmes have been the responsibilities of the Panchayats of the state from the very beginning. This responsibility has reached a new dimension with the introduction of the National Rural Employment Guarantee Act, 2005, which has been enforced in ten districts (seventeen from the financial year 2007-08) of the State at present. The GP is the implementing agency for most of the schemes and the PS are entrusted with implementation of larger schemes. Each GP will be required to estimate the demand for unskilled wage employment and its seasonality with active participation of the Gram Unnayan Samiti (GUS) and to meet the demand by taking schemes which will boost the employment potential of the area. The PS and the ZP will oversee the work and will ensure that demand for employment is met in respect of its area and provide support to the lower tiers for achieving the objective. The ideal situation will be that the economic activities of the area taken up in the private domain will provide enough employment for all the persons so that there is no demand for employment from the State. Before, the same is achieved, which may take a very long period, the GPs and the other Panchayats bodies together should be able to plan and implement schemes for meeting the demand for employment. There are areas where non-availability of land and other constraints will not permit generation of so much employment for unskilled labourers. In other areas the Panchayats should acquire the capability of providing 100 days wage to all the labourers, if there is demand for the same. There are certain areas where even though the demand is generally perceived, the programme is not being implemented at the desired level apparently because of some constraints. The State Government is taking steps to collect information about such constraints, study them and take necessary actions. The goal, as far as the Panchayats are concerned, is to be able to provide employment to meet the demand and to simultaneously to build up employment potential through better management of natural resources so that all the labourers gradually get more number of days of employment per year from the economic activities in the private domain or through self-employment leading to lower demand of employment from the state.

4.5.2 In Howrah district the provisioning of wage employment by the Panchayats are not based on demand but on supply of fund under the SGRY (Sampoorna Grameen Rojgar Yojana) programme. In this district also the Panchayats will work for creating such assets so as to allow increasing generation of man-days per year from the private economic activities leading to reduction of poverty. In those districts the target will be to ensure that the Panchayats are in a position to utilize cent percent of the fund allocated to them (which is yet to be achieved because of various constraints) and to provide scope for employment to the poorest people and the women for augmenting their income. Since the functions have been fully delegated to the Panchayats the task is basically to increase the capacities of the Panchayats for properly discharging their roles. The role of the State Government will be to augment capacities of the Panchayats and to remove the constraint of not being able to meet the demand for employment in districts covered under the NREGA and not being able to fully utilize the available resources under the SGRY in respect of the other district. The same will entail higher efficiency in planning and making the plan more useful to the wage earners for augmenting the opportunity for getting wage employment within their areas.

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4.5.3 Implementation of area development programmes – The Panchayats have been fully entrusted with the implementation of the watershed development programmes under the centrally sponsored Hariyali schemes as well as other watershed development programmes. In this case also the major constraint is that of inadequate capacities and the Roadmap will be to gradually develop capacities at all the three tiers for proper implementation of the watershed development programmes. Major focus of such schemes will be those Blocks covered under the DPAP and other blocks facing land degradation.

4.5.4 Self Help Groups and Self Employment – Alleviation of poverty, through simultaneous improvement of all its dimensions, is a paramount goal of the State as well as of the Panchayats. Organising the poor in Self-Help Groups (SHGs) and empowering them to be the prime mover for their own development by drawing support from the Government as well as the Non-Government organisations, rather than imposing programmes on them, is emerging as the key strategy for alleviation of poverty. The role of the Panchayats in this context becomes primarily to facilitate the process and to ensure convergence of all the interventions at the community level through the SHGs. The GP, being closest to the community can play the most important role in development of SHGs with members drawn from the poor families and ensure that all the desired services and various other government interventions reach those families through those groups. Regular savings, even at a very small scale and pulling their resources for meeting small credit needs has played a vital role in bonding the members and gaining confidence in extending their group effort in tackling other areas of deprivations. Micro-finance has been thus found to be an extremely important entry point activity for organising the poor and harnessing their power to fight together to overcome deprivation, discrimination and vulnerability. The other common experience has been that the poor women have come forward in large numbers to get organised in groups and breaking new grounds in social and economic development of their members through group efforts. Experience over last decade or so, has proved that if allowed to blossom, the organisations of SHG and micro-finance can devise own financial products matched to the felt needs of the poor and manage delivery of those products efficiently. However, maturity of the initiatives still broadly depends on creating favourable socio-political and economic environment with necessary legal and administrative structure as well as strong facilitation by dedicated experts. Desired change in socio-political scenario will obviously be slow and requiring changes in the mind-set of major players – individuals and institutions – in the field. However, since the State Government has owned this process, such change shall take place albeit gradually. Pro-poor attitude is also not overly discernable in every field of activity. Such attitude is also necessary to be built up. The SHGs of the poor, apart from playing the most crucial roles of ensuring benefit to their members may also influence the local governments to remain pro-poor for maximising benefit to the most deprived section of the community, which has been already mentioned in chapter II.

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4.5.5 In the backdrop of the above the goal set by the Government of West Bengal is to cover all the poor families, by bringing at least one member from such families, particularly the women under Self-Help Groups. There are around four lakh such groups and there is need for forming three lakh more groups, which may be possible by the year 2010. The role of the Gram Panchayats will be to organize the groups within their areas and to nurture and monitor them for meeting their economic and social needs and ensuring convergence of their plans and progrmmes with the needs and aspiration of the group members. The Roadmap in this regard will be the following:(1) Each GP will have a team of trained persons for nurturing and monitoring the

SHGs formed under its jurisdiction. For that purpose a GP SHG management Team (GSMT) is being formed in each GP comprising of elected members, group members, officials and members of NGOs and civil society for assisting the GP in accomplishing the task. GSMT shall guide and advice the GP to build up a support system for the SHGs to foster their social and economic activities. The same will be completed by the current year but the task for increasing their capacity will remain to be addressed over the next few years.

(2) Each GP monitors the progress of the SHGs within its area once a month and plan interventions at their levels for generation of income and pursuing other goals of the SHGs as well as mediate their other needs, which cannot be addressed by the GPs, with the higher tiers of Panchayats, banks, DRDC etc.

(3) All the SHGs within the GP are formed in to one clusters (with sub-clusters if necessary at the Gram Sansad level) and provided infrastructural support for their functioning. Such clusters will provide a common platform for the SHGs where they may share experiences, compare problem issues and decide joint course of action on common issues.

(4) All the three tiers of Panchayats spend out of their untied fund through their Standing Committees on Women & Children for promotion of the interest of the SHGs for augmentation of their income as well as expansion of other social opportunities. The most important component will be providing non-credit inputs to the group members for pursuing various economic activities. The experience of the State has been very good in providing inputs like seeds, chicks, kids, piglets to the group members for unleashing the productive forces of the members of the SHGs by utilizing their manual labour as also their aptitudes and experiences. The process needs convergence of extension support and other help for realizing the full potential for such intervention.

(5) The above will include development of production infrastructure like working sheds etc at the village level to meet the demand of all the SHGs, imparting appropriate skills and providing possible marketing support to all the groups. The same will be coordinated by the DRDCs of the ZPs with the support of the Panchayat Samitis. This will also require development of dedicated centres for promotion of livelihoods, which will be developed appropriately by the State Government in collaboration with the Zilla Parishads.

(6) Every SHG will have access to credit through either cash credit account or scheme-based lending for earning enough money to come out of poverty.

All such responsibilities have been already devolved on the Panchayats and the Roadmap boils down to augmenting capacities of the Panchayats in all the three tiers for achieving

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the objectives as stated above and as fast as possible. This will also require intense orientation of the Panchayat members for changing their mindset in not spending the bulk of the available fund in roads and other construction activities and rather utilizing the untied fund for directly addressing poverty through SHGs. All the activities mentioned above will promote primarily non-farm activities including household and cottage industries and will have impact in the society so as to reduce the demand for wage employment.

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4.5.6 Reduction of poverty and providing other support to the BPL families – Steps like Land Reforms, better use of natural resources in a sustainable way, providing wage employment and augmenting self-employment through organizing the poor and promotion of non-farm activities, as narrated before, will be the main interventions for alleviating rural poverty. At the same time the existing BPL families need to be identified and benefits of various schemes are to be focused on such families. Maintaining a proper BPL list and updating the same is a real challenge at the field level. The list is being prepared based on certain objectively verifiable indicators and after the list is finalized the same will be shared with the Panchayats. The Panchayat Samiti will be responsible for maintaining the list. All the GPs should have the capacity of consulting the list, preferably by using computer for ensuring proper selection of beneficiaries and distribution of benefits equitably among the poor. Since computerization of accounts of all GPs has been targeted to be completed by March 2010, there will be no difficulty to load the BPL data in the system by a gradual process within the same time. Although the responsibility of selecting beneficiaries rest with the Gram Sansads but existence of a easily retrievable BPL list showing all the attributes of the family will help better selection and focused intervention for bringing those families out of poverty. The goal will be that the GPs ensure wider dissemination of information and consultation of the people for updating the list every year and helping the Gram Sansads to identify new beneficiaries out of the BPL list based on objective criteria and providing access to all the information to the common people for better transparency in decision making. Orientation of the people and the Panchayat members at large will improve to eliminate all bias and will keep following objective norms, which will be the goal to be achieved as soon as possible.

4.6 Measures for Social Security

4.6.1 Food Security and the PDS – There are a few Government programmes like the Antyoday Anna Yojana (AAY), Annapurna Yojana (AY) and the Targeted Public Distribution System. The Panchayats have been devolved the responsibility of identifying beneficiaries and keeping a watch so that the benefits reach the selected beneficiaries. The target is to ensure selection of beneficiaries without loss of time and to install an effective system of monitoring so that the desired benefits reach the people. The Panchayat Samiti and the Zilla Parishad shall intervene with necessary assistance from the officers of the Food and Supplies Department as also other officers having supervisory role if the delivery system malfunctions at any stage. The achievement in this respect will be essentially mentioned in the Annual Report of the GP and reading out the same in meetings of the Gram Sansads for wider knowledge. The list of new beneficiaries will be painted in the walls of the GP office for information of the community.

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4.6.2 Social Security Measures – There are a large number of pension schemes for which the beneficiaries are selected by the GPs and most of the schemes are administered by the Panchayats. The State Government plans to devolve administration of the remaining schemes to the Panchayats. These schemes are (i) Old Age Pension Schemes for poor people attaining 60 years of age, (ii) Widow Pension Scheme for deserving widows residing for at least 10 years within this State, (iii) Disability Pension Scheme for persons afflicted by more than 40 per cent of disability, all three schemes presently being administered by the Department of Women & Child Development and Social Welfare of the State Government, (iv) Fishermen Old Age Pension Scheme for old fishermen attaining 60 years of age administered by the Fisheries Department, (v) Farmers’ Old Age Pension Scheme for poor old farmers attaining 60 years of age administered by the Agriculture Department, (vi) Artisans’ Old Age Pension Scheme for deserving old artisans administered by the Cottage & Small Scale Industries Department and (vii) Tribals’ Old Age Pension Scheme for poor tribal people attaining 60 years of age administered by the Backward Classes Welfare Department. All these schemes are at present implemented by the respective administrative departments. On devolution of the administration of all such schemes to the Panchayat bodies, the State Government will take necessary measures for reaching fund directly to the tier responsible for making payment. The largest scheme is that the National Old Age Pension Scheme (NOAPS), which is administered by the GPs. Fund is transferred directly to the accounts of the GPs from the State through the state bank of India instead of the earlier practice of funneling the fund through the district machinery for saving time and order has also been passed for allowing the GPs to make payment of pension directly to the existing beneficiaries out of their own revenue, in case there is delay in getting fund transferred to their account by the Government. In fact the GPs have been authorized and are being encouraged to make such payment out of their own fund at the beginning of every month as a welfare measure. The initiative has just been started and the goal will be to ensure that every pensioner is paid pension by the Panchayat body, which administers the scheme, temporarily out of their own fund and to transfer the remaining schemes to the appropriate tier of the Panchayat. The Roadmap in respect of this will be that each GP becomes capable of paying the pension out of their own fund and get that amount recouped on receiving fund from the State Government.

4.6.3 Provident Fund for Landless Agricultural Labourers and Unorganised Workers – The State Government has introduced two schemes for provident fund – one for the land less agricultural labourers and the other for the unorganized labour in non-agricultural sectors. The administration of the schemes is done through the Panchayats. There is need for improving the quality of services in respect the two schemes and each GP will be required to provide the basic services for collection of monthly subscriptions, maintaining accounts and returning the matured amounts or extending the benefit on the event of death of the participating members. The target in respect of this activity is acquiring more capacity and computerizing the entire data-base for more efficient management of the programmes. This is being proposed to be achieved within the year 2010. Apart from computerization of database by 2010, the State Government shall think of augmentation of staff strength if coverage of these programmes extends beyond the expected level.

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4.6.4 Implementation of the National Family Benefit Scheme (NFBS) – The scheme is to provide one-time assistance of Rs 10,000 only to the family members of any deceased person who was living below the poverty line and was the main earner of the family and the same is administered by the Panchayats of the State. Applications from eligible beneficiaries are received by the GPs and based on their reports the same are sanctioned by the Sub Divisional Officers. In this case also there are weakness in implementation and it is apprehended that such benefit do not reach all the potential beneficiaries because of lack of knowledge about the scheme or poor delivery system. The target will be to cover each and every eligible family under the scheme and to reach the benefit within a month of receiving application by the GPs. The State Government’s role will be to establish a quick fund transfer mechanism and streamlining the procedure while the Panchayats will be responsible for generation of awareness about the scheme and to quickly process all such applications for reaching benefit within a month as stated above. The State Government shall also consider giving wider publicity to this scheme through electronic and other media. A discussion at every Gram Sansad meeting of this scheme and other social benefit schemes shall also resorted to. On the other hand, the concerned officials shall be alerted by the PRDD to avoid delay in settlement of these claims.

4.7 Planning from Below for Economic Development and Social Justice

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4.7.1 All the activities narrated in the earlier chapters require a planned approach and the target groups of people are required to participate in preparation and implementation of the plans for maximizing their gain. Under Article 243G of the Constitution of India all the three tiers of Panchayats will prepare plans for their areas. Such plans should be prepared based on the available resources, not only financial to be received from the Government and own revenue mobilized by the Panchayat but also all the available physical and natural resources and the human resources. The State Government has conducted various experiments on planning from below by the Panchayat bodies in selected areas and a simplified procedure for preparation of people-centred and participatory plan has been evolved in terms of its format for data collection and analysis in respect of six identified sectors. The process has been standardized by taking up a pilot exercise of preparing plans for six GPs of the State in five different districts during the year 2004-05. PRA exercise for mapping of natural and social resources are taken up by the people of each Gram Sansad for identifying their needs and priorities and planning for what is possible within their existing resources and identifying those which are to be taken from above the levels of GP, to be incorporated in the plans of the PS and the ZP. The concept is that the GP plan shall be collated and integrated with the PS plan which shall again be collated and integrated with the ZP plan so that all such plans shall have a converging effect on the entire development process for improving the quality of life of the people. Those will also be utilized for preparation of the District Plan as envisaged in the Constitution. The experience shows that it requires tremendous amount of sustained facilitation by dedicated experts for being able to prepare GP plans. The external facilitation also leads to acquisition of local capacities for replicating such exercises in future. Such plans are being prepared for 304 GPs of the State belonging to the poorest six districts in the current year. In other districts plans are prepared by the GPs and other tiers, which are mostly to cater to the need of the various programmes. Even those plans are not prepared on time resulting in inefficiencies. The need for preparation of holistic plans starting from the bottom level of governance has become urgent in the wake of the approach for plan preparation under the Eleventh Plan and introduction of the Backward Region Grant Fund (BRGF) for selected districts. The Development and Planning Department of this Government has also issued a circular to all the departments for preparation of plan showing a district sector component for implementation by the Panchayats and the Municipalities. It has also required integration of plans of three different tires of Panchayats. At the same time the experience shows that it is extremely difficult to take up such planning without development of adequate local capacities for there is need for sustained facilitation which is time consuming. The target will be to bring all the Panchayat bodies of the six most backward districts to take holistic planning by the year 2006-07 and to cover all the other five districts, which are to be covered under the BRGF (out of eleven districts to be covered under the BRGF six most backward districts are already included), within the year 2007-08. The other districts have more capacities to adopt the procedure in a simplified way to take up village level planning exercise and will be provided facilitation from the State level experts so that those districts also adopt detail planning procedures from the year 2007-08. However, facilitation has to continue over a longer period for improving the quality of plans and adopting various good practices to be collected from across the State for dissemination to all concerned. The role of the state government will be to build up capacities at all levels of Panchayats

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through training, handholding, showing good practices and exposure visits etc. It also proposes to make some procedural changes and changes in the timeframe to facilitate the process. It may also provide additional manpower as may be necessary. The State Government hopes to reach the desired level of performance at all tiers by 2010-11.

4.8 Developing Panchayat-Private Partnership

4.8.1 Some of the services that are required to be delivered may be better delivered in partnership with private organizations. The functioning of the RSMs, described before, is an example of such partnership. The Panchayats will be encouraged to enter in to such partnership in respect of delivery of services on a commercial basis. The principle of social marketing will be followed in all such cases where the price realization from the people will be decided in consultation with the Panchayats and they will also be engaged in monitoring quality of the services and its access by all concerned. It is neither possible nor desirable to prepare an exhaustive list of areas of such partnership. However, such partnership may be for collection of tolls, pisciculture invested tanks, construction of public toilet system, processing and marketing of milk and poultry products produced locally etc. If the system develops to some extent, the State Government may have to initiate legislative process to empower the Panchayat in this respect.

5. AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT

5.1 Introduction

5.1.1 The Panchayats have a poor resource base in terms of their own source revenue (OSR). At the same time those bodies are unable to utilize the entire potential of collection of OSR because of many factors. What the Panchayats spend is too little to make a substantial impact on the economic and social life of the people within a reasonable period indicating that they should have more resources under their command and at the same time the Panchayats are unable to fully utilize the resources available with them. Therefore, several measures are to be taken for both augmenting availability of fund with the panchayats including OSR of the Panchayats and at the same time there is need for tremendous augmentation of capacities of Panchayats and putting several systems in place for effective and faster utilization of available resources and maintaining transparency and financial accountability of a high standard. The present chapter describes the current initiatives and steps to be taken for realizing the broad objectives related to both augmentation of OSR as well as proper management and utilization of fund.

5.2 Current Status of Mobilisation of OSR

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5.2.1 Collection of own resources by the PRI remained a rather neglected area till a few years ago. Regular monitoring of collection of resources and taking measures for its improvement has resulted in growth of OSR at all tiers. Only the GP has the power to collect tax from building etc. Other sources of revenue of all the tiers are through various fees and rates in exchange of registering license and also for providing other services. All the tiers also collect non-tax revenue through various commercial activities. In spite of these initiatives per capita OSR of all the three tiers during the year 2005-06 was merely Rs. 12.61 compared to Rs 11.11 in 2004-05. The GPs, PSs and ZPs of West Bengal were able to witness a growth of 83%, 131% and 35% respectively in OSR in 2005-06 compared to the same in 2002-03. A sincere effort for improving the tax collection has been initiated. The assessment of property tax by the GPs was not very transparent and scientific so far because the assessment procedure requires huge collection of data of property of individual tax assessee. The GPs had hardly any capacity to collect and handle the huge data base and to assess property tax properly. In the year 2006, the West Bengal Panchayat (Gram Panchayat Administration) Rule, 2004 has been amended. This amendment provided one way out of this administrative problem. Under this new rule, every assessee will be asked to submit one self-declaration of properties and market values of these properties under his/her control. It has been noticed that adoption of self declaration of valuation of properties for property tax assessment could bring some success in the property tax collection for some municipal corporations during 1996-97. Introduction of self-declaration may help the GPs of West Bengal to take a leap towards adoption of a scientific tax assessment approach. The State Government is for some time motivating the GP for the prime need for augmenting its resources. It is also being impressed that if the people find that the tax realised is mostly applied for various development programmes, they will also be motivated to pay tax. Impact of the aforesaid amendment is most likely to have a salutary effect.

5.2.2 Though under Section 223 of the West Bengal Panchayat Act 1973, it is mandatory for every Gram Panchayat, Panchayat Samiti and Zilla Parishad to adopt a bye-law for enhancement of resources, yet most of the PRIs did not prepare and adopt any bye-law. In the year 2003, model bye laws were prepared by the Panchayat and RD Department and the PRIs were motivated to frame their own bye laws. The bye-laws cover basically the non-tax sources of revenue mobilization. Previously there was no provision in the rules for assessment of non-tax revenue. The amendment of the West Bengal Panchayat Act in 2006 has introduced the system of assessment for non-tax sources as well. Meanwhile, in order that full revenue potential of the Panchayats are realized a list of assets of all the Panchayats are being compiled. The task is expected to be completed by end of this financial year (2006-07). This will help to develop the resource base of PRIs. The task of filling up of both tax and non-tax assessment list will help to assess the revenue base of the GPs in the days to come. Likewise the GPs, the Panchayat Samitis and Zilla Parishads are to be advised to prepare a proper and scientific assessment document for resource augmentation in near future.

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5.3 Improving Collection of OSR

5.3.1 This process of preparation of a proper and scientific assessment list requires time, attention and will of PRI members. It has been stated earlier that resource mobilization was never a significant area of attention to the PRI members. Most important step taken for improving OSR is orientation of the members on the need for augmenting OSR and constant monitoring on the performance. The same will be taken up in the right earnest. Continuous reminders through orientation camps at district level with PRI members and officials, campaign through radio programmes, orientation through Lokashiksha Sanchar [satellite based Training and Development Communication Channel (TDCC)] are some of the ways to orient PR functionaries. More involvement of the GUS in preparation of assessment list has been advocated in the amended rule.

5.3.2 The next important aspect of resource mobilization is collection revenue for all tiers. The GP faces the highest problem in collection of tax. People, generally feel reluctant to pay tax. Some success stories in this regard suggest that people feel at ease to pay tax when the payer can relate paid tax with justified spending out of this fund. This idea is percolated to GPs for adoption. The State Government will also facilitate adoption of measures for higher collection of non-tax revenue by the GPs. The expenditures out of OSR are also being tracked which reveals that the expenditure for development purpose is still not at the required level. The amendment in 2006 lays down, inter alia, that a Gram Panchayat should utilise at least 50 per cent of OSR collection for development work in the area. This provision is bound to improve the existing scenario. More attention is needed to track the expenditure data in higher tiers also.

5.3.3 An incentive scheme has also been launched to encourage collection of OSR. Twelfth Finance Commission has recommended maintaining parity for release of grants with the resource mobilised by the respective PRI. This has been able to enliven the attention of the PRIs towards the need for resource mobilization. In the years to come, complete dissemination of this information of incentive grant will help to change the mindset of the PRI functionaries. It is expected that the OSR of GPs will increase at a compounded rate of at least 20% and that of the other tiers will increase by at least 10% over the next five years. Emphasis will be given on improving services being delivered by the Panchayats as well as creating more income generating assets in the coming years for augmenting the revenue base of the Panchayats. The District Panchayat & Rural Development Officers (DPRDO) will monitor collection of OSR by different Panchayats more closely within every district and will facilitate augmentation of OSR of all the Panchayats. A cell has already started functioning as a part of the programme for Strengthening Rural Decentralization to analyse all information related to resource mobilization and will provide special initiatives in augmenting OSR, particularly in the poor performing Panchayats.

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5.3.4 Apart from these initiatives, some more new avenues of resource mobilization may be explored such as collection of taxes on advertisement by the GP, for which provision has already been made in the West Bengal Panchayat Act. The State Government in PRDD has recently given certain suggestion to the Third State Finance Commission in this regard. It is expected that the SFC will accommodate these suggestions in their recommendations.

5.4 Improvement of Budgetary Control and Financial Management

5.4.1 Since many of the components of expenditure by the Panchayats are scheme based the practice of proper budgetary control has not received enough attention rather observance of only the scheme guidelines and maintaining scheme based fund utilization became the sole criteria. However, when the fund is credited to a Panchayat any expenditure has to be duly authorized by the competent authority and actual expenditure should be subject to budgetary control. The target will be to ensure that each Standing Committee/Upa-Samiti will exercise due budgetary control on expenditure related to its domain of activities and appropriate management practices will be followed for proper financial management. In order to achieve that there will be capacity building of all personnel associated with financial management of the Panchayats. Such capacity building will involve computerisation of all accounting and financial management related activities, putting appropriate system for monitoring financial performance in place and organizing training of all the functionaries for efficient functioning of the system. Norms and formats for essential disclosure related to financial management of the Panchayats will be developed for better accountability to the respective Sansads. The members of the Standing Committee of Finance will be oriented for completing budgetary exercises on time, ensuring better budgetary control on all expenditure and monitor financial performances including utilization of fund and avoiding time and cost over run on a regular basis. The State Government monitors the financial performances of all the ZPs every month and the ZPs have been advised to take up similar monitoring for all the PS and the GPs within their areas. Capacities of the ZPs will be appropriately augmented for undertaking that task.

5.5 Improvement of Accounting Practices and Computerisation of Accounts

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5.5.1 Better financial management demands better maintenance of accounts. New rule for maintaining double entry system of accounts for the ZP and the PS has been already introduced and a new accounts rule for the GP is going to be introduced during the year 2007-08. With introduction of double entry accounting system it has become easier to track fund received from different sources and to exercise necessary budgetary control. However, the same can be done easily only when the accounts is computerized. In order to achieve that accounts of all the ZPs have already been computerized. The same for the PS and the GPs will be completed by the year 2007-08 and 2009-10 respectively. All employees concerned will be trained on the related software, which have been already developed. The posts of Block Informatics Officer (BIO) and the Data Entry operators (DEO) have been created in each Panchayat Samiti and the same are being filled up. The work for computerization of accounts of PS and GP will start in a big way from the year 2007-08 after those posts are filled up. The accounts software now deals with only accounting of income and expenditure and a package on details of collection of OSR and related process is being developed and the same will be integrated with the accounts software from 2007-08. Norms for better control of finance by the Panchayats and sharing information with all concerned will also be developed by the year 2007-08 for improved transparency, accountability and efficiency.

5.5.2 Specific capacity building initiative after the introduction of the West Bengal Panchayat (Gram Panchayat Accounts, Audit and Budget) Rules, 2007 requires special mention here. Under this new rule the books of accounts of the Gram Panchayats shall be maintained by double entry system and the cash book of the Gram Panchayat shall be maintained in double column basis. Besides, steps have been taken to maintain records of assessment and collection of each type tax and non-tax revenue for continuous monitoring to ensure maximization of resources. The whole system requires apart from the Cash Book, maintenance of a number of books of accounts and other records. Procedure for computerization of accounts has also been incorporated in the new set of rules. As this introduces a massive change from the existing single entry – single column system, the requisite capacity building of the GP office bearers and employees becomes a prime intervention. Gram Unnayan Samiti is a newly-constituted platform for establishment of closer linkage between the Gram Panchayat and the people. Gram Unnayan Samiti has also been statutorily empowered to receive fund either from or through the Gram Panchayat or by its own initiatives and spend it for development programmes of minor scale. So, GUS requires a system of accounts and since GUS is run by a few non-officials, the system is required to be as simple as possible. Such a system of accounts maintenance has been developed and incorporated in the said rules. However, such simple process also requires capacity building especially because of their background and lack of exposure in maintenance of accounts. All such issues centering around capacity building are being addressed in the following manner: Capacity building of GP office bearers and employees on the new accounts rule, Capacity building of GP employees on principles and techniques of double entry

accounting system, Capacity building of GP office bearers and employees on GPMS software, Capacity building of GP office bearers and employees on better utilization of fund

available to them and its management,

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Capacity building of GUS functionaries on the GUS section of the new accounts rule.

As capacity building of all the GP and GUS functionaries is a mammoth task, it has been planned to utilize three complementary approaches to complete the task. These are – (a) Direct Classroom Training with question-answer sessions, (b) Training through TDCC and (c) Hand-holding support to the select GPs. These capacity building programmes will be supplemented by handbooks in vernacular written in simple and lucid language with illustrations and a question-answer chapter. Such handbooks shall be widely distributed among the Gram Panchayats and Gram Unnayan Samitis.

5.6 Internal Audit of Panchayat Accounts

5.6.1 Accounts of all the tiers of Panchayats are being audited at present by the Comptroller and Auditor General of India. There is need for follow up on the audit reports for improvement of the system. The same is lacking mainly because of large numbers of vacancies in the cadre of the Panchayat Accounts and Audit Officer (PAAO), Samiti Accounts and Audit Officer (SAAO) and the Parishad Accounts and Audit Officers. The effort will be to fill up all the posts, for which necessary steps have been taken and to train them up appropriately for accomplishing the task assigned on them. For monitoring the whole arrangement the Panchayat & RD Directorate will be strengthened and an Audit & Accounts Cell will be established for proper monitoring, follow up and training of all personnel concerned on accounts and related matters of financial management with the help of the SIPRD and the ETCs as well as other professional training institutes. Since this is a continuous process, no timeframe is suggested in the Matrix. The State Government however expects that the desired level shall be achieved by 2010-11.

5.7 Social Audit

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5.7.1 If a reliable system of social audit is built up, it will have multi-dimensional salutary effects. It will bring transparency in the management of fund and shall perforce improve the quality of accounting system. It will also to a large extent, eliminate misutilisation or underutilisation of fund. The system will also bring in its wake more meaningful sensitisation of the common people, increase their awareness and will encourage their closer participation in the development process. A system has already been built where the Gram Panchayat will place the annual plan, budget, half-yearly and annual income and expenditure statement and the audit reports and action-taken reports following internal audit as also annual audit by the A.G., West Bengal, in the meeting of the Gram Sansad and the Gram Sabha for scrutiny, debate and recommendation. All such documents are widely circulated at draft as also final stage for information of the general people. Besides, any person or organization may have access to all such records at any stage for their examination. Production and discussion of all such documents are also available to the members of the Block Sansad and the Zilla Sansad. The idea is to bring the primary stake-holders in the arena so that they may evaluate the proposals/actions and may contribute towards their enrichment. Measures will be taken for improvement of the system so that more informed and meaningful participation of the people may be ensured. Apart from the issues relating to accounting and fund management, quality of implemented or ongoing programmes/schemes shall also be discussed in all such fora. Efforts shall also be taken to enthuse the NGO’s and CBO’s operating in the area so that they may contribute to dissemination of information and may enable the people to contribute in the discussions.

5.8 Scrutiny of Panchayat Accounts by the Legislature

5.8.1 There was no formal arrangement for scrutiny of the accounts of the Panchayats by the State legislature. Necessary change in the W.B. Panchayat Act has already been made very recently for allowing formal scrutiny of the Accounts of the Panchayats based on the report of the Comptroller & the Accountant General of India. That will improve the accountability of the Panchayats as well as more scrutiny of Panchayat Accountants will help in improvement of the system.

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5.9 Capacity Building for Better Management of Fund

5.9.1 The State Government will take measures to build capacities of the Panchayats for better management of fund. That will entail both institutional measures for improving the system of fund management as well as training of individual managing fund on behalf of the Panchayats. One important aspect of better fund management is faster flow of fund and related information. This has been already attempted by introducing a system of direct fund transfer to respective accounts of the Panchayat bodies instead of routing the same down the line through all the tiers. For that purpose all the Panchayats have opened a fund transfer account with the SBI and funds are being transferred by passing instruction to the SBI at Kolkata. The process of informing the Panchayats and obtaining confirmation of receipt of fund is being improved both at the end of SBI as well as by the State Government. For faster flow of information all the GPs will be provided with fax machines, which will also help their reporting system.

6. FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES

6.1 Introduction

6.1.1 More devolution of functions and availability of more fund with the Panchayats are resulting in growing demand for dedicated and capable manpower with those bodies. More work is gravitating towards the lower tier and the GPs are facing more problem of capacity mismatch. Creation of adequate posts will attenuate the problem but obtaining their services in GPs located in remote and difficult areas has been a problem. Those with higher capacities are reluctant to work in remote and underdeveloped areas, which demands availability of adequate and capable manpower. Even outsourcing of such manpower in difficult areas is a standing problem. The other alternative is to gradually build up capacities of the existing manpower and those who are willing to work in lower tiers. There is also need for introduction of better establishment related practices starting from recruitment and framing related rules to proper administration of the available manpower and maintaining their moral standards and efficiency for proper functioning of the Panchayat bodies. The present chapter describes all those matters in terms of current situations and what is to be achieved within suitable time frame.

6.2 Employees of the Panchayats

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6.2.1 All the employees of the GP, excepting those who belong to group D cadre, now constitute district level cadres of Panchayat employees. There are four such cadres comprising the Executive Assistants, Secretaries, Nirman Sahayaks and the Assistants of the GP. This has facilitated management including recruitment and deployment of those employees. All the employees are appointed by the Executive Officer of the Zilla Parishad. Similar arrangement has been made for the employees of the PS and they constitute different cadres of Engineers, Accountants, Cashiers, BIOs, DEOs and clerical assistants. At the ZP level several posts have been created recently and steps will be taken to form a state level cadre for the very senior own employees of the ZPs. The modified system of recruitment has been introduced recently. Recruitment to the newly created posts is going on. After some time, a study will be made to assess further requirement of own manpower of all the tiers of the Panchayats. The study will also identify areas where better services can be provided by engaging para-professional on contract and to work out proper arrangement between the service providers and the Panchayats. The remuneration of such professionals will be either directly collected by the professional for rendering services or the same will be partly or fully compensated by the Panchayats against charges to be collected by them for providing services. At present services of some of the government employees are utilized by the Panchayats though salary is paid by respective departments. In some cases services are formally placed with the Panchayat bodies by the Panchayat & RD Department and salary is paid by the Panchayats. The W.B. Panchayat Act has been amended recently to allow other Government Departments to place their employees with the Panchayats. The Roadmap will be to ensure that the Panchayats at every level get the services of own employees, formally deputed employees, government employees whose services have been placed for being used by the Panchayats but salary continues to be given by the departments concerned as well as professional service providers or trained para-professionals to bear the work load of the Panchayat bodies. All such possible measures have been proposed to take care of the diverse needs and keeping in mind the existing practices and difficulties on the ground. However, the goal will be that the Panchayats have adequate functionaries to work for them with reasonable accountability and not to merely augment the roll strength of the own employees of the Panchayats.

6.2.2 The reorganized recruitment system as mentioned in the preceding paragraph has resulted in a pronounced role of the district level Panchayat, i.e., Zilla Parishad in selection of most of the Panchayat employees within the district at the initial stage of recruitment as also at the time of promotion. The system improves quality of recruitment, promotion and administrative control over them ensuring better service. It has also opened up promotional opportunities for the employees fostering their keener interest in rendering quality service. Besides, the scope for regular transfer of the employees belonging to superior cadres will ensure cleaner and more transparent and responsive administration. The updated rules regulating discipline and control of the employees also confers all necessary powers to the Panchayat bodies on curbing the role of the government officers as was prevalent earlier. Such control is expected to enhance the allegiance of the employees towards not only the Panchayat bodies but also towards the ideals and goals of the Panchayat system. It is felt that the overhauled process will lead to further development of better and more effective and pro-people delivery mechanism in the Panchayat administration.

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6.3 Capacity Building of Employees & Other Functionaries of Panchayats

6.3.1 The term capacity building is being used in a broader sense which covers both training for individual development, building of institutional capacities as well as other enabling measures for fully utilizing the potential of the employees and elected functionaries associated with the Panchayats. The following measures will be taken for building up capacities of the various functionaries associated with functioning of the Panchayats. The steps mentioned below will be completed by the year 2007-08 unless mentioned otherwise.(a) At present arrangement of training of the employees working for the Panchayats is

not adequate. There is need for ensuring both induction level and in-service training of all the employees working for the Panchayats. A plan will be drawn up by March, 2007 to ensure that from the year 2007-08 all new recruits are trained on the basic skills required at that level as well as to orient them for working as an employee of the local bodies, within three months from their joining the services. The employees working at the GP level will be trained by the ETCs and the employees of the PS will be trained by the SIPRD. The employees of the ZPs will be trained by both the SIPRD as well as other state and national level institutes. In service training for upgrading their skill will be organized as and when felt necessary and in any case all of them will be given reorientation once in every five years. A system will be introduced for tracking the trainings imparted to the functionaries by the district offices to plan for their training.

(b) For the elected Panchayats functionaries basic training will be imparted to all the members elected for the first time within six months of their election using the distance learning mode as well as class room based training. Suitable arrangement will be built up before the next Panchayat election is held in the month of May, 2008. Important office bearers like Sabhapatis, Pradhans will be provided appropriate training within six months and others like Chairpersons of the Standing Committees/Upa-Samitis will be trained within one year of being elected. ETCs will be responsible for providing such training for the GP and most of the PS level functionaries. The SIPRD will be responsible for training the functionaries of the ZP and the Sabhapatis of the PS.

(c) Appropriate manuals will be developed for functioning of each tier of Panchayats. A lot of training materials, both in print and electronic media, have been prepared for training of all those persons. All those will be reviewed to identify gap in training materials, particularly in the context of distant learning using the recently installed satellite based facilities. Training on using computer will be a major element. Other technical aspects like maintaining accounts and rural engineering and promotion of livelihood opportunities will get due importance while designing the training programmes.

(d) Apart from classroom based training for the Panchayat functionaries more emphasis will be given on peer learning from exposure visits and sharing of best practices on good governance. Documentation of best practices in various fields and increasing access to those materials will be given due emphasis.

(e) Training cells will be established in all the ZPs so that there are dedicated persons in each district to look after training need of the elected functionaries and tying up with the ETCs and SIPRD for meeting their training requirement.

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(f) Suitable training infrastructure will be developed at the district headquarter and in other locations in case of bigger districts where training could be organized on a residential basis with the support of the training institutions. The infrastructure of the WBCADC will be developed further for providing livelihood related training for the Panchayat functionaries of the district. In order to provide training locally a resource pool of trainers in various disciplines will be developed in each district.

(g) There will also be need for organizing non-residential training, particularly for the representatives of the GP and the PS. For that purpose suitable training infrastructures will be created, if the same do not exist at present, in each Block office. The infrastructure for distant learning using the satellite channel will be utilized for that purpose. Resource persons will be developed for each Block to facilitate such distant learning. One class room for providing training will be developed in each GP and the same will be completed by the year 2008-09.

(h) In spite of all efforts adoption of correct procedures related to financial disciplines, good governance and proper utilization of scheme specific fund and untied fund lags far behind what is desired. Experience shows that hand holding training by experts, particularly to the GP level functionaries, can increase their efficiency substantially. Teams of properly oriented retired persons have been formed for that purpose for assisting the functionaries in selected GPs of the more backward districts. The same will be scaled up for providing support to more number of GPs in all the districts, which are not performing at par with others.

(i) Along with expansion of capacities of the functionaries there will be need for wider dissemination of knowledge about functioning of Panchayats for enabling the citizen to participate more effectively. The same will be improved by continuing the interactive radio programme, which is held for one hour every week with the support of the All India Radio as well as setting up Citizen Service Centres (CSCs) described below.

(j) The CSCs are proposed to be set up in the villages for every 6,000 population for easy access to information as well as delivering electronic services to the people in the rural areas as per the National E-Governance Plan (NEGP). In West Bengal it has been decided that CSCs will be located, in the first phase, in every GP and PS. The CSCs will be also utilized for dissemination of information related to functioning of the Panchayats to help better participation of the citizen in affairs of the Panchayats. The progress of the work will depend on the progress of establishment of CSCs under the NEGP and timeframe for completing the task will be set up in due course. A few pilot CSCs have been made operational to draw lessons before rolling out the same to the entire state.

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6.4 Strengthening SIPRD, the ETCs

6.4.1 In order to build up capacities of the Panchayats the SIPRD and the ETCs will be required to play a more proactive role. Those institutions will be strengthened to meet the demand of training as mentioned above. What are the need of the SIPRD & the ETCs? The ETCs were not functioning well till recently. Those are being revamped now and all the four sanctioned ETCs as well as the facility at Rajarhat will be developed so as to start organizing courses within the current financial year. All the ETCs, including Rajarhat will be provided with facilities for providing training on computers and computer laboratories will be set up in all those places. Effort will be made, if adequate resources are available, to develop a specialized training institute to deal with training requirement of the SHGs.

6.5 Use of Information and Communication Technology for Efficient Functioning

6.5.1 Appropriate use of Information and Communication Technology (ICT) has become an essential need for efficient functioning of the Panchayat bodies. Steps to be taken for computerization of accounts have been already described earlier. Suitable software packages for other activities of the Panchayats will be developed for being adopted by those bodies. The areas to be given priority will be management practices relating to proper utilization of available resources, revenue mobilization, monitoring progress of works undertaken by particularly the ZP and the PS and adoption of suitable management practices for avoiding cost and time over run, sharing information to the citizen through CSCs by the GP and PS and through own web site by the ZPs, adoption of standard engineering practices, better reporting of performances including web-based reporting. Connectivity up to the PS level will be achieved by the year 2007-08 through optical fibre linked WEBSWAN. All the PSs will be brought under intra-mail by the year 2007-08 with the help of the WEBSWAN. For the GPs connectivity will be established by using the facilities to be provided by the service providers of the CSCs and those being located in the GP offices the facility of the CSC will be utilized by the GPs to exchange data with the PS and other tiers of government. E-mail facilities will be utilized wherever available. For better exchange of information and easier and timely collection of reports from the GPs all those offices will be provided faxing facilities so that even without e-mail connectivity important circulars could be disseminated very fast and the GPs will be able to send their reports without sending messenger, which is costly and slow.

6.6 Strengthening the Directorate Office

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6.6.1 The directorate is required to be strengthened for more proactive facilitation of the institutional aspects of the Panchayats. Manpower available with the directorate will be restructured for that purpose. One Audit & Accounts cell, one Fund Management cell, one Resource Mobilization cell, one Training cell and one Inspection cell will be established in the directorate to give special emphasis in those areas. The responsibility of the first cell will be to take follow up measures of the audit reports of particularly the GP and the PS. The Fund Management cell will be responsible for transfer of fund to the Panchayats directly through respective bank accounts maintained with the SBI. For those branches having internet facilities fund will be transferred directly to the Panchayats using on-line banking facilities by this cell. However, fund under some of the centrally sponsored schemes will be transferred by the respective programme wing as before. The Training cell will coordinate with the training cells proposed to be established in all districts for training of all the Panchayat functionaries and the employees, particularly of the Gram Panchayats. The Inspection cell will remain responsible for prompt enquiry and follow up actions in respect of serious allegations of violation of rules and financial impropriety.

7. HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE PANCHAYATS

7.1 Introduction

7.1.1 In terms of Article 243G of the Constitution of India, every Panchayat has been recognized as an institution of self-government with power and authority to prepare development plans for economic development and social justice and implement them. In the perspective of such constitutional mandate, Panchayat bodies can no longer be treated as mere agencies of the state government to execute its plans and programmes. They have to be perceived as the government at the third stratum with a clear functional domain of their own. If such an exclusive functional domain for the Panchayats is carved out in conformity with the spirit of the Constitution, then many State or Central laws on different subjects now under operation in the state will have to be amended for several reasons. Firstly, some of such laws come in conflict with the functional domain of Panchayats and restrict their autonomous status. Secondly, in some cases parallel bodies created by some statutes impinges upon the legitimate functions of local bodies. Lastly, panchayat’s direct participation in functions specified in some of the subject laws would contribute towards fulfilling the objectives of such laws. Also many acts were framed before introduction of the Panchayat system in its present form and therefore require amendments to make functioning of the Panchayats harmonious with provisions of the fact.

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7.1.2 In the above background, various statutes at present in force in West Bengal have been examined to find out whether the powers to be exercised, the functions to be performed and the duties to be discharged under such statutes have any bearing upon the Constitutional responsibilities vested in the Panchayat institutions and if so, how Panchayat bodies may be conferred appropriate rights, functions or duties so that they may perform the functions entrusted upon them with full justice to the constitutional obligation and to the aspirations of the people. For the aforesaid purpose, 44 Acts have been scrutinized out of which 6 are Central Acts and the other 38 are State Acts. These acts are either regulatory in nature or contain provisions having implications on local development. There is a group of legislations dwelling on regulatory functions which contain description of certain offences, penal actions for such offences and the enforcing machinery guarding against the offences. No role for the Panchayats is envisioned in such legislations. A case in point is the Rice-Milling Industry (Regulation) (West Bengal Amendment) Act, 1974. However, there are a few regulatory Acts which safeguard the interest of the general public and calls for support and co-operation of the people for their success like the Bengal Tanks Improvement Act, 1939. In such cases, it has been proposed that the Panchayat bodies should be vested with certain powers and authority without impairing the authority of the executive machinery so that both the agencies may work in tandem towards the common goal. There are some other regulatory Acts such as the Cattle Trespass Act, 1871, which are best administered by the Panchayats at the grass root level having very close touch with the people and the bureaucratic machinery may be disengaged from their administration.

7.1.3 With respect to the Acts on development matters like the West Bengal Livestock Improvement Act, 1954, it is advisable that the Panchayat institution should play some definite role in enforcing the provisions, while the executive machinery should have its role reduced. The technical and other supports requiring specialized knowledge may however continue to be provided by such machinery. Proposals have been given accordingly. Again, an Act like the West Bengal Khadi and Village Industries Board Act, 1959 lays down the procedure for constituting an apparatus for administration of economic schemes. Within the general framework of such schemes, there are certain matters where involvement of Panchayats will be beneficial for fulfilling the objectives of the Act. One such matter, for example, is selection of the beneficiaries on priority basis. Hence, the local bodies should also be a part of the machinery for supervision and monitoring of the programme envisaged in the Act.

7.2 Acts for which Amendments are proposed

7.2.1 Within the framework of the aforesaid principles, proposals for amendment of 33 Acts (4 Central Acts and 29 State Acts) will be considered by the state government. It requires in depth analysis of those acts by the department concerned and wider consultation before making any amendment. It is difficult to state in the Roadmap what amendments will take place and by when. However the proposals mentioned below will be taken up for consideration as soon as possible by the departments concerned.

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7.2.2 The Bengal Ferries Act, 1885 (Bengal Act I of 1885) – Under this Act control and superintendence of all public ferries within the district are vested in the District Magistrate. However, in terms of section 35 (inserted by way of amendment at a later stage), it is lawful for the State Government to order that a public ferry shall be managed by a local authority having jurisdiction when such local authority shall exercise all the powers of the District Magistrate. Meanwhile, in pursuance of the policy adopted by the State Government in this behalf, control and management of practically all public ferries within the State have been transferred to the Panchayat bodies of different tiers depending on the importance and the volume of traffic. Now, under the present scenario, section 35 providing the local body may exercise power of the District Magistrate appears inadequate. In the fitness of things, the Panchayat may now be directly empowered to exercise control and supervision over the ferries, which are at present under their management. With this objective in view it is proposed that – (a) sections 7, 8, 9, 11, 14, 15, 16, 18, 19, 21 and 33 may be amended to appropriately

empower the Panchayat bodies for regulating the ferry service in their respective areas;

(b) sections 26 and 32 may be amended to make provisions for the Judiciary to act a appellate authority and ;

(c) section 35 becoming redundant may be omitted.

7.2.3 The Cess Act, 1880 (Bengal Act 9 of 1980) – The object of this Act is to tap resources for the purpose of construction and maintenance as also related supportive and ancillary jobs of roads and other means of communications and other public works in the district. The Act lays down the methodology for valuation of land, rates for road cess and public works cess, administrative machinery for their collection, channel for utilisation of fund and penal provisions for breach of the law. It may be mentioned that most of the provisions are procedural, establishment-related and regulatory although one or two provisions deal with the role of the Zilla Parishad. When the Act was initially codified, the local bodies were non-existent either in concept or in statute. Naturally, the entire task of assessment, collection and utilisation of cess fund was left with the government machinery. Later by an amendment Act of 1963, utilisation of cess fund was made the responsibility of the Zilla Parishad. However, even now certain amendments are necessary to update the Act. For this purpose (a) Sections 4, 91 and 109 of the Act need be amended to bring the present Panchayat

set up within the fold of this Act. (b) Besides the entire corpus of funds after deduction of collection expenses is at

present allocated to the Zilla Parishad. Provision should be made for apportionment of the amount with the Panchayat Samitis within the district.

(c) Since commencement of this enactment the entire land tenure system as also the socio political environment have undergone major changes. Various references like intermediary and subsidiary rights on land in the Act are now outdated. It may therefore be more appropriate to introduce a new act instead and repeal the existing one.

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7.2.4 Bengal Embankment Act, 1882 (Bengal Act II of 1882) and The Embankment Act, 1873 (6 of 1873) – These enactments were brought in force for the construction, maintenance and management of embankments and watercourses in the State. The Act of 1873 was repealed in part and amended by the Act of 1882. Although the Act of 1882 is in force on being adapted last by the Adaptation of Laws Order, 1950 (Constitution Order No. 4 dated January 26, 1950), apparently it has since become non-functional. There are copious references of intermediary and subsidiary right on land, which have since been abolished. Besides, the role of the collector is pivotal in this Act although the offices of the Irrigation and waterways Department are in these days discharging all responsibilities relating to construction, maintenance and management of the embankments and the watercourses. Apart from the role of general supervision, the District Magistrate and Collector steps in only when relief work or law and order issues come to the surface. It is suggested that (a) Unless the issue relating to this Act are already covered by another or more than

one enactment commencing on later dates, it is advisable to frame a new Act. Various issues which are no longer relevant may then be dispensed with and certain new provisions in conformity with the concept and policy of these days may be incorporated in the new Act. Since the geo-physical condition of the State, lateral flow of surface and sub-surface water, ground water level and such other things have undergone various changes, the schedules annexed to the Act may also be modified.

(b) It may also be considered whether the role of the collector shall be substituted by the similar role of the Zilla Parishad. This body arguably will be more suitable to administer this act provided it gets the available technical support/machinery and the required fund.

7.2.5 Canal Act, 1864 (Bengal Act 5 of 1864) – This Act was framed to amend and consolidate the law relating to the collection of tolls on canals and other lines of navigation and for the construction and improvement of lines of navigation within the State. The Act was repealed in part in 1873 and 1903 and was amended in 1981. The Act empowers the State Government to extend the provisions of this Act to any navigable channel by notification and may fix the rates at which tolls may be levied for any vessel entering or passing along the said channel. The State Government is also empowered to appoint any person (the word includes any company, association or body of persons, whether incorporated or not) for administration of any provision of this Act. The State Government shall also have power to authorise a person to widen or deepen any channel or close or take any action to improve it or remove any obstruction or encroachment to the channel. It is neither practicable nor desirable for the State Government to control and manage or collect tolls in respect of all channels within the State. The Act itself provides for delegation of all such responsibilities by the State Government. For this reason,

(a) It is advisable to vest the powers and responsibilities under the Act to the Zilla Parishad. For this purpose Sections 3, 8 and 13 may be amended so that the state government and the Zilla Parishad may share the responsibilities for administration of this act.

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7.2.6 The Bengal General Clauses Act, 1899 (Bengal Act 1 of 1899) – In section 3, in clause(23) defining the word ‘Local authority’, the word ‘District Board’ may be substituted by the words ‘Panchayat as defined in clause (15b) of section 2 of the West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973).

7.2.7 The Bengal Money-Lenders Act, 1940 (Bengal Act X of 1940) – Despite perceptible growth of banks and other financial institutions in rural areas, it is a sad reality that the ordinary village folks depend willy-nilly on private money-lenders. It is not difficult to visualise that there are some unscrupulous money-lenders and the illiterate semiliterate and gullible persons are taken by them for a ride. Considering this scenario, representatives elected in Panchayat bodies may be assigned some role for assisting the people in relation to this Act. In this connection, it is proposed that sections 6 (A) and 14 may be suitably amended to empower the appropriate Panchayat functionary to inspect and control the functions of the money lenders and also to debar the Panchayat functionaries themselves to act as moneylenders.

7.2.8 The West Bengal Public Land (Eviction of Unauthorised Occupants) Act, 1962 (West Ben. Act XIII of 1962) – The Act centres around empowerment of the collector to order eviction of an unauthorised occupant from any public land, which includes land under a local body (section 4), after serving a notice (section 3) if necessary on using force (section 5). Panchayat Samiti, Zilla Parishad and the Municipal bodies may be given some authority under this Act at least in respect of lands under their control.

7.2.9 West Bengal Land Reforms Act, 1955 – This is an Act to codify afresh, under the present context, the laws relating to land tenure system, right and obligations of the land holders, maintenance of records of land holdings, land revenue system and certain laws relating to land reforms. Since the Act lays major emphasis on various procedural matters relating to rayati right, change of character of land, land revenue, designs for maintenance of record of rights, the provisions are rigidly systematised, methodology-oriented and somewhat technical in nature. There are, however, certain provisions in the Act which have some social impact with a human angle where closer participation of the Panchayat bodies may be considered desirable. On this view

(a) It is proposed that sections 4(2A), 14C(1), 21D, [entailing amendment of rule 141(1) (a) (ii) of the West Bengal Land reforms Rule 1965], Chapter V (Sections 39 to 48A), and 49(1) and (2) [entailing amendments of Land Reforms Rules 1965] are amended so as to assign definite roles to the Gram Panchayats and the Panchayat Samitis in the matters of distribution of khas and vested lands, changes of characters of land, according permission for transfer of land belonging to the scheduled tribes persons, consolidation of land holdings and cooperative farming.

(b) Besides, Block level Land Reforms advisory committees may be dissolved and all its functions may be assigned to the Bon O Bhumi Sanskar Sthyaee Samiti (Standing committee on Forest and Land Reforms) of the Panchayat Samitis on enlarging its composition if necessary. Annulment of the settlement of Khas /vested land should also be the responsibility of this body by changing the present system where the appointed bureaucracy has been made entirely responsible.

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7.2.10 West Bengal Primary Education Act, 1973 – Primary education in general is administered by the West Bengal Board of Primary Education and the District Primary Education Council constituted under the provisions of the West Bengal Primary Education Act, 1973. The responsibility of guiding, supervising and controlling the primary education in the State including determining the curriculum, approving or preparing text books, mode of teaching, training of teachers, conducting examination etc. rests with the State Council. Day-to-day management of primary schools is the responsibility of the District Council and this includes appointment and transfer of teachers, opening of new schools or expansion of existing schools, awareness building for enrollment, development of infrastructure etc. Primary education is traditionally a local government subject. This is one of the important functions under Eleventh Schedule of the Constitution reserved for the Panchayats. In many states, this function has been given to the panchayats. Even in West Bengal, Panchayats have been given major responsibility from for implementation of Shishu Shikshs Karmasuchi. But when it came to the subject of managing the mainstream primary schools, District Councils of Primary Education were created under the West Bengal Primary Education Act. By creating this parallel body, this Act has made an unnecessary intrusion into the functional domain of the Panchayats. It is accordingly necessary to make major amendments of the Primary Education Act of West Bengal. The objective of such amendment should be to abolish District Primary Education Councils and transfer all their powers and functions to the Panchayat system. While the major responsibility of the existing functions of the District Primary Education Council concerning non academic matters will have to be borne by the Zilla Parishad, some of the functions may be decentralised among the Panchayat Samiti and Gram Panchayat. For efficient management of primary schools such decentralisation will be necessary. In fact, the Panchayat bodies have already been assigned certain responsibilities (as distinguished from authority) in these matters. In view of the above,

(a) Chapters III to VIII of the Primary Education Act containing sections 19 to 74 need to be amended. Consequent upon the abolition of the District Council, needs may arise for amendments in some other sections also.

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7.2.11 The West Bengal Animal Slaughter Control Act, 1950 (West Bengal Act XXII of 1950) – This enactment aims at controlling and regulating animal slaughter in the State of West Bengal. Section 4 read with sub clause (b) of clause (iii) of section 3 shows that the Sabhapati (which expression includes any person nominated by him) of the Panchayat Samiti is a signatory of the certificate declaring an animal fit for slaughter (the other signatory is Veterinary Surgeon). Again under the authority of section 6, the Sabhapati is empowered to inspect any premises to prevent violation of any provision of this Act. In the circumstances no further empowerment of the Panchayat bodies or any of their functionaries may be necessary. There is, however, one issue that merits consideration. Although the Act has not clearly stipulated, the authority for nomination under clause (iii) (b) of section 3 should not advisedly be exercised by the Sabhapati individually since a Panchayat should be run on the basis of collective wisdom. There is one Matsya O Pranisampad Vikash Sthayee Samiti under Panchayat Samiti. (Standing Committee on fishery and animal resource development). This Sthayee Samiti may be empowered to nominate such person, if any, from among the elected members including the Karmadhyaksha of the Panchayat Samiti or any of its officers. Such explicit provision may be made either in the Act itself or in the rules framed under Section 14 of the Act.

7.2.12 The Bengal Diseases of Animals Act, 1944 (Bengal Act of 1944) – This piece of legislation had been framed to prevent the spread of diseases among animals. Under the Act, specified diseases and some other diseases as may be notified by the State Government from time to time have been declared as contagious diseases. There are provisions for identification and segregation of the diseased animal(s), declaration of infected areas, imposition of certain restrictions to prevent spread of disease and some penal provisions. It need not be mentioned that since the time of original enactment in 1944, the situation has undergone vast changes. The administrative machinery has been transformed to a considerable extent. The Panchayats and Municipalities have been recognised by the constitution as the institutions of self-government. Communication facilities have vastly improved rendering total segregation very difficult. Also, People are more educated and conscious and medical Science has also advanced tremendously. Notwithstanding all such changes, the Act has not totally lost its relevance especially in the context of any outbreak of epidemic. But it requires adjusting itself with the new realities. In the circumstances, either a new Act may be drawn up or this Act may be amended to make it more effective. Accordingly,

(a) It is felt that in consonance with the aforesaid observations especially sections 2(6), 3, 5, 6, 10 and 16 require major changes. A new provision may also be inserted accentuating the role of the Panchayat Samiti on outbreak of an epidemic.

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7.2.13 The West Bengal Livestock Improvement Act, 1954 (West Ben. Act XXXIV of 1954) – This Act has been framed for the purpose of improvement of livestock in the state. Provisions have been made in the Act to declare an area as specified area, to identify and mark certain bulls as approved bulls and to disallow continued stay or import of any other bull in that area. There are also provisions for enforcement of statutory directions and for punishment for violation of lawful direction. Since this enactment deals with functions based on specialised knowledge and prevention of certain actions, there is very little scope for involvement of the Panchayat or any other representative bodies. There is however one provision which may be taken up for consideration. Sub-section(1) of section 5 empowers the State Government to declare, under certain circumstances an area as specified area. It is proposed that in this provision a definite role of the Zilla Parishad may be introduced.

7.2.14 The Bengal Tanks Improvement Act, 1939 (Bengal Act XV of 1939) – This statute had been formed for the purpose of improvement of tank for its meaningful utilisation for irrigation. It empowers the State Government to requisition derelict tank and to improve it either with the help of its district machinery or through any other local body or person. Although there are at present other statutes and projects under which a derelict tank/ water body may be reclaimed and fruitfully utilised, this Act has not yet outlived its efficacy. It is however true that the socio-economic scenario at the time of its enactment in 1939 is widely divergent from that obtaining today and some conceptual and functional changes need be incorporated in the existing provisions. In order to make the statute more people-oriented and dynamic, the Panchayat institutions may be empowered and made proactive, role of bureaucracy may be eliminated, pisciculture may be accepted as one of the objectives of the programme and agriculture may be taken to encompass orchard cultivation as well. With these views

(a) Sections 2(a1), (1), (2), (7) and section 6 may be suitably amended. Besides sections 27 may be redrafted to make the Zilla Parishad and the State Government to act as the appellate authorities as may be appropriate. Section 34 may also be amended to enable the Zilla Parishad to delegate its authority to other Panchayat bodies and/or the officers.

7.2.15 West Bengal Inland Fisheries Act, 1984 (West Bengal Act XXV of 1984) – Successful implementation of any programme for development of inland fisheries calls for various technical inputs by the persons having specialized knowledge on one hand and unstinted support and participation of the people on the other. Such popular support and participation can be ensured through the representatives in the Panchayat bodies constituted in the locality. It is therefore proposed that the Panchayat Samiti functionaries be involved in the task of implementation of the provisions of this Act. On these view

(a) it is proposed that Sections 8,9,14, 17A, 17B and 17C may be suitably amended to bring in the role of Panchayat Samiti and the Gram Panchayat in the functions envisaged in development of Inland Fisheries.

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7.2.16 Indian Forest Act, 1927 (16 of 1927) – This is an Act to consolidate the laws relating to forest, protection of its flora and fauna and for maintenance of ecological balance. The Act empowers the State Government to notify the forest as reserved forestry, village forest or protected forest as may be deemed appropriate. It enunciates powers and authority of the State Government vis-à-vis private persons in relation to forest, codes for control of timbers and other forest produces and regarding imposition of various fines and penalties for breach of any law. While importance of such a piece of legislation for the benefit of the community at large cannot be trivialised, it is necessary to ensure that the human aspect is not lost sight of while framing its provisions. There is no denial that the people living in the fringe of the forest (majority of them also live in the fringe of the society) are for generations depending on forest not only for their livelihood but for their cultural, religious and social life. Their close affinity with the forest is such that while they enjoy usufruct, they are psychologically and customarily attuned to desist themselves from damaging any flora or fauna or bring any ecological imbalance in the forest. Based on this, it may be concluded that the marginalised people in the neighbourhood of a forest as well as the Panchayats representing them have considerable stake in the management and control of the forest and its problems. So it is suggested that apart from certain amendments in the Act effecting involvement of the Panchayats in the people oriented issues, local inhabitants may be allowed some space for enjoyment of a few minor benefits from the forest without causing any damage to the forest. With such consideration,

(a) Sections 10(5), 16, 25, 28, 29, 30, 31, 35 and 36 may be amended in order to allow the people in and around the forest to have access to certain forest produces without any damage to the forest. The proposed amendment shall also allow the Panchayat Samiti and the Gram Panchayats to effectively play their expected roles, enable the forest people to strengthen their livelihood opportunities and shall contain their sense of deprivation and animosity for loosing their age old traditional rights. On ultimate analysis such measures will improve the forest wealth.

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7.2.17 Forest (Conservation) Act, 1980 – This Act is in reality supplemental to the Indian Forests Act, 1927. It has total five sections among which there are only three operative sections. There is only one issue which may be mentioned its relation to this Act. Section 3 provides for constitution of an Advisory Committee to advise on grant of approval under section 2 and on other matters on conservation of forest. Now, forest area and the rural areas under the Panchayat system are interrelated and inter-dependent. So, it is proposed that this Committee should have members with insights of forest-Panchayat interface and expectations and problems of the people.

7.2.18 The West Bengal Private Forests Act, 1948 (West Ben. Act 14 of 1948) – This Act provides for conservation of forests and for afforestation of wastelands in the State when such forests and wastelands are not under the ownership of the Government. Apparently, private forests and vast tracts of wastelands can be visualised normally under the intermediary rights on land. After abolition of intermediary rights, such forests and lands are likely to have been vested and so application of this Act is very limited. Albeit this limited role section 7 may be amended to enable the Gram panchayat and Panchayat Samitis to control and maintain small forests with their rights and obligations clearly defined. Sections 8, 9 and 10 may be amended to delineate the role of Panchayats. Section 11 may also be amended so that the rights and obligations of different parties in the matter of social forestry, strip plantation and similar other ventures undertaken by the Panchayats in recent times may be clearly spelt out.

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7.2.19 The West Bengal Wild Life Preservation Act, 1959 (West Ben. Act, XXV of 1959) – Any venture for preservation of wild life cannot reach its desired goal without active participation of people residing in the neighborhood. Officials of the Forest Department are aware of this necessity and have taken up multifaceted programme to secure the cooperation of people particularly of those whose livelihood as also their social and cultural norms are interwoven with the flora and fauna in the forest. Accordingly, the Panchayats in the vicinity may play a significant role in the preservation of wild life by, among other things, enlisting the cooperation of local people. With this object in view, it is proposed that sections 8(2), 11, 12 and 15 may be sutably amended to define the role of Panchayat Samiti [which includes the role of Bon o Bhumi Sanskar Sthayee Samiti (Standing committee on Forest and Land reforms)] to ensure participation of the Panchayat Samiti in the matters involving the local people for safeguarding their interests.

7.2.20 The Bengal Public Parks Act, 1904 (Bengal Act II of 1904) – The Act contains provisions, for declaration by the State Government of a new public park in addition to those enumerated in the schedule appended to the Act and for superintendence and management of such park. The enactment envisages, although not specifically stated, establishment of such park within urban areas. Under the rules framed in terms of West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973), the Gram Panchayat is empowered to establish parks within its area. Since, necessity of park in some rural area cannot be ignored. Considering the said position, it is proposed that a new provision may be inserted after section 3 (or any other suitable place) providing that in the rural area, any such park declared as such shall be transferred under the control and management of the Gram Panchayat, area of which comprises the Park and the said Gram Panchayat may take measures for maintenance of the parks.

7.2.21 The West Bengal Preservation of Historical Monuments and Objects and Excavation of Archaeological Sites Act, 1957 (West Ben. Act XXXI of 1957) – This enactment provides for preservation, restoration and maintenance of historical and antiquated monuments and objects as also empowerment of the State Government, for excavation of archaeological sites in West Bengal. There are instances where a state-protected monument or object may not require continuous supervision or support from experts or other persons with specialized knowledge in diverse fields or need considerable fund for maintenance and up keep. On the other hand, such object or monument may signify past glory and pomp of the locality and may be a source of local pride. On such occasions, the owner as also the local Panchayat may be interested in undertaking the responsibility for preservation and maintenance of the said monuments and objects. On this view it is advisable to allow some space for the Panchayat bodies to play their legitimate role in the effort for preservation of ancient monuments and relics. With this object Sections 2, 4, 5, 7, 12, 13 and 15 may be amended in appropriate manner for defining their role.

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7.2.22 The West Bengal Children Act, 1959 (West Ben. Act XXX of 1959) – This act enables the state government to establish and run the reformatory or Borstal schools. Since its efficacy lies in proper running of these establishments, flawless management by well structured machinery is the essence of the system. There is however a human and social aspect for which involvement of local body representatives will be advisable. Sections 8, 9 and 11 may therefore be suitably amended to bring in the role of the Panchayat Samiti or its representative in appropriate manner when such establishments are located in the rural areas.

7.2.23 The West Bengal Khadi and Village Industries Board Act, 1959 (West. Ben. Act XIV of 1959) – This Act provides for organisation, development and regulation of khadi industries and village industries and also other matters supplemental and incidental thereto. For this purpose, the Act has made provision for constitution of a Khadi and Village Industries Board. Now, the aims and objectives of this Board are noticeably in concurrence with those of the three tiers Panchayats constituted under the mandates of the Constitution of India and in pursuance of the State Panchayat Act. In fact, the objectives of the Panchayat subsumes the objectives of the Khadi and Village Industries Board and a close liaison between their activities shall not only help both the organizations in implementation of their respective schemes and programmes but shall satisfactorily serve their central purpose of socio-economic upliftment of the people. Considering the significant role of the Board in organizing Khadi and Village industries mainly in the rural area and of the Panchayat bodies conversant with and responsive to the needs and expectations of the community, a functional integration between them is necessary. In order to achive this objective it is proposed that Sections 4 and 12 may be suitably amended so that the Panchayats may have some definite say in the matters encompassing the interest of the local people. There is however one specific matter that merits consideration. District Industries Centre (DIC) referred to in section 14 A (admittedly, this centre is not created under this Act) and other officers implementing the programmes of the WBKVI Board (eg. Handloom Development Officer) may be more closely linked with the Zilla Parishad. Without prejudice to the distinct identity of the DIC or other officers, the Zilla Parishad particularly Khudra Shilpa, Bidyut O Achiracharit Shakti Sthyee Samiti (Small Industries, Power and Non-Conventional Energy Committee) may have greater symbiotic relationship with the DIC and other officers. The General Manager, DIC (and other officers if deemed necessary) may have an Zilla Parishad related additional designation unless such designation has already been assigned. While granting assistance to the artisans, groups and institutions under different programmes, local Panchayat bodies / members may be consulted for identification and prioritisation of beneficiaries and in the matter of implementation of various stages of the programme.

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7.2.24 The Essential Commodities Act, 1955 (Act 10 of 1955) – This Act has been brought into force in order to ensure steady and adequate supply of the commodities essential for sustenance of life by controlling their production, supply and distribution. Obviously, the Act is of regulatory nature and aims at keeping the production and marketing channel of certain specified commodities in proper condition on one hand and also keeping unscrupulous businessmen on leash so as to prevent them from manipulating marketing channels. It is felt that enforcement of such law will be easier if the Panchayats are involved in the administration of certain provisions of the Act. Besides, under the 11th schedule, public distribution system is one of the functions that have been entrusted to these bodies. In consideration of this, Sections 3 (3b) and section 5 may be amended in appropriate manner. The Act mainly dwells on different ingredients of the offences dealt with, penal provisions and composition and jurisdiction of different penal authorities. Obviously, it has been framed from regulatory point of view. The approach obfuscates the role of people who are not only beneficiaries but have a major role in production or processing of the commodities in question. The objective will be served more satisfactorily if the Act provides space for participation of people in safeguarding their own interest. If this idea is accepted on principle, then the Act should have enabling provisions to utilise the services of the panchayats and the urban local bodies effectively.

7.2.25 The Dowry Prohibition Act, 1961 (28 of 1961) – Object of this piece of legislation is to prohibit the evil practice of giving and taking of dowry in connection with marriage. The measures in the Act are regulatory in nature with penal provisions. However, the issue dealt with is actually a social malady stemming from the syndrome of male chauvinism prevalent in the society coupled with lack of economic independence of women in the society. Eradication of this affliction can be achieved only by creating social awareness in the society and through economic and social empowerment of women. However, some modification in the framework of the existing law may be helpful in achieving the goal. In this connection, it is proposed that subsections (1) and (2) of Section 8B may be amended to involve the Panchayat bodies in the administration of this act. Besides, a district-level advisory committee may be constituted with the Sabhadhipati as chairmen with the District Magistrate, Superintendent of Police and a number of social workers with high proportion of women as members. It will monitor the progress in this regard and may also guide other advisory committees in their efforts.

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7.2.26 The Bengal Water Hyacinth Act, 1936 (Bengal Act XIII of 1936) – This Act provides for the steps to contain propagation and ultimately to destroy the water hyacinth growing on any river, watercourse, tank, pound or any other land or water-body. Under the Act, most authority is vested in Collector or any person authorised by him. Certain decisions are left with the State Government. In terms of section 27 of the West Bengal Panchayat Act, 1973 (West Ben. Act XLI of 1973), the Gram Panchayat is vested with the power to direct any person to prevent growth of water hyacinth and destroy all water hyacinth already grown from any land or waterbody. Although the Act of 1936 is more elaborate with some minor details, the provision in the State Panchayat Act is adequate to meet the situation. Although water hyacinth no longer poses serious menace like earlier days, partially because of considerable shrinkage of water area, the problem still persists. It is therefore advisable that both the provisions should run parallelly. However, in the Act of 1936, the entire role of enforcement should preferably be vested with the Panchayats and since the Gram Panchayat is adequately armed through the Panchayat laws, Panchayat Samitis may be vested with all powers under the Act and for this purpose –

(a) both the definitions of ‘Authorised Officer’ and ‘Collector’ may be substituted by the term ‘Panchayat Samiti’ and the term may include any office bearer, member or officer of the Panchayat Samiti as may be authorised by it;

(b) the terms ‘Authorised Officer’ and ‘Collector’ wherever they may occur in the Act may be substituted by the expression ‘Panchayat Samiti’ and following this modification, whatever amendment in the recital may be considered necessary, may be effected.

7.2.27 The Bengal Local Self Government Associations (Recognition) Act, 1936 (Ben. Act XVI of 1936) – Aims and objects of this Act are to extend recognition by the State Government to an association formed by the local bodies. It was also envisaged that the association would run primarily with contributions from the local bodies. At present, such an association may be utilised as a platform for exchange of views and experiences among different local bodies, rural and urban, and for building up common strategies and approaches on issues of mutual interest. To achieve this purpose, it should be necessary to make this association a representative body (in the present Act, there is no mention about composition of the body). The following suggestions are made for amendment of the Act:

(a) In section 2, it may be provided that the association should be a representative body consisting of maximum (say 80%) members nominated by various member bodies.

(b) A new section may be inserted laying down the composition of the general body. The executive committee may be formed by the members of the general body by electing persons from among them. The members of the executive committee may have a term of two years and may be elected on rotational basis.

(c) The association shall have a right to be heard by the State Government and may be sponsored to represent at the national level.

(d) Apart from contribution from the municipalities and the Panchayats, the association shall be eligible for grant from the Government.

If the aforesaid proposals are accepted, suitable new provisions may be made and the existing provisions may be amended to conform to the policy adopted.

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7.2.28 The West Bengal Vaccination Act, 1973 (West Ben. Act XXXVII of 1973) – This is an Act to make vaccination compulsory for the purpose of eradication of small-pox. The provision of the Act, inter alia, enjoins upon every resident and every traveller coming to this State to get himself and the children under his or her care vaccinated unless they are already protected. This statute also enunciates the authority, duty and responsibility of the medical and para-medical personnel associated with the programme and also contains some penal provisions for breach of law. However, one lacuna in the present Act needs to be eliminated. There is little scope in the statute for participation of the Panchayat bodies or members in the campaign although mass awareness and participation cannot be realised without support of grassroot level representative bodies. With this end in view, it is proposed that sub-section (2) of section 10, may be suitably amended to bring participation of the Panchayat bodies in the matter without eroding the authority and responsibility of the government machinery.

7.2.29 The West Bengal Acquisition of Homestead Land for Agricultural Labourers, Artisans and Fishermen Act 1975 (West Ben. Act XL VII of 1975) – This is an Act to provide for the acquisition of land in rural areas on which homestead has been constructed by any person who is an agricultural labourer, an artisan or a fisherman and conferment of title of such land in favour of such person. This Act has been framed practically to empower the executive machinery to perform certain quasi-judicial functions. Since, however, the disadvantaged section of the community is the target group of this Act, it is imperatively necessary to disseminate the scope of this legislation, motivate and support the target group people to come up with their legislative claims and to assist the families after acquisition of land for construction or repair of pucca houses, where necessary, under rural housing programmes. Panchayats have appropriate roles to play in these directions. It is proposed that suitable provisions may be inserted in this Act reflecting the aforesaid objectives.

7.2.30 The Cattle Trespass Act, 1871 (Act 1 of 1871) – The Act aims at preventing stray cattle from damaging crops. The punitive measures relating to any damage caused by the cattle left by the owner to move freely, not only checks quarrels and feuds in the countyside, but assures safety of the standing crop thereby contributing to food production. Obviously this is a matter very much within the functional ambit of a local body instead of the Collector or any other government officer. It is, of course, admitted that the role of the State Government in certain matters cannot be dispensed with. Now, although section 31 empowers the State Government to transfer to any local authority all or any of the functions under this Act, this does not appear adequate to create an atmosphere conducive to achieving the objects of the Act. On analysis of the ground realities, it may appear most effective to empower the Gram Panchayat in the statute to take all actions under the Act. With this object in view it is proposed that sections 3, 4, 5, 6, 12, 14, 17, 19 and 27 may be amended to bring in the role of Gram panchayat and Panchayat Samiti by abrogating those of the District Magistrate and other government officers. On introduction of such amendments section 31 will become redundant and may be omitted.

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7.2.31 The West Bengal Comprehensive Area Development Act, 1974 (West Ben. Act XXXIX of 1974) – This piece of legislation prepared a structure for development of the state through area-based development programme for increased agricultural and allied activities and maximization of benefits of the cultivators. After commencement of 73rd Constitutional amendment, the Panchayat bodies have emerged as the major vehicle for area-based as also family-based development programme in the country side. The Panchayats are also playing a big role in the efforts for capacity building and creating livelihood opportunities for the rural people especially the marginal farmers, farm labourers and poor rural artisans. In the context of this changed scenario, the interventions envisaged in this Act, may be profitably utilized by the Panchayat bodies in their efforts for alround development. Besides, the machinery created under this Act is still in existence. Although its independent existence is no longer relevant, it may provide much-needed personal support to the Panchayats. In view of the above, it is proposed that this Act may be appropriately amended in order to provide statutory support to the programmes undertaken by the Panchayats in various fields of development activities and to transfer the existing set-up under this Act to the appropriate Panchayats bodies.

7.2.32 The West Bengal Tanks (Acquisition of Irrigation Rights) Act, 1974 (West Ben. Act XXIII of 1974) – This is an Act to provide, in the public interest, for acquisition of the right of using water of derelict tanks for the purpose of irrigation and incidental matters. All powers and authorities under the Act are vested in the collector. Section 4 of the Act empowers the collector to acquire the right of using water of a tank for the purpose of irrigation when such tank is derelict and the public has no right to use its water for irrigation, although the tank if excavated is capable of irrigating adjoining lands. In terms of section 5, the collector after such acquisition, may excavate and improve the tank in any manner for irrigation or authorise any person or persons to perform these jobs. Again, under section 6 of the Act, collector is empowered to take any action in terms of section 5 in respect of a tank where the public has the right of irrigation and the owner or owners are not providing the facility. Instead of employing the bureaucratic machinery, it is more advisable to vest the entire right and responsibility to a representative body or to one of its authorised members. In the circumstances, it is proposed as follows:

(a) After acquisition under section 4, the collector may authorise the Panchayat Samiti concerned under section 5 to perform all or any function under the Act with liberty to assign any job to the Gram Panchayat having jurisdiction, or

(b) Amend section 4 in such manner that the collector shall acquire the right of irrigation on requisition by the Panchayat Samiti and hand over the right to the requiring body.

There are other enactments as well for acquiring and utilising the irrigation facility in public interest. Apparently, it will serve people better if the laws are consolidated and framed into one piece of legislation.

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7.2.33 West Bengal Agricultural Produce Marketing (Regulation) Act, 1972 (West Ben Act XXXV of 1972) – In order to safeguard the interests of the producers and prevent nefarious trade practices, this Act sets forth the codes for regulating the process of marketing agricultural produces in West Bengal. It endeavours to regulate transactions entered into by the traders. It also provides for constitution of a Market Committee and the State Market Board, their powers and authority and functional domains. The 11th schedule of the Constitution enumerates, inter alia, agriculture including agricultural extension and markets and fairs as subjects on which the panchayats as institutions of self-government should formulate and implement plans for economic development and social justice. By logical interpretation of the mandate of the Constitution, marketing of agricultural produces also comes within the functional domain of the panchayats. Although such powers vested in the Panchayats are not exclusive, constitution of another authority for the same task gives rise to unnecessary dissipation of energy and resources with occasional incidence of conflicting measures adopted by different agencies in the field. Such situations may be avoided if closer ties are built between the Panchayat and such Authority. After commencement of the 73rd Constitutional amendment and introduction of matching provisions in the State Panchayat Act, certain provisions in the Act need be revisited. In view of the above, sections 2(f), 3(1) and (2), 4 and 5 may be appropriately amended in order to bring closer ties between the Panchayats and the Local Market Committee. Besides, it may be mentioned that under section 117 of the West Bengal Panchayat Act, 1973, an owner or a lessee of a hat or market or an owner or a lessee of land where a hat or a market is intended to be set up, is required to take a license from the Panchayat Samiti of the area. This provision should have clear recognition in this act under discussion.

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7.2.34 The West Bengal Town and Country (Planning and Development) Act, 1979 (West Bengal Act XIII of 1979) – Object of this Act is to constitute a body adequately equipped with expert knowledge for identification of a planning area, preparation of a spatial plan for the area and execution of related development schemes. At the time of commencement of this Act, there was no other planning body in existence. The scenario has meanwhile undergone vast change. In terms of Article 243G of the constitution, a Panchayat institution (Gram Panchayat, Panchayat Samiti and Zilla Parishad) is endowed with the authority to prepare plan for its area and execute schemes in pursuance thereof. In terms of Art 243W, a Municipality, which includes a Municipal Corporation also, is endowed with similar authority. Again under Article 243ZD, there will be a District Planning Committee (DPC) empowered to consolidate the plans prepared by the Panchayats and the Municipalities and for preparation of a draft development plan for the district as a whole. Similarly, Article 243ZE mandates constitution of a Metropolitan Planning Committee (MPC) for each metropolitan area with the responsibility for preparing a draft development plan for the metropolitan area as a whole. Both these bodies are also endowed with the responsibility of preparing spatial plans for the district and metropolitan areas respectively after taking into consideration the needs and interests of rural and urban areas. This Act of 1979 has created confusion in the matter. The entire area of the State is now encompassed by either an urban or a rural local government institution (3-tier Panchayats have overlapping jurisdictions) and a DPC or MPC. They are empowered under the constitution to prepare and execute development plan. A planning and development body as envisaged in the 1979 Act, can hardly find area left for their preparation and execution of development plans and they cannot subsume or control the institutions created by the constitution. It is felt necessary to address this anomalous situation to resolve the impasse. Otherwise, different development agencies will be working at cross-purposes and may soon be vying with each other for their authority in the planning process. Besides, it is clear that the panchayats, municipalities, DPC and MPC are constitutional authorities for preparing local level plans, including spatial plans. Another planning body cannot take away this authority. Even if a separate body is created, it has to function within the framework envisaged in Part IX and IXA of the constitution. It cannot exercise any power or authority independent of this constitutional framework. Apparently, this Act in the present form is unconstitutional and, hence, needs thorough amendments. In the circumstances, specific proposal on this Act is not suggested.

7.3 Amendment of Panchayat Act / Rules

7.3.1 Initiatives for Further Amendment of Panchayat Act – In recent times, quite a few amendments have been made in the State Panchayat Act in order to make the Panchayat bodies more representative, people-oriented and transparent, to improve their accountability and functional ethos. Further amendments are also under contemplation which are mentioned below:(1) Reframe the powers and functions of the Gram Panchayat, Panchayat Samiti and

Zilla Parishad so as to clearly define their respective roles in different fields of activities with convergence among different tiers.

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(2) Build an internal audit system in different tiers for the purpose of monitoring utilization of fund and maintenance of accounts by the institution itself in a regular manner and also to ensure timely reply to statutory audit paragraphs. Change of composition as also functional procedures of the District Council for Panchayats may also be considered for this purpose.

(3) Constitute a Block Council for Panchayats in the pattern of District Council. It is not possible for the District Council to reach out to all the Gram Panchayats within district. Naturally, the District Council has so far created very little impact on the activities of the Gram Panchayats. Hence we introduce the idea of Block Council. The Council shall be chaired by the leader of the major opposition party at the Panchayat Samiti level and shall have members drawn from the ruling party as also from other opposition parties. Block Council shall look into the matters relating to the Gram Panchayats. If Block Council is constituted, functions of the District Council shall usually be confined at the Panchayat Samiti level although it will be at liberty to look into the affairs of any Gram Panchayat as well.

(4) Incorporate functions relating to public health including environmental sanitation, preventive and prophylactic measures, prevention of food adulteration and contamination and control of epidemics.

(5) Build up an institution in the nature of Ombudsman to supervise and monitor different activities of the three tier Panchayats and make recommendations for remedial/punitive measures. A provision may be incorporated to the effect that the State Government or nay prescribed authority notwithstanding any empowering provision in the Act, shall not supersede any elected body or remove any elected member or office bearer from the office without consulting the Ombudsman in the matter. This institution may also be empowered to look into the grievances of the people relating to service delivery of the Panchayats and advise remedial actions.

(6) The Panchayats have been allowed very little space for generating its own resources. The Gram Panchayat may raise some amount of revenue through imposition of tax on land and buildings. Even this meager source is not available to the Panchayat Samiti and the Zilla Parishad. All three of them are mostly dependent on the non-tax revenue for which the existing net is not very wide. Efforts will be made to explore new avenues for all the three tiers for augmenting their resources. In such efforts, however, it will be necessary to ensure that the interest and the sensitivity of the common people are not jeopardized. As an alternative route, the State Government may consider sharing a good portion of land revenue receipts with the Panchayats. For another consideration, agricultural income tax for the affluent section of the agriculturists may be reintroduced and the Zilla Parishad may be empowered to assess and collect such tax. There may be other avenues as well. However, all these initiatives demand intensive discussions at multiple level and will require considerable time for specific action.

(7) It is felt that the State Government should have some supervisory role over the Panchayats as facilitator. The latter may also require guidance and support on different issues. The State Government should derive all such authorities through legislative process. However, authority of the Government should not gravitate towards precipitating a crippling effect on their endeavours for economic development and securing social justice for the people. Distinction between these

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two aspects is not easily discernable and tends to overlap. It is however necessary to ensure that the self-government status of the Panchayats are not eroded. A careful scrutiny of the existing provisions in the Act and Rules shall be made for specific actions in this direction.

(8) Incorporate provisions as may be necessary in the wake of amendment of various subject laws.

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7.3.2 Framing/amendment of Rules – Gram Panchayat Administration Rules [The West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004] has very recently been amended extensively. The Accounts Rules for the Gram Panchayats [The West Bengal Panchayat (Gram Panchayat Accounts, Audit and Budget) Rules, 2007] in substitution of the existing rules framed in 1990, have since been drawn up and is expected to be published shortly. There are proposals to freshly prepare the Panchayat Samiti Administration Rules and the Zilla Parishad Administration Rules, Rules relating to publication of bye-laws and some other issues. All these works will be completed by the year 2007-08.

8. ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS

8.1 Introduction

8.1.1 The chapters above describe the various aspects for improving the Panchayat system and is evident that the road ahead is not a journey on a linear path. All the issues related to improved rural local governance are to be addressed by each of the Panchayat body as well as the State Government to play their respective roles as per a common understanding keeping the local context in mind. That makes the process complex and diverse and different components of the same, which are strongly interrelated, are to be understood and acted upon by all concerned. Another important aspect is that the journey ahead has to be undertaken by each of the Panchayat of the State and the road ahead for the State will essentially consists of the sum total of journey to be undertaken by all the Panchayats, each of which will be different from the other. The major components will be the goals in terms of certain outcomes, the institution that has to be developed to own and work upon the goals, strengthening the institutions to follow the processes for good governance, the capacities to be developed for the institutions to take up the journey, the services those are to be delivered to the citizen and means to be followed including personnel and the infrastructure which will be required to accomplish the task and ultimately the people who judge the services and benefit in terms of outcome as the ultimate goal for constantly giving their feedback for keeping the process on track. Those aspects along with the strategy to be followed are briefly described below.

8.2 Sharing the vision in terms of human outcomes and setting goals locally

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8.2.1 The vision should be in terms of outcomes related to human development. While there is no end to further improve the status in respect of education, health and income but some minimum level of achievement across all Panchayats should be the immediate milestones to be achieved. There should also be ways to measure the outcomes directly or through proxy indicators at the local level. In terms of education the milestones will be what are already accepted as rights in terms of ensuring elementary education for all. Thus the milestone that each GP will be required to be achieved is that every child in its jurisdiction completes class VIII standard of education and are in schools up to the age of 14 years. It should also be ensured that no child at that age is working as child labour. The other related outcome should be to improve literacy rate through adult and continuing education as well as to reduce the gender gap in literacy. There cannot be a common goal like the first two components but each GP will have to work out its target based on ground realities. The outcome in the field of health will be reduction in IMR and MMR, which is the culmination of multi-dimensional interventions in the field of public health. It will not be easy to calculate IMR or MMR at the GP level and to set goals for all those bodies but what is possible is to monitor all events of death of infants and pregnant mothers and to work for reducing the figures through the interventions described in chapter III. In respect of income the immediate goal will be to take all the families out of poverty, which may take different time in different GPs to achieve the same, though it may in general take a long time. The goal is to be achieved through several types of interventions. The immediate outcome to be observed is to augment the income of the unskilled wage earners, who are in the lowest step of the economic ladder and the same will be measured by a combination of number of days they get employment from market and out of government programmes as well as the difference in wage between the peak rate and the lean season in a year, which should continue to get reduced. The other observable phenomenon to be monitored is the extent of reduction of migration out of the area in distress, which should be brought down to nil. The worst victims are those who are not able to perform manual labour and are out of employment. Those are destitute families and the goal will be to provide them social security through various social security measures like providing pensions and food security. The goal will be to provide social security to all such families. All those are important goals of the State and it is utopian to think that simply assigning those goals on the Panchayats will result in improvement. On the contrary achievement on all those fronts will depend on contribution from every level of government and the Panchayats will actively share the vision to work out what they can contribute in achieving those ultimate goals. The task of the State Government is to make the Panchayats internalize those basic goals related to human development, make all their plans and programmes to pursue those goals and based on the local context set their goals of what is achievable and in what time frame so that all their actions follow the goals to be set by themselves. Thus every GP will have their own Roadmap for achieving milestones related to the said outcomes, which they will monitor locally and mobilize all their resources and actions for pursuing the same. The outcome has to be assessed annually and shared with the people for their participation in achieving the goals. Those activities which can be planned and implemented locally will be the responsibilities of the Gram Panchayats and those are to be undertaken by them when the higher level the Panchayats will play a stewardship role and will mediate with higher tiers of government and other institutions on behalf of their

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citizens for the desired outcome. This is easier said than done and the task will be to strengthen the institution and let them acquire capacities for accomplishing the tasks.

8.3 Strengthening the Panchayat institutions

8.3.1 Several institutional aspects of the Panchayats have been discussed in chapter II. The Roadmap for the State will be to let the Panchayat functionaries internalize the institutional aspects of good governance as process of development and work out their own goals including the time frame and measurable parameters for assessing the progress. The aspects which are to be covered are participation of the people, horizontal sharing of responsibilities, ensuring rule of law including financial disciplines and integrity, inclusiveness in participation of members from political parties in opposition in various Standing Committees, responsiveness to the poorest sections, developing partnership with civil society organizations, promptness in decision making, transparency and accountability to the people, efficient mobilization of resources and effectiveness in use of available resources. It is difficult to set goals by the State Government for the Panchayats in terms of those parameters. The role of the State will be to take up intensive advocacy for self monitoring of those processes and continuous improvement out of their own. The process has been started and every Panchayat has been asked to evaluate various institutional aspects through a self-evaluation schedule (shown in Annexure). The same are being filled up by all the Panchayats and will be assessed by themselves for working out their own goals. The role of the State Government will be to facilitate the process and to identify the weak Panchayats in terms of those parameters so as to make more intensive facilitations by sending teams of experts on a regular basis. However, the major strategy will be to allow the Panchayat to assess various aspects of their own, internalize the process and set goals for themselves and seek the help of experts if they so want for strengthening their own institutions.

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8.3.2 Role of Panchayat in the process of economic development of the people especially those belonging to disadvantaged section of the society and also ensuring social justice for them is finding increasingly more space in the whole spectrum of development interventions of the State. It is found that they can play significant role in the field of health, education, agriculture and other allied activities like pisciculture, animal resources development, cottage industries and mini-industries, empowerment of women, development of children, social welfare including welfare of backward classes, destitute and physically challenged persons. It shall also have major role in development of infrastructure in the countryside that will have a sustaining effect on development. It shall create new employment opportunities for the people and expand the existing opportunities. In short, Panchayat shall have an accentuated role in holistic development in its area. The proposed amendment of the State Panchayat Act referred to earlier in paragraph 1.5.1 shall encapsulate this role of the Panchayat in the development matrix. Now, trivializing the role of the Panchayat in the projected development efforts, it cannot be expected to achieve this uphill task on its own. The State Government shall have a major role in building up higher capacity of the Panchayat in various fields. It will require functional improvement, technical capability, augmented resources and the capacity to utilize such resources. Besides, left alone, Panchayat cannot be expected to look after, say, promotive and preventive health care, pre-school or primary education or promotion of agriculture including building up irrigation facilities and such other fields. The role of Panchayats shall be supplemented and consequential to the role of the State Government in the related field. Panchayats shall perform especially such functions that require local knowledge and responsibilities to the demands of the local community and shall identify the schemes, their locations as also the beneficiaries of different schemes and shall create awareness among the people about the programmes and schemes and shall facilitate easy access to various benefits and their equitable distributions. Such functions of the Panchayats have been captured in the matrix showing implementation strategy placed in Appendix 9.1 of this document.

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8.3.3 Either in implementation of the development programmes or in the process of evaluation, trust and confidence of the citizen takes the centre-stage. On ultimate analysis, the coin test of success of a Panchayat is the extent to which it has earned the acceptability and the faith of the people. With this objective in sight, a Panchayat body is required to interact as frequently as possible with the people. For a Gram Panchayat, the forum of Gram Sansad is a dependable platform to measure the acceptability of the citizens in the matter of various functions performed by the Panchayats. Since meetings of Gram Sansads are held statutorily twice in a year in the month of May and November and additionally as may be felt necessary by the Gram Panchayat or as may be required, by order, by the State Government, the Gram Panchayat has adequate scope for assessing the views of the people and also respond to such views. In case of Panchayat Samiti and the Zilla Parishad, it is not possible to interact directly with the people. As an alternative, Block Sansad and Zilla Sansad have been constituted where the Panchayat Samiti and the Zilla Parishad may get their performances audited. Block Sansad is composed of all members of the Gram Panchayats within the Block and all members of the Panchayat Samiti that is all people’s representatives within the area whereas the Zilla Sansad is composed of the Pradhans of all Gram Panchayats, Sabhapatis, Sahakari Sabhapatis and all Karmadhyakshas of the Panchayat Samitis within the district and all members of the Zilla Parishad that is some selected representatives and most of the office bearers. Although admittedly representatives of the people cannot be any substitute for the people, the Panchayat Samiti and the Zilla Parishad may utilize the respective forum to assess the quality and acceptability of their performance. On this view, it is statutorily provided that the Panchayat body concerned shall hold meetings of the respective Sansads compulsorily twice every year, place their performance report for deliberations, collate and consider their views, advices and recommendations and shape their future plans and actions accordingly. These Sansads shall not only act as watchdogs and whistle blowers but also as guides and philosophers for achieving their goal of alround development.

8.3.4 Untied fund has a major role in the functional domain of the Panchayat bodies. Since the Panchayats are recognized in the Constitution as units of self-government and have been endowed with the responsibility for economic development and securing social justice for the people within their respective jurisdiction, they should have access to reasonable quantum of fund for discharging their responsibilities. Their own resources are meagre and there is little scope to augment this resource base to much higher order. Again, schematic funds devolved on them have restricted application. The problem can only be addressed through generous inflow of untied fund. Such fund may be used as supplemental to various scheme funds allotted to them as also for execution of schemes and programmes drawn up by them for demand-driven programmes for development.

8.4 Delivery of services for social justice & economic growth

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8.4.1 The Panchayat institutions are to deliver a range of services and should also mediate with higher tiers for proper delivery of services to be arranged by those bodies for reaching the same to all for whom the services are designed. The details of the services have been described in Chapter III and Chapter IV. The outcome to be achieved in various aspects of human development will depend on the access and quality of services available to the citizen. Each GP will be required to assess the availability of services to be delivered by the Panchayats and the State Government to find out the gap in access and quality and work out plan for improving the same. In respect of services delivered by the State Government the Panchayats will mediate for bridging the gap and making best use of available resources to reach the same to the most marginalised families. In this case also it is difficult to prescribe roadmaps of individual Panchayats from above. The same has to be worked out by each Panchayat by assessing their present status, the constraints and the possibilities for improving the same. An exercise for self assessment of available services by the Panchayats themselves has been initiated as per a self-evaluation schedule, mentioned in section 8.3 and shown in the Annexure. The schedule is being filled up by all the Panchayats and the same will be completed by 2006-07. This self-evaluation exercise will serve the dual purpose of sensitizing the Panchayats on the importance of availability and quality of those services as well as to identify the deficiencies for working out the plan for improving the same. It will also help the State Government to rank the Panchayats in terms of delivery of those services so that more facilitation could be provided to the least performing Panchayats. This exercise will also be utilized by each Panchayat to work out their Roadmap for planning and implementing various interventions in improving both social and economic services towards the citizen. One important component of the exercise will be to also identify gap in basic infrastructure related to services needed for human development and economic growth so that the same could be bridged by proper planning and deployment of resources available with the Panchayats. The exercise for self-assessment will be carried out annually and since the status will be assessed on a score-based ranking, the progress can be to some extent quantified. However, being self assessment there could be tendency for over rating the performance, which will become more objective in due course, making it easier to follow a definite course of planned actions for improvement. The process will be helped by preparing citizen’s charter by the Panchayats to publicly announce the quality and extent of services for which they are responsible and taking feedback of the citizen for evaluation of delivery of those services. Such a charter should not be imposed from above but should come out of own exercises by respective bodies for which no time frame can be prescribed by the state Government. However, the State Government will advocate to have such charter adopted by each Panchayat and assist those to acquire capacities to honour the charter.

8.5 Acquiring capacities by the Panchayat institutions

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8.5.1 While the goals can be set, and may be uniform for all, the achievement will vary widely depending on the maturity of institutional process and ultimately on the capacity of the Panchayats. The issue of capacity building is extremely important and the most crucial in influencing the outcome. This has again various components like capacity for mobilizing people and taking up decentralized planning exercises including internalizing the issues and focusing on the right priorities, capacity for mobilizing and effectively utilizing resources, managing delivery of various services and implementation of various programmes assigned on those bodies, evaluation of the output and the outcome and building up necessary social capital and economic infrastructure for sustaining growth. In this case also it is impossible for the State Government to set target and chart a Roadmap for all the Panchayats. The same has to be carried out by each Panchayat based on their local context. Even when it comes to building up the manpower resources by training the official and elected functionaries the same training input may lead to different learning outcome based on many factors. The strategy will be to plan certain activities related to training and capacity building, as has been described in Chapter VI, for all the Panchayat functionaries to reach some minimum level of understanding. More emphasis will be given on identifying best practices in each district and organize extensive exposure visit for peer learning. The same will be facilitated by hand holding support to the weak Panchayats as already described. The state Government will also provide necessary infrastructure and allied supports as mentioned in Chapter VI for developing training infrastructure, providing computer and train personnel for use of ICT, which will enable the Panchayats to function more efficiently.

8.6 Monitoring and Evaluation

8.6.1 One of the responsibilities of the State Government will be to closely monitor the progress of strengthening of the Panchayats. As already mentioned the Panchayats will be made to assess their performance through self evaluation formats. That will help the State Government to rank progress on various aspects of performances of the Panchayats to plan more facilitation and other interventions. However, apart from self evaluation there will be studies and evaluation by expert organizations to evaluate the progress. The evaluation reports will be shared with the Panchayats for internalizing the findings and taking corrective measures of their own. In respect of the existing programmes and services effort will be made to understand the achievement and failures by compiling figures GP wise. In order that census and similar other data, which are collected revenue mouza-wise by other agencies can be compiled for each GP it is necessary to ensure that no GP contain a part of the mouza. At present there are around 16% of the mouzas which are spread over more than one GP which makes it difficult to compile data GP wise. Steps will be taken to split those mouzas before the next census so that census data can be complied GP-wise. That will help to verify locally compiled data with data from census or similar other operations.

8.7 The citizen and the Panchayat

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8.7.1 Inherent value of Panchayat governance system, its efficacy and justification are derived from its closer proximity to the people, particularly its weaker sections. Various interventions of the Panchayat also centre around their aims and aspirations, their deprivations and needs and their weaknesses and strengths. In pursuance of this concept, the role of Panchayat is not confined merely to build up a sustainable delivery mechanism for opportunities created by it or by the Government and other agencies. It is also necessary for the Panchayats to create consciousness among the people about their right for better livelihood in one hand and their duties and responsibilities in realization of their rights on the other. It is therefore necessary for the Panchayat to sensitise and motivate the people through spread of information, education and communication so that they may raise their demands on their primary needs of life in an informed and effective manner. They should also be made conscious and responsive about their duties and responsibilities in the process of realization of these demands. In other words, the citizens should be brought to have participatory role in the whole process of development. In order to concretize this endeavour, Panchayats should draw up a Citizens’ Charter incorporating therein Peoples’ rights and obligations relating to various fields of activities for development with holistic approach. Such fields should include education, health, nutrition, expansion of livelihood opportunities in agriculture, mini and household industries and service sectors. Such charter shall be widely circulated and discussed in different forums so that people may realise their rights and duties.

8.7.2 It is ultimately the people, who are the most important stakeholder of the Panchayats. The success of establishing a more responsive and efficient Panchayat system has to be ultimately judged by the people, who have the ultimate power to take corrective measures for improving the system. However, most of them are not so aware of their roles and responsibilities in developing the Panchayats as their own institutions and do not feel encouraged to contribute unless they have some expectation of private gains. The State Government will carry out advocacy measures for wider dissemination of information related to functioning of the Panchayats and how interest of the poorest sections as well as overall welfare of the society could be ensured by developing stronger local government. The strength should be derived primarily from the people and not merely from the statute or the upper tiers of government for better functioning of the Panchayats to function as institutions for self government. It should be the citizen who should own the Roadmaps of all the components to participate actively for realizing their goals and the Panchayats carry out the process as their elected body.

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9. THE APPENDICES

9.1 Benchmark for Implementation Strategy of Roadmap

IssuesImplementing Strategy

State Government Level PRI LevelsActivity Responsibility Timeframe Activity Responsibility Timeframe

1. Assessment of present status of Panchayat functioning and follow-up intervention

Self evaluation of institutional functioning of the three tier Panchayats

(a) Developing schedule for the three tiers

(b) Circulating and explaining self evaluation formats to all Panchayat bodies and facilitating PRIs to complete self-evaluation

(a) SRD Cell(b) Panchayat Development

Officer (PDO) and Panchayat Accounts & Audit Officer (PAAO) [Block level officials] for GP, District Panchayat & Rural Development Officer (DPRDO) for PS and Commissioner, Panchayats & Rural Development along with the officials of Panchayats & Rural Development Directorate and Department for ZP

(a) May 2006 for GP, September 2006 for PS and December 2006 for ZP

(b) August 2006 for GP, November 2006 for PS and January 2007 for ZP

Understanding the objective, the schedule and taking necessary action to complete the self evaluation process involving all the elected representatives and Government/ Panchayat functionaries

The Panchayat body as a whole at all the three tiers

The process is expected to be completed and the data to be sent to the State Government by December 2006 for GP, January 2007 for PS and February 2007 for ZP

Eliminating the errors in the data, validating the scores and taking necessary intervention for upgraded performance on the basis of the scores obtained by the Panchayats

(a) Finding out invalid scores and intimating those scores to DPRDO for correction and getting back the corrected figures

(b) Validation of the scores for disbursement of Incentive Fund

(c) Analysis of the final data and taking necessary intervention to uplift the strengths and to overcome the weaknesses of the Panchayats

(a) SRD Cell, the DPRDOs, the PDOs and the PAAOs

(b) Block Development Officer (BDO) for GP, DPRDO for PS and Commissioner, Panchayats & Rural Development for ZP

(c) SRD Cell along with the Statistical cell of the Panchayats & Rural Development Department (PRDD) and the Statistical Cell of the Directorate of Panchayats & Rural Development (DPRD), West Bengal

(a) February 2007

(b) 15th March 2007

(c) May 2007

Correcting the invalid entries and sending the corrected figures to the State Government

The Panchayat body as a whole at all the three tiers

February 2007

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Key IssuesImplementing Strategy


2. Strengthening of democratic functioning of the Panchayats

Participation at the village level

(a) Advocacy and facilitation in formation of Gram Unnayan Samiti (GUS) in all the 45154 Gram Sansads in the State

(b) Capacity building of the GUS members to make the GUSs functional

(a) PRDD, DPRD, DPRDOs, Block level officials and the GP level officials

(b) Same as (a)

(a) September 2007

(b) March 2008

(a) Formation of Gram Unnayan Samiti (GUS) in all the 45154 Gram Sansads in the State

(b) Capacity building of the GUS members

(a) The Gram Panchayat with necessary help from the Block

(b) The Gram Panchayat with necessary help from the Block, District and State

(a) December 2007

(b) March 2008

Organizing the poor for their participation in Panchayats

(a) Advocacy, facilitation and guidance for organizing the poor, particularly the women, in Self Help Groups (SHGs) in such a manner that every poor rural family has at least one member included in an SHG

(b) Special drive to improve the understanding of the groups with respect to the socio-economic situations in their own context and services available for its improvement so as to enable them to avail of those services and participate in social and economic development of the area including augmenting their own income

(c) Providing access to credit from banks/ financial

(a) PRDD, District Rural Development Cell (DRDC), Block level officials, specially Block Livelihoods Development Officer (BLDO)

(b) Same as (a)(c) Same as (a) by

negotiating with the banks/ financial institutions through State/District Level Bankers Committee (SLBC/DLBC)

(a) March 2010(b) March 2011(c) March 2012

(a) Organizing the poor, particularly the women, in SHGs

(b) Playing pro-active role in the drive to improve understanding of the groups

(c) Negotiating with the banks/ financial institutions to provide access to credit for all SHGs

(a) Sishu O Nari Unnayan, Janakalyan O Tran Sthayee Samiti of the PS, Nari, Sishu Unnayan O Samaj Kalyan Upa-Samiti of the GP and the GUS

(b) Same as (a) and the Clusters and Federations

(c) Office bearers of the

(a) March 2010

(b) March 2011

(c) March 2012

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institutions for all SHGs Panchayats




Organizing the poor for their participation in Panchayats

(d) Advocacy, facilitation and guidance for formation of SHG Clusters in all GP

(e) Advocacy, facilitation and guidance for formation of SHG Federation in all PS

(f) Building capacities of the Panchayats to utilize the Clusters and the Federations as their agents for poverty alleviation and making social changes

(d) PRDD, DRDC, Block level officials, specially BLDO

(e) Same as (d)(f) Same as (d)

(d) March 2010

(e) September 2010

(f) March 2011

(d) Formation of SHG Clusters in all GP and setting up their own offices in the immediate vicinity of the Panchayat offices

(e) Formation of SHG Federations in all PS and setting up their own offices in the immediate vicinity of the Panchayat offices

(f) Building capacities of the next level Panchayats to utilize the Clusters and Federations

(d) Nari, Sishu Unnayan O Samaj Kalyan Upa-Samiti of the GP with the help of SHG representatives

(e) Sishu O Nari Unnayan, Janakalyan O Tran Sthayee Samiti of the PS with the help of Cluster members

(f) ZP to build capacity of PS and PS to build capacity of GP

(d) March 2011(e) March 2012(f) March 2012

Strengthening functioning of the Upa-Samitis and Standing Committees

(a) Facilitating the Standing Committees and Upa-Samitis so that they can provide input in planning the district sector schemes of line departments

(b) Facilitating the Standing Committees and Upa-Samitis in planning the district sector schemes to be implemented by the Panchayats

(a) PRDD, DPRD, District level officials of various departments, Block level officials of various departments

(b) Same as (a)

(a) Ongoing process with more effective facilitation from April 2007

(b) Ongoing process

(a) Planning the district sector schemes of line departments

(b) Planning the district sector schemes to be implemented by the Panchayats

(a) The Panchayat body in general and the concerned Sthayee/Upa-Samiti in particular with the help of the concerned line department officials

(b) Same as (a)

(a) Ongoing process with more effective role from April 2007 on release of fund and specific assignment

(b) Ongoing process

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(c) Interactions between the State level functionaries, including ministers in charge of departments and the elected as also appointed (departmental officials) members of the Standing Committees of the Zilla Parishads at least once in a quarter for guiding and apprising them of the State policy and development programmes highlighting area of functions of respective Standing Committees

(d) Interaction on the same issues between the district level officials and the members of the Standing Committees at the Block level

(c) Various State Government departments, the nodal role being played by the Development and Planning Department

(d) District level officials of various State Government departments

(c) The process for Standing Committees on Health, Nutrition has already started. The process for Standing Committee on Education is being devised. The process for these SCs will be operationalised by 2007-08. For the other Standing Committees the process will be completed within the first three years of 11th Five year plan period.

(d) Ongoing process, all Standing Committees to be covered by March 2010

(c) Ensuring that the elected members of the Standing Committees of the Zilla Parishads effectively participate at the interaction programmes and fully realise the task ahead

(d) Ensuring that the elected members of the Standing Committees of the Panchayat Samitis effectively participate at the interaction programmes and fully realise the task ahead

(c) Karmadhyaksha and Secretary of the concerned Standing Committees

(d) Karmadhyaksha and Secretary of the concerned Standing Committees

(c) Ongoing process, to be completed by March 2010

(d) Same as (c)

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(e) Integration between the Block level Standing Committees and the GP level Upa-Samitis with members of related functional committees or related members where there is no functional committee, of the GUS as much as possible

(e) Block level and higher level officials of various State Government departments

(e) All Upa-Samitis to be covered by March 2010

(e) Ensuring that the PSs organize quarterly meeting between the Sthayee Samiti and the related Upa-Samitis and also ensuring that the elected members of the Upa-Samitis of the GPs effectively participate in those meetings and fully realise the task ahead along with ensuring participation of the members of the functional committees of the GUS as much as possible

(e) Karmadhyaksha and Secretary of the Sthayee Samiti (SS) and the Sanchalaks of the related Upa-Samitis (US) with the help of the office bearers of the PS and GPs respectively.

(e) Ongoing process, to be completed by March 2010

(f) Facilitating the Panchayat bodies to determine likely allocation of programme/activity wise fund from State budget during the next year along with advocacy, capacity building and facilitation for preparation of Sthayee/Upa-

(f) PRDD, DPRD, District and Block Level Officials of various State Government Departments

(f) 2007-08 for ZP, 2008-09 for PS and 2009-10 for GP

(f) Determination of Sthayee/Upa-Samiti wise prior allocation in different sectors of activities and preparation of Sthayee/Upa-Samiti wise budget on the basis of such data

(f) The concerned Panchayat body in general and the respective Sthayee/Upa-Samiti in particular

(f) 2007-08 for ZP, 2008-09 for PS and 2009-10 for GP

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Samiti wise Budget




Defining the roles of members who are not office bearers

(a) Taking steps for defining their roles as people’s representatives for constructive appraisal of the functions of the Panchayat body emphasizing their rights and responsibilities and setting up mechanism for their capacity building and monitoring of the process

(a) PRDD, DPRD, DPRDO and Block level officials, specifically PDOs and PAAOs

(a) March 2009

(a) Ensuring that the members join the capacity building programme through an interactive process and remain faithful to their roles

(a) The concerned Panchayat body as a whole and the office bearers in particulars

(a) Ongoing process

Increasing participation of the political parties in opposition

(a) Capacity building of the members of the majority to pay heed to the voice of the minority, accept good suggestions and place all facts before them to justify decisions, if taken with disregard to the suggestions of the minority opinion

(b) Capacity building of the members of the minority so that they do not feel discouraged and frustrated and may continue to

(a) PRDD, DPRD, DPRDO and Block level officials, specifically PDOs and PAAOs

(b) Same as (a)

(a) March 2010

(b) March 2010

(a) Ensuring that the members join the capacity building programme and practice to create conditions for participation of the members from the political parties in opposition with freedom, mutual respect and dignity

(b) Ensuring that the members join the capacity building programme and try to participate effectively

(a) The concerned Panchayat body as a whole and the office bearers in particular

(b) The concerned Panchayat body as a whole and the office bearers in particular

(a) Ongoing process

(b) Ongoing process

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participate meaningfully and effectively




Increasing participation of the political parties in opposition

(c) Initiative for active involvement of political parties in building a consensus approach towards the development process considering that the process will be beneficial to all the political parties since all of them are in opposition in one or the other Panchayat bodies (at the district & block level)

(c) PRDD, DPRD, District and Block level officials of State Government

(c) March 2009

(c) Creating conducive environment for consensus building

(c) The office bearers of ZP and PS

(c) March 2009 for creating a discernable desired ambience although this will be a continuous process

Functioning of the District Council

(a) Initiative to make the District Council more representative by bringing in larger number of members of different political colours so that impartial and balanced approach in all matters may be ensured

(b) Initiative to ensure that the advices and recommendations of the District Council be enjoined upon the Zilla Parishad and the District Magistrate (when necessary, the State Government) to issue specific directions on that basis

(c) Initiative to ensure that the advices and recommendations of the Council be placed before the auditors at the time

(a) PRDD(b) PRDD(c) PRDD

(a) December 2007

(b) December 2007

(c) December 2007

(a) Facilitating the District Council in its functioning

(b) No activity(c) No activity

(a) The Panchayat bodies in general and the Zilla Parishad in particular

(b) No responsibility

(c) No responsibility

(a) Ongoing process

(b) No timeframe

(c) No timeframe

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of their inspections for their consultation




Functioning of the District Council

(d) Initiative to strengthen its staff support for augmenting its delivery mechanism

(d) PRDD (d) March 2010

(d) Maintaining a conducive atmosphere following the rules and procedure laid down in this behalf

(d) Office bearers of ZP

(d) On-going process

Improving accountability

(a) Improving upon the institutional mechanism for organizing Gram Sansads, Block Sansads and Zilla Sansads by working out the essential disclosures to be made in those meetings, format for disclosures and standardization of some of the essential items to be included in the discussions including performance reporting, planning procedure, budget preparation process, audit observations and action taken reports on audit observations and District Council notes

(b) Capacity building of all concerned to ensure quality transactions in such forum.

(a) PRDD, DPRD

(b) PRDD, DPRD, District & Block level officials

(a) March 2009

(b) March 2010

(a) Ensuring that all concerned attend the capacity building programme, own the mechanism and practice it effectively in reality

(a) The respective Panchayat body in general and the office bearers of that body in particular

(a) March 2010


Other ethical steps for good governance

(a) Developing citizen’s report card to judge the ethics being followed in the affairs of the Panchayat along with appropriate advocacy programmes for the people to demand highest standards of honesty, integrity and objectivity

(b) Taking initiative so that there is access to all information for upholding the spirit of Right to Information and encourage the people to share it to ensure informed participation in all

(a) PRDD, DPRD, District & Block level officials

(b) Same as (a)

(c) Same as (a)

(a) March 2010

(b) March 2009

(c) March 2010

(a) No activity initially, but after the card is introduced the task of accepting it and acting accordingly

(b) Facilitating awareness generation among people, creating conducive environment in the Panchayat offices and inculcating right spirit among the office bearers

(a) The respective Panchayat body in general and the office bearers of that body in particular

(a) March 2010

(b) March 2009

(c) March 2010

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deliberations(c) Capacity building of citizens to sift and

evaluate available information in the light of rules and procedures and the ground realities

and the members(c) Capacity building of

citizens by making available the rules and procedures and also constraints, if any

(b) Same as (a)

(c) Same as (a)




Interface between Panchayat and civil society

(a) Encouraging civil society to meaningfully participate in the functioning of the Panchayats through promotion of civil societies and creation of an ambience so that they may mutually reinforce each other in better understanding of the issues and strengthening the processes of good governance

(b) Launching Civil Society Support Programme (CSSP) in the state primarily with the purpose of supporting a more accountable civil society influencing the policy of governance and its practices to ensure better access to services by the poor

(a) PRDD, DPRD, District & Block level officials

(b) Same as (a)

(a) Ongoing process, a significant development is expected by March 2011

(b) Launching by December 2007 and then a continuous process

(a) Facilitating the initiative taken from the State Government level

(b) Same as (a)

(a) The respective Panchayat bodies

(b) Same as (a)

(a) Ongoing process, a significant development is expected by March 2011

(b) A continuous process after December 2007

3. Improving core civic services

Water supply and sanitation

(a) Capacity building for conservation of water and regulation for use of ground water

(a) Water Investigation and Development Department (WIDD), Public Health Engineering Department and PRDD

(a) March 2009 (a) Conservation of water for sustainability of drinking water sources and regulation of use of ground water for use in industry/ agriculture to be undertaken by both

(a) Jana-swasthya O Paribesh & Krishi, Sech O Samabay SS of ZP/PS and Shiksha O

(a) Ongoing process, a significant development is supposedly expected by March 2010

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the GP and the higher tiers depending on the geographical contours of the area and the technology involved

Jana-swasthya & Krishi O Prani Sampad Bikash US of GP




Drinking water supply and sanitation

(b) Monitoring water supply to all the habitations

(c) Facilitating in establishment of more laboratories and monitoring the running laboratories for water testing along with taking initiative so that the PS utilizes the Rural Sanitary Marts (RSM) for surveillance of water quality

(d) Facilitating in development of a data base for habitations with seasonal shortage of supplies and those having water quality problems

(e) Advocacy for setting up water source based user committees

(f) Promotion of habitation based small piped water supply schemes under Swajaldhara

(b) Public Health Engineering Department (PHED) and PRDD

(c) PHED and PRDD

(d) WIDD and PRDD

(e) PRDD, District & Block level officials

(f) PHED, PRDD, District & Block level officials

(g) District and Block level engineers of PHED

(b) Ongoing process

(c) Ongoing process

(d) March 2009

(e) Ongoing process

(f) Ongoing process

(g) March 2010

(b) Ensuring water supply to all the habitations

(c) Arrangement for testing of water by the laboratory or RSM on payment

(d) Developing data base for habitations with seasonal shortage of supplies and those having water quality problems

(e) Setting up water source based user committees for maintenance of installations through regular collection of user charges and acquisition of skills by selected (women) users

(f) Providing habitation based small piped water supply schemes under Swajaldhara with connection to every family and group stand post in certain cases with recovery of at least 50% of the running cost and assigning maintenance liabilities to the user group

(g) Taking initiative so that the

(b) Janaswasthya O Paribesh Sthayee Samiti of PS with support from the same of ZP

(c) Janaswasthya O Paribesh Sthayee Samiti of PS with support from GP for collection of samples

(d) Same as (b) and in addition the GP level data to be compiled by the Janaswasthya O Paribesh Sthayee Samiti of PS

(e) Shiksha O Janaswasthya Upa-Samiti of GP and Gram Unnayan Samiti

(f) Janaswasthya O Paribesh Sthayee Samiti of ZP and PS with support from the Shiksha O

(b) March 2009

(c) March 2010

(d) March 2009

(e) March 2009

(f) March 2012

(g) March 2010

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(g) Capacity building of the Rural Sanitary Marts (RSM) to also deliver water supply engineering related services

Sanitary Marts attend the capacity building programme and then utilizing their service for water supply engineering works

Janaswasthya Upa-Samiti of GP

(g) The office bearers of the PS and the Janaswasthya O Paribesh Sthayee Samiti of PS




Drinking water supply and sanitation

(h) Setting-up surface water based water supply arrangements in areas with arsenic contamination/ salinity or exhibiting seasonal problem because of excess drawal of ground water

(i) Advocacy, facilitation and monitoring for 100% access to safe sanitary toilets in all the habitations

(j) Advocacy, facilitation and monitoring to ensure sanitation facilities at all public places

(k) Capacity building of the PRI functionaries for sewerage and solid

(h) PHED(i) PRDD,

DPRD, District & Block level officials

(j) PRDD, DPRD, District & Block level officials

(k) PRDD, DPRD, District & Block level officials

(h) March 2009

(i) March 2010

(j) March 2010

(k) March 2009

(h) Promotion of surface water based water supply arrangements in problem areas with assistance from PHED

(i) GP/Block wise plan for such 100% coverage in each district depending on the present progress and keeping the area free from open defecation

(j) Providing sanitation facilities at all public places along with maintenance

(k) Planning to ensure sewerage system in each habitation, planning for solid waste management in the habitations, planning for

(h) Janaswasthya O Paribesh Sthayee Samiti of ZP for setting-up, Janaswasthya O Paribesh Sthayee Samiti of PS with support from GP for distributing water to the households after receiving water in bulk from the PHED

(i) Janaswasthya O Paribesh Sthayee Samiti of PS, Siksha O Janaswasthya Upa-Samiti of GP and the entire progress to be monitored by the Janaswasthya O Paribesh Sthayee Samiti of ZP

(j) Janaswasthya O Paribesh Sthayee Samiti of ZP, Janaswasthya O Paribesh Sthayee Samiti of PS and Siksha O Janaswasthya Upa-Samiti of GP following the principle of subsidiarity and the monitoring the progress of the entire ZP area to be done by the Sthayee Samiti of ZP

(k) Preparation and implementation of the plan by the Siksha O Janaswasthya Upa-Samiti of GP securing support from Gram

(h) March 2010(i) March 2009(j) March 2010(k) March 2010

for sewerage system, March 2011 for solid waste management and conservancy

115


waste management and also for providing conservancy services in the areas where it is necessary

conservancy services in the required areas and implementing the plans

Unnayan Samiti (GUS) with facilitation and monitoring the progress of the GPs by the Janaswasthya O Paribesh Sthayee Samiti of PS and the progress of the PSs by the same Sthayee Samiti of ZP




Services related to public health

(a) Advocacy and campaigning for cent percent registration of birth and death

(b) Capacity building and facilitation to maintain and analyse vital statistics

(c) Ensuring that basic immunization of 6 diseases are available at the Primary Health Sub-Centres (PHSC) and at the Primary Health Centres (PHC) on at least two fixed days in a week

(d) Campaign and awareness building for cent percent immunization of new born babies

(e) Ensuring availability of tetanus vaccination and provision for pre-natal and post-natal check-ups at the Primary Health Sub-Centres (PHSC) and at the Primary Health Centres (PHC) on at least two fixed days in a week

(a) PRDD, Health and Family Welfare Department (HFWD) and Information and Cultural Affairs Department (ICAD)

(b) PRDD, DPRD, SIPRD, District and Block level officials

(c) HFWD, Block Medical Officer (Health) [BMOH], Health workers of PHC and PHSC

(d) Same as (c) and PRDD, Block and GP level officials and workers

(e) HFWD, Block Medical Officer (Health) [BMOH], Health

(a) Ongoing process

(b) Ongoing process

(c) March 2008

(d) Ongoing process

(e) March 2008

(f) Ongoing process

(a) Cent percent registration of death and birth

(b) Maintaining vital statistics properly and analysing it for reaching services related to family planning, mother care and child health interventions, campaigning for following the legal provision related to the age at marriage

(c) Monitoring whether the service is available and if not, mediating with BMOH to ensure the service

(d) Mobilizing the support and participation of the parents and the community to take benefit of the services and keeping child-wise track of the actual coverage by taking help of the ANMs, ICDS workers and GUSs

(e) Monitoring whether the service is available and if not, mediating with BMOH to ensure the service

(f) Mobilizing the community

(a) Gram Panchayat

(b) Gram Panchayat as a whole and Artha O Parikalpana Upa-Samiti in particular

(c) Monitoring by the Siksha O Janaswasthya US of GP and mediating with BMOH by the Janaswasthya O Paribesh SS of PS

(d) Siksha O Janaswasthya US of GP and the GUSs

(e) Monitoring by the Siksha O Janaswasthya US of GP and mediating with BMOH by the

(a) March 2010

(b) Ongoing process, expected progress by March 2010

(c) March 2008

(d) March 2010

(e) March 2008

(f) Ongoing process, full or near-full coverage is expected by March 2010

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(f) Campaign and awareness building to ensure cent percent pregnant women take the tetanus vaccination and avail of the pre-natal and post-natal medical check-ups

workers of PHC and PHSC

(f) Same as (e) and PRDD, Block and GP level officials and workers

with the help of Accredited Social Health Activists (ASHA), women SHGs and GUSs to ensure cent percent coverage and keeping records

Janaswasthya O Paribesh SS of PS

(f) Siksha O Janaswasthya US of GP and the GUSs





(g) Ensuring arrangements for at least 80% institutional deliveries

(h) Ensuring that all nutritional support programmes operate with full efficacy

(i) Ensuring that all initiatives of the Government to prevent communicable diseases operate with full efficacy

(g) HFWD(h) PRDD,

Women & Child Develop-ment and Social Welfare Depart-ment (WCDSWD)

(i) HFWD

(g) March 2009

(h) Ongoing process

(i) Ongoing process

(g) Monitoring the arrangements and mediating with the HFWD officials at the block level if necessary, developing infrastructure in the GP head quarter PHSC or in other suitable places for safe delivery of mothers in the areas where delivery institution is far off with the help of the ANMs and arranging skilled birth attendant in those areas where no option for institutional delivery is available

(h) Ensuring that all the children of the area up to the age of three years are brought under regular surveillance through the ICDS programme or otherwise, monitoring, aggregating and analyzing nutrition related data, mostly collected in the ICDS centres for all possible interventions, monitoring and analysis of the weight at birth and latter months of all the babies, identifying the malnourished children and ensuring that they get adequate supplementary nutrition, increasing awareness of the people for promotion of adequate nutrition for all, spreading awareness related to breast feeding and promotion of low cost nutrients including motivating the poorer families for developing kitchen garden

(i) Awareness building and skill training for control and home management of water-borne

(g) Monitoring and mediating by GP with the help of PS, developing infrastructure at PHSC by GP with support from State government, arranging skilled birth attendant by Siksha O Janaswasthya US of GP with participation of GUS

(h) Nari, Sishu Unnayan O Samajkalyan US of GP with the help of GUSs, ICDS workers

(i) Awareness building by Janaswasthya O Paribesh SS of ZP/PS and Shiksha O

(g) March 2009(h) March 2010

for perceptible achievement but the process will continue

(i) Ongoing process, due progress is expected by March 2010

117


diseases, awareness building on AIDS, Thalasemia and other diseases, intimating HFWD officials on any incidence of communicable diseases, providing local supports to government in containing the same, along with taking up local measures for preventing recurrence of such incidents

Janaswasthya US of GP, initiatives at the time of outbreak by the GP as a whole





(j) Ensuring that vector control measures be available in the need-based areas

(k) Ensuring that the Panchayats be legally empowered for food safety

(l) Conducting audit of death of children and pregnant mothers and reporting the causes to the GP

(m) Ensuring that Doctors are available in each GP (either there is a BPHC or a PHC within the GP area or a dispensary at the head quarter sub-centre where doctor facility is available at least once a week)

(n) Support to develop proper infrastructure at the head quarter sub-centres along with labour room

(j) HFWD(k) HFWD,

PRDD and Cabinet

(l) Health Supervisors of HFWD

(m) HFWD, PRDD with support from the Panchayats

(n) HFWD, PRDD

(j) Ongoing process

(k) As may be decided by the Cabinet

(l) Ongoing process, significant coverage to be ensured by March 2009

(m) March 2008(n) March 2009

(j) Taking local measures for vector control and ensuring participation of the people in all such measures and keeping the area free from open defecation

(k) Control in the sale of readymade food in the areas where incidence of communicable diseases have been found, linking issuance and renewal of trade license certificates for food related business with hygienic safety

(l) Acting on the basis of such reports by taking up suitable interventions locally as well as mediating with the higher tiers as well as the officials of the Health & Family Welfare Department for initiating possible measures in preventing such deaths

(m) Running and managing the dispensaries along with sharing the expenditure of doctor and medicine with the State Government

(j) Shiksha O Janaswasthya Upa-Samiti of GP in convergence with GUSs

(k) The GP as a whole

(l) Shiksha O Janaswasthya Upa-Samiti of the GP in general and the mediating role to be played by the GP office bearers and higher tiers of Panchayats where necessary

(m) Shiksha O Janaswasthya Upa-Samiti of GP

(n) The GP as a whole and the Shiksha O

(j) March 2010(k) March 2009(l) March 2009

for significant coverage although the process will continue

(m) March 2008(n) March 2009

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facilities at those places where Government health centres are far away

(n) Developing proper infrastructure at the head quarter sub-centre along with labour room facilities at those places where Government health centres are far away, managing and maintaining it properly

Janaswasthya Upa-Samiti in particular




Services related to universal literacy and elementary education

(a) Devolving all the non-academic functions related to school education to Panchayats

(b) Placing the services of field functionaries of SED to Panchayats and giving them a related designation

(c) Devolving responsibilities in respect of activities being taken up under the Sarva Shiksha Abhiyan to the Panchayats (Shiksha, Sanskriti, Tathya O Krira SS at ZP/PS level and Shiksha O Janaswasthya US at GP level) and dissolving District SSA Committee

(d) Facilitation for opening up alternative education centres (Shishu Shiksha Kendra, Madhyamik Shiksha Kendra) and apart from facilitation for opening up, speedy approval of the proposals of other alternative education centres (Education Guarantee

(a) School Education Dept. (SED)

(b) SED(c) SED and

Ministry of Human Resource Develop-ment (GoI)

(d) Facilita-tion : PRDD, Facilita-tion and speedy approval : implement-ing agency of SSA at State and District levels

(e) SED, Implement-ing

(a) March 2010

(b) Prefer-ably by March 2010

(c) Expec-tedly by March 2010

(d) March 2008

(e) Ongoing process

(a) Developing and maintaining buildings and other physical infrastructure like water supply and sanitation facilities, play grounds etc. in schools and alternative education centres

(b) Utilisation and monitoring of services placed

(c) Making the concerned SS/US more effective to discharge the responsibilities of SSA effectively

(d) Opening SSK/ MSK on the basis of the proposals from the community and forwarding proposals for EGS, BC and RMV centres

(e) (i) Preparation of Child Register(ii) Identifying out of school children by name(iii) Enrolling all the out of school children through house to house campaign

(a) Partial responsibility is already being taken by the GP/PS, but full responsibility with respect to primary and upper primary education centres to be taken by the Shiksha, Sanskriti, Tathya O Krira SS of PS

(b) Shiksha, Sanskriti, Tathya O Krira SS of PS under guidance of ZP

(c) The SS/US itself with facilitation from SED and PRDD officials

(d) SSK/MSK – GP to send proposals to PS, PS to ZP and ZP to approve in consultation with PRDDEGS/BC/RMV – GP to send proposals to PS and PS to District SSA Committee

(a) March 2012

(b) March 2010

(c) September 2008

(d) March 2008

(e) (i) Ongoing process, to be completed in every Gram Sansad by March 2009,(ii) Same as (i),(iii) September 2008,(iv) Ongoing process, significant progress is

119


Scheme centre, Bridge Course centre and Rabindra Mukta Vidyalaya) to ensure access at all habitations

(e) Campaign and provisioning enabling environment for universal enrolment and retention

agency of SSA and PRDD involving Panchayats and commu-nity

at institutions with suitable timing (iv) Monitoring attendance (v) Mediating parents-teacher interface

(e) (i) – (iii) : VEC with the help of GUS, monitoring by GP(iv) GP with the help of VEC/GUS(v) Same as (iv)

supposed to be achieved by March 2008(v) Same as (iv)




Services related to universal literacy and elementary education

(f) Devolving the responsibility of the Mid Day Meal programme totally to GP including local procurement of rice

(g) Devolving activities related to adult, non-formal and continuing education to Panchayats

(f) SED and Ministry of Human Resource Development (GoI)

(g) Mass Education Extension Department (MEED) and National Literacy Mission

(f) Desirable : March 2008

(g) Desirable : March 2008

(f) Running and managing Mid Day Programme effectively (ensuring full coverage, quantity and quality) encouraging community contribution and community monitoring

(g) Bringing the entire citizenry from out of illiteracy through local initiatives involving the GUS

(f) Shiksha O Janaswasthya US of GP with the help of GUS and VEC, monitoring and supervision by Shiksha, Sanskriti, Tathya O Krira SS of PS and ZP

(g) Shiksha O Janaswasthya US of GP, to be monitored by Shiksha, Sanskriti, Tathya O Krira SS of PS and ZP

(f) Ongoing(g) 80%

literacy to be achieved by March 2011

Road connectivity

(a) Capacity building of the Panchayat bodies to prepare a list of roads already owned by them or required to be constructed by them to provide effective connectivity to all the habitations along with showing them in map

(a) PRDD, DPRD, SIPRD, District and Block level officials

(b) Same as (a)

(a) March 2008(b) To start after

Panchayat election in 2008 and expected to be completed by March 2009

(a) Preparing list of existing roads (in the Road register with necessary details, which to be updated each year) owned by their body or proposed to be constructed by them, showing the roads in map and making the maps public for their knowledge and comments

(a) ZP & PS – Purta, Karya O Paribahan SS, GP – Shilpa O Parikathama US

(b) Same as (a)

(a) March 2009

(b) To start after Panchayat election in 2008 and expected to be completed by March

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(b) Capacity building of the Panchayats for preparation of perspective roads plan

(b) Preparing a perspective roads plan showing the list of roads to be constructed or upgraded to satisfy the specifications, approving it in the general body considering the comments and implementing it

2009




Road connectivity

(c) Capacity building for proper and effective maintenance of roads with specific budget provision for the same from TFC, SFC and Own funds along with preparation and regular updating of Road Maintenance Register

(d) Capacity building of the Panchayats for introducing road safety measures

(e) Advocacy for street lighting in the roads owned by the Panchayats

(c) PRDD, DPRD, SIPRD, District and Block level officials

(d) Same as (c)(e) PRDD,

District and Block level officials

(c) Ongoing process

(d) March 2009

(e) Ongoing process

(c) Maintenance of roads owned by the Panchayats in such a manner that value of the total road assets does not get reduced and there is no need for fresh capital investment to reconstruct the road within its life span, preparing Road Maintenance Register incorporating physical and financial details of all maintenance and updating it regularly and sharing it with the people as a part of Annual Report

(d) Introducing road safety measures such as putting up proper road signs particularly in sharp turns, controlling traffic speed in congested areas, educating the inhabitants about all safety measures and monitoring if there is any place where accidents are occurring repeatedly for taking necessary action

(e) Street lighting on their roads where it passes through habitation or require lighting on safety ground

(c) ZP & PS – Purta, Karya O Paribahan SS, GP – Shilpa O Parikathama US

(d) Same as (c)(e) ZP & PS – Purta,

Karya O Paribahan SS, GP – Shilpa O Parikathama US

(c) Ongoing process, complete Road Register to be prepared by March 2009

(d) March 2009

(e) March 2011

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Irrigation, drainage and flood protection

(a) Capacity building for watershed development to create maximum irrigation potential in sustainable manner

(a) Water Investigation and Development Department (WIDD), PRDD, District and Block level officials

(a) Ongoing process, significant progress expected to be achieved by March 2009

(a) (i) Installing small irrigation sources, (ii) developing watershed and(iii) provisioning field channels for irrigation

(a) (i) Krishi, Sech O Samabay SS of PS and Krishi O Prani Sampad Bikash US of GP, (ii) & (iii) Krishi O Prani Sampad Bikash US of GP

(a) (i) & (iii) Ongoing,(ii) ongoing, good coverage is expected by March 2012




Irrigation, drainage and flood protection

(b) Advocacy for appropriate drainage facilities for each habitation

(c) Taking major flood protection measures and providing support to local flood protection measures taken by the Panchayats

(b) PRDD, District and Block level officials

(c) Irrigation and Waterways Department (IWD)

(b) Ongoing process

(c) Ongoing process

(b) Providing appropriate drainage facilities for each habitation

(c) Maintaining the traditional Zamindary embankments and taking up other local measures for flood protection

(b) Shilpa O Parikathama US of GP, Purta, Karya O Paribahan SS of PS if the scheme is beyond the technical competency of GP or it spreads beyond one GP

(c) Purta, Karya O Paribahan SS of PS with technical support from ZP and IWD and same SS of ZP when the scheme is beyond the competence of PS

(b) March 2012

(c) Ongoing process

Housing and development of habitat

(a) Advocacy, campaign, assistance and monitoring to ensure availability of durable houses to all households and development of proper habitat for healthy living

(a) PRDD, District and Block level officials

(a) Ongoing process, significant progress expected by March 2012

(a) Providing durable houses to all households (including those who do not have any homestead land) and developing proper habitat for healthy living

(a) Shilpa O Parikathama US of GP

(a) March 2012

Sanctioning building plan and

(a) Capacity building of all the technical staffs of the Panchayats in the

(a) PRDD, DPRD, SIPRD,

(a) Ongoing process, strong

(a) Sanctioning building plan and enforcing other regulations for

(a) Shilpa O Parikathama US of GP or Purta, Karya O Paribahan SS

(a) Ongoing process, appreci-

122


enforcing other regulations for community living

context of growing trend for construction of multi-storied buildings to cope with the increasing density of population keeping in mind the need for protecting environment

District and Block level officials

capacity to be developed by March 2009

community living in view of the growing trend for construction of multi-storied buildings to cope with the increasing density of population keeping in mind the need for protecting environment

of PS/ZP (for bigger structures as per specification)

able progress is supposed to be achieved after March 2009




Marketing and other facilities for promotion of economic activities

(a) Advocacy and capacity building of the Panchayats to promote marketing centre cum business hub for meeting the local needs of the area


(a) March 2010

(a) Promoting one marketing centre cum business hub in every GP for meeting the local needs of the area (unless the area is catered by one or more bigger centres promoted by PS/ZP)

(a) Shilpa O Parikathama US of GP in convergence with Krishi O Prani Sampad Bikash US of GP to promote GP level cnetres, bigger centres to be promoted by Purta, Karya O Paribahan SS of PS/ZP in collaboration with Krishi, Sech O Samabay SS of PS/ZP

(a) March 2012

Issuing trade registration certificates and licenses

(a) Capacity building of GP and PS for issuing trade registration certificates and licenses systematically to reach optimum level of trading activity in the area


(a) Ongoing process

(a) Issuing trade registration certificates and licenses systematically not only for augmenting resources but also for providing required services through the network of trades and businesses in the locality, ensuring environmental sanitation and eco-friendly ambience, preventing unlawful business and keeping tab on trades and businesses in the area

(a) Artha O Parikalpana US of GP except for offensive and dangerous trades and Artha, Sanstha, Unnayan O Parikalpana SS of PS for offensive and dangerous trades

(a) Ongoing process, more than 90% coverage is expected by March 2010

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Special requirements of the urbanised Gram Panchayats

(a) Capacity building of the urbanised GPs to make them more equipped to meet the demands for solid waste management, drainage and street lighting

(a) PRDD, DPRD, SIPRD, District and Block level officials with support from development authority (if the area is under it)

(a) March 2008

(a) Providing improved civic services like solid waste management, drainage and street lighting in convergence with the development authority (if the GP falls within the area of development authority)

(a) GP as a whole and particularly the concerned USs in charge of the subjects

(a) March 2010




Manage-ment of disaster

(a) Capacity building of the Panchayats for better preparedness to minimize loss of human life and property and to impart management skills for tackling such situation


(a) Ongoing process, perceptive progress is expected by March 2009

(a) Better preparedness to minimize loss of human life and property by taking preemptive measures and tackling such situation with total involvement of the community for early restoration of normalcy

(a) Artha O Parikalpana US of GP with total involvement of GUS and community

(a) March 2010

4. Decentralised planning and implementation for economic development and social justice

Land reforms

(a) Advocacy for improvement of land and facilitating other requirements for cultivation to the land reforms beneficiaries by the Panchayats


(a) Ongoing process

(a) Improving land of the beneficiaries of land reform so as to improve their productivity and helping those beneficiaries for accessing other inputs like irrigation water, fertilizer and bank credit etc.

(a) Krishi O Prani Sampad Bikash US of GP

(a) Significant coverage is expected by March 2010

Better management of natural resources and improved land use

(a) Agriculture and allied sector – (i) Capacity building, facilitation and providing technical support for maximum utilization of available

(a) (i) & (ii) State, District and block level officials of Agriculture Department

(f) (i) & (ii) Ongoing process

(a) (i) Providing support and infrastructure so that every plot of land excluding the water bodies are either covered with crop or if the land is not suitable for cropping the same have

(a) (i) & (ii) Krishi O Prani Sampad Bikash US of GP in convergence

(f) (i) Gradual process, expected coverage by March 2011(ii) Para-professionals

124


land resources for intensifying agriculture, (ii) Providing assistance for improving cropping intensity and diversification of crop

(AD) and PRDD

tree cover,(ii) Developing para-professionals to utilize the state assistance, providing micro and minor irrigation, providing mini-kits, assessing crop yield and mediating with the State Government machinery for improving agronomic practices for improving yield

with Krishi, Sech O Samabay SS of PS

by March 2009 and the others are ongoing process, which will gather necessary momentum with the progress of (i)



4. Decentralised planning and implementa-tion for economic development and social justice


(b) Promotion of agro-forestry and social-forestry – Advocacy for taking up plantation in all possible areas

(c) Development of water bodies and promotion of fishery – Advocacy for development of water bodies along with providing technical support for pisciculture

(d) Water and soil conservation measures – Providing technical support for soil conservation and strengthening the technical capabilities of the ZP through the DRDC and WBCADC for supervising and supporting Panchayat initiatives

(e) Promotion of animal

(b) PRDD and Forest Department with District and Block Level officials of both Dept.

(c) District and block level officials of PRDD and Fisheries Department (FD)

(d) Soil conser-vation wing of AD in collaboration with PRDD

(e) (i) & (ii) Block and GP level

(g) Ongoing process

(h) Ongoing process

(d) March 2009

(e) (i) & (ii) On-going process

(iii) To be decided by ARDD

(b) Preparing own nurseries with the help of SHGs and plantation of variety of species preferred by the community to ensure tree cover in all possible areas

(c) Development of water bodies and leasing it out to SHGs or fishermen’s group for composite culture of fishery, duckery and plantation along with ensuring irrigation in the command area

(d) Taking up water and soil conservation measures in all required areas out of various programmes including wage employment programmes and watershed development programmes

(e) (i) Providing inputs for animal husbandry like chicks, ducklings, kids and piglets to

(b) Krishi O Prani Sampad Bikash US of GP

(c) Krishi O Prani Sampad Bikash US of GP

(d) Krishi O Prani Sampad Bikash US of GP

(e) (i), (ii) & (iii) Krishi O Prani Sampad Bikash US of GP

(b) March 2011

(c) Ongoing process, more than 80% coverage in 10 NREGA districts by March 2009 and rest districts by March 2011

(d) Ongoing process, more than 80% coverage in 10 NREGA

125


husbandry – (i) Advocacy, support and providing skill training for larger extension of improved practices(ii) Capacity building of the Panchayats for intensifying supply of inputs(iii) Handing over day-to-day running and maintenance of veterinary dispensaries to Panchayats

officials of Animal Resource Development Department (ARDD) with the help of Prani-bandhu(iii) ARDD in consulta-tion with PRDD

the poor families, particularly to the members of the SHGs(ii) Developing infrastructure(iii) Organizing the producers for having better bargaining power in negotiating for buying inputs and selling products and also mediating with the large producers for linking the small producers, particularly the SHGs with them for better price realiza-tions and marketing support

districts by March 2010 and rest districts by March 2012

(e) (i) & (ii) Ongoing process(iii) March 2009



4. Decentralised planning and implementa-tion for economic development and social justice


(f) Restructuring the West Bengal Comprehensive Area Development Corporation – To develop it as the technical support organizations of the ZPs (functioning under the overall control and guidance of ZP for supplying inputs and providing extension support) in promoting livelihood in agriculture and allied sectors

(f) PRDD (f) March 2009

(f) (i) Investing on the available infrastructure of the WBCADC for augmenting their production capacities and engaging experts to work for that organization(ii) Creating awareness and motivation among the people for taking benefit of the services and inputs available

(f) (i) Krishi O Prani Sampad Bikash SS of ZP with support from PRDD(ii) The above SS of ZP & PS and Krishi O Prani Sampad Bikash US of GP

(f) (i) March 2010(ii) Conti-nuous process with apprecia-ble impact by March 2010

Promotion of livelihood opportuni-ties in non-farm sectors

(a) Promotion of livelihood opportunities in secondary and tertiary sectors – Support to Panchayats (providing skill development trainer, mediating with the financial institutions for credit) for expansion of livelihood

(a) Block level officials, nodal role to be played by the Block Develop-ment Officer

(a) March 2009

(b) Ongoing process

(a) Developing appropriate infrastructure, arranging skill training for the people, particularly those from the poorer and weaker sections of the community, mediating with the financial institutions for

(a) Artha, Sanstha, Unnayan O Parikalpana SS of PS with the help of respective SS of PS and with assistance

(a) March 2010

(b) Ongoing process

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opportunities (b) Household and other small

scale industries – Increasing the capacities of the District Rural Development Cells (DRDC) for operationalising the initiatives of the Zilla Parishads and creating other enabling conditions for expansion of non-farm economic activities in all possible sectors and in every possible geographical location

(BDO)(b) State and

District level officials of Cottage and Small Scale Industries Department (CSSID) and PRDD

providing better access to credit for expansion of livelihood opportunities

(b) Identifying and procuring land as may be necessary and developing infrastructure, arranging skill development training, providing marketing support and mediating with banks for credit support

from GP as a whole

(b) DRDC and Khudra Shilpa, Bidyut O Achiracharit Shakti SS of ZP and PS and Shilpa O Parikathama US of GP




Promotion of livelihood opportunities in non-farm sectors

(c) Promotion of service sectors – Guiding and supporting Panchayats for development of conducive infrastructure for growth of service sectors

(c) PRDD (c) Ongoing process

(c) Developing infrastructure for promotion of new economic activities with larger employment potential like the IT and the IT enabled services, developing markets and rural business hubs

(c) Artha, Sanstha, Unnayan O Parikalpana SS of ZP and PS

(c) On-going process

Alleviation of poverty & social equity

(a) Providing wage employment to the unskilled workers – (i) NREGA districts: Augmenting capacities of the Panchayats and removing the constraints in realising the demand for employment and setting up a dependable machinery for

(a) (i) & (ii) PRDD, District and Block level officials

(a) (i) & (ii) Ongoing process

(a) (i) NREGA districts – Estimating the demand for unskilled wage employment and its seasonality with active participation of the GUS and to meet the demand by taking schemes which will boost the employment opportunities(ii) Other districts –

(a) (i) Artha O Parikalpana US, Krishi O Prani Sampad Bikash US and Shilpa O Parikathama US of GP, Artha, Sanstha, Unnayan O Parikalpana SS, Purta, Karya O Paribahan SS and Krishi, Sech O

(a) (i) March 2008(ii) March 2009

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monitoring and supervision(ii) Other districts: Augmenting capacities of the Panchayats so that they can be able to fully utilize the available resources under the SGRY strengthened by a machinery for monitoring and supervision

Identification of schemes for employment generation for the poorest section by utilising cent per cent available fund and thereby creating assets for sustainable employment through private enterprises widening the scope for the poorest people and the women for augmenting their income

Samabay SS of PS(ii) Same USs of (i) and Shiksha O Janaswasthya US of GP, Same SSs of (i) and Shiksha, Sanskriti, Tathya O Krira SS of PS




Allevia-tion of poverty & social equity

(b) Implementation of area development programmes –Developing capacities of three tier Panchayats for proper implementation of the watershed development programmes


(b) March 2010

(b) Implementing watershed development programmes under Hariyali schemes as well as other watershed development programmes with major focus on those Blocks covered under the DPAP and other blocks facing land degradation

(b) Krishi, Sech O Samabay SS of PS and Krishi O Prani Sampad Bikash US of GP

(b) March 2011

(c) Self help groups and self employment – (i) Advocacy, campaign and facilitation to cover all poor families by bringing at least one member, particularly the

(c) (i) PRDD, DPRD, SIPRD, District and Block level officials with the help of DRDC(ii) Same as (i)

(c) (i) Ongoing process(ii) Ongoing process(iii) Ongoing process

(c) (i) Forming SHGs to cover all poor families(ii) Formation of GSMT in each GP(iii) Monitoring progress of SHGs once in a month and taking necessary interventions accordingly(iv) Cluster/s (of SHG) is/are formed in each GP and the Cluster/s is/are

(c) (i) Nari, Sishu Unnayan O Samaj Kalyan US of GP with active involvement of GUS, monitoring by concerned SS of PS and DRDC(ii) Nari, Sishu Unnayan O Samaj Kalyan US of GP, monitoring by concerned SS of PS and DRDC(iii) Nari, Sishu Unnayan O Samaj Kalyan US of GP with the help of GSMT, supervision by concerned SS of PS and DRDC

(c) (i) Ongoing, major progress by March 2010(ii) March 2008(iii) Process initiated,

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women, under SHG(ii) Advocacy and facilitation to form GP SHG Management Team (GSMT) in each GP and capacity building of GSMT(iii) Mediating with the financial institution for credit linkage of SHGs

(iii) State, District and Block level officials through the Bankers’ Committee at respective levels

provided infrastructural support for their functioning(v) Spending out untied fund by all the three tiers through providing non-credit inputs to SHGs for augmentation of their income as well as expansion of other social opportunities(vi) Ensuring that Every SHG will have access to credit through either cash credit account or scheme-based lending

(iv) Nari, Sishu Unnayan O Samaj Kalyan US of GP, monitoring by concerned SS of PS and DRDC(v) Artha, Sanstha, Unnayan O Parikalpana SS to decide on spending through Sishu O Nari Unnayan, Janakalyan O Tran SS in case of ZP and PS, Artha O Parikalpana US to decide on spending through Nari, Sishu Unnayan O Samaj Kalyan US in case of GP, monitoring by DRDC(vi) Nari, Sishu Unnayan O Samaj Kalyan US of GP, monitoring by concerned SS of PS and DRDC

significant progress is expected by March 2008(iv) March 2008(v) Process initiated, significant progress is expected by March 2009(vi) March 2010




Alleviation of poverty & social equity

(d) Reduction of poverty and providing other support to the BPL families – (i) Preparation of new BPL list and updating the same from time to time(ii) Capacity building of the GP for updating the BPL list, objective identification of beneficiaries out of the BPL list and sharing all information to the common people

(d) (i) & (ii) Development and Planning Department (DPD), PRDD, District and Block level officials

(d) (i) Preparation going on, expected to be completed by December 2007(ii) Ongoing process after December 2007

(d) (i) Maintaining the list(ii) Ensuring wider dissemination of information and consultation of the people for updating the BPL list every year and helping the Gram Sansads to identify new beneficiaries out of the BPL list based on objective criteria and providing access to all the information to the common people for better transparency in decision making

(d) (i) The PS as a whole(ii) The GP as a whole with the help of GUS

(d) (i) Ongoing process after December 2007(ii) Significant progress is expected by March 2010

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Measures for social security

(a) Food security and the PDS – Advocacy and capacity building of PS and GP to ensure selection of beneficiaries for Antyodaya Anna Yojana, Annapurna Yojana without loss of time and to install an effective system of monitoring so that the desired benefits of these and also of PDS reach the people

(a) Food and Supplies Department, PRDD, District and Block level officials

(a) Ongoing process

(a) Selecting beneficiaries for Antyodaya Anna Yojana, Annapurna Yojana without loss of time, installing an effective system of monitoring so that the desired benefits reach the people and sharing this information with the people along with the names of new beneficiaries

(a) Artha O Parikalpana US of GP, to be facilitated and monitored by Khadya O Sarbaraha SS of PS

(a) Ongoing process, significant progress in all the mentioned milestones is expected by March 2009




Measures for social security

(b) Social security measures – Devolving seven various pension schemes run by the administrative departments to Panchayats

(c) Provident fund for landless agricultural labourers and unorganised workers – Capacity building of GP/PS for more efficient management of PROFLAL and SASPFUE

(d) Implementation of

(b) Women & Child Development and Social Welfare Department (3 schemes), Fisheries Department, Agriculture Department, Cottage & Small Scale Industries Department, Backward Classes Welfare Department

(c) PRDD, DPRD,

(b) March 2009

(c) Ongoing process

(d) March 2008

(b) Running National Old Age Pension Scheme (NOAPS) efficiently so that every pensioner get pension on a specified date or next working day at the beginning of every month (giving the money initially from the own fund and reimbursing the same with the state government fund) and when devolved, administering the fund in the same manner in respect of those seven pension schemes and selection of new beneficiaries for those schemes as the occasion may arise

(c) Ensuring more coverage,

(b) For NOAPS Nari, Sishu Unnayan O Samaj Kalyan US in convergence with Artha, Parikalpana US of GP, for seven other schemes the same US of GP with the help and guidance of Sishu O Nari Unnayan, Janakalyan O Tran SS of PS

(c) For PROFLAL Krishi O Prani

(b) For NOAPS March 2008 and for seven other schemes as soon as the schemes are devolved

(c) December 2010

(d) Ongoing process, desirable progress should be reached by

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the National Family Benefit Scheme (NFBS) – Advocacy and campaign to cover each and every eligible family along with establishing a quick fund transfer mechanism and streamlining the procedure

SIPRD, District and Block level officials

(d) PRDD, District and Block level officials

collecting monthly subscription and returning the matured amounts or extending the benefit on the event of death of the participating members in more efficient manner

(d) Generating awareness about the scheme, covering each and every eligible family under the scheme and reaching the benefit to the family within a month of receiving the application

Sampad Biaksh US and for SASPFUE Artha O Parikalpana US of GP

(d) Shiksha O Janaswasthya US of GP

March 2010




Planning from below for economic development and social justice

(a) Building up capacities at all levels of Panchayats through sustained facilitation, handholding, showing good practices and exposure visits so that they can prepare bottom-up participatory plans

(a) PRDD, specifically the Cell in charge of Strengthening Rural Decentralisation (SRD) Programme and Backward Regions Grant Fund (BRGF)

(a) Ongoing process

(a) (i) Holistic planning by all Panchayat bodies in 6 most backward districts (Uttar Dinajpur, Dakshin Dinajpur, Malda, Murshidabad, Birbhum, Purulia) (ii) Holistic planning by all Panchayat bodies in 5 other districts (Jalpaiguri, Bankura, Paschim Medinipur, Purba Medinipur, South 24 Parganas)(iii) Holistic planning in a similar manner through a simplified procedure in the rest districts

(a) (i), (ii) & (iii) GP as a whole (with active participation of GUS and community), PS as a whole and ZP as a whole with active involvement of line department officials

(a) (i) March 2007(ii) March 2008(iii) March 2008

[This short timeframe is because of BRGF, prolonged facilitation is required for real participatory plan which targets to cover around 300 GP by 2006-07, another 300 GP by 2007-08 and all GPs of 6 most backward districts by 2008-09 and thereby leading to preparation of PS plan and ZP plan as well. From the last quarter of 2007-08 the programme will be spread over to 6 more districts and it is targeted to cover 300 GPs in those

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districts by 2008-09]4. Decentralised planning and implementation for economic development and social justice

Developing Panchayat-private partnership

(a) Advocacy and campaign for Panchayat-private partnership for service delivery on the principle of social marketing

(a) PRDD, District and Block level officials

(a) Ongoing process

(a) Entering in to Panchayat-private partnership in respect of delivery of services on the principle of social marketing where the price realization from the people to be decided in consultation with the Panchayats and the quality of the services to be monitored and its access to be ensured to all concerned

(a) GP and PS as a whole

(a) March 2010



5. Augmenting Panchayat finance and improving financial management

Improving collection of own source revenue (OSR) by the Panchayats

(a) Initiating self-declaration form for assessment of tax along with capacity building of the Panchayat functionaries on the same

(b) Advocacy and facilitation so that all Panchayat bodies adopt Bye-Law for themselves and collect rate, fee etc. by using all clauses of the Bye-Law

(c) Capacity building for identification (and assessment for GP) of all potential sources of non-tax revenue and collecting the same

(a) PRDD, DPRD, District and Block level officials


(c) PRDD, DPRD, SIPRD, District and Block level officials

(a) Process initiated, initial capacity building completed

(b) Ongoing process

(c) Ongoing process

(d) Ongoing process

(a) Understanding the process, reaching the forms to all the households, getting the self-declared forms back from the households, publishing draft assessment list in the GP office asking objections from people, finalising the list and collecting tax with help of tax collectors and GUS

(b) Adopting Bye-Law by all GP, PS and ZP and collecting revenue using all clauses

(c) Identification (and assessment for GP) of all potential sources of non-

(a) Artha O Parikalpana US of GP with the help of GUS

(b) Artha O Parikalpana US of GP, Artha, Sanstha, Unnayan O Parikalpana SS of PS and ZP

(c) Same as (b)(d) Same as (b)

(a) Finalisation of assessment list by March 2007 and tax collection throughout 2007-08

(b) Adopting by March 2008, collection by using all the clauses is expected by March 2009

(c) Identification (assessment for GP) by March 2008, annual collection is a

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(d) Advocacy for utilising OSR for development of that area

(d) PRDD, DPRD, District and Block level officials

tax revenue and collecting the same with maximum efficiency

(d) Utilising OSR for the development of the area so that further collection is enhanced

continuous process

(d) Continuous process

Improvement of budgetary control and financial management

(a) Computerisation of all accounting and financial management related activities, putting appropriate system for monitoring financial performance in place and organizing training of all the functionaries


(a) Ongoing process, significant progress is expected by the end of 11th FYP period

(a) Adapting the new systems quickly and following the systems for better accounting procedure, budgetary control and financial management

(a) Artha O Parikalpana US of GP, Artha, Sanstha, Unnayan O Parikalpana SS of PS and ZP

(a) Within three months from the launching of the system at the particular Panchayat




Improvement of budgetary control and financial management

(b) Monitoring financial performance of all ZPs every month

(b) PRDD (b) Ongoing (b) (i) Monitoring financial performance of all PSs every month(ii) Monitoring financial performance of all GPs every month

(b) (i) Artha, Sanstha, Unnayan O Parikalpana SS of ZP(ii) Same SS of PS

(b) Regularity is expected by (i) March 2008(ii) March 2009

Improvement of accounting practices and computerisation of accounts

(a) Introducing new GP Accounts Rule based on double entry system and related capacity building to all concerned

(b) Computerisation of accounts of all PSs along with necessary capacity building

(c) Computerisation of accounts of all GPs along with necessary capacity


(b) Same as (a)

(c) Same as (a)

(a) May 2007

(b) March 2008

(c) March 2010

(a) Adapting to new GP Accounts Rule quickly and implementing it

(b) Adapting to computerised accounting system quickly and discontinuance of manual accounting

(c) Adapting to computerised accounting system

(a) The GP as a whole in general and the employees in particular

(b) The PS as a whole and the employees in particular

(c) The GP as a whole in general and the

(a) April 2008(b) April 2009(c) April 2011

133


building quickly and stopping manual accounting

employees in particular

Internal audit of Panchayat accounts

(a) Filling up the vacant posts of the Panchayat Audit and Accounts Officer (PAAO), Samiti Audit & Accounts Officer (SAAO) and the Parishad Audit and Accounts Officers

(b) Establishing Audit & Accounts Cell at DPRD for proper monitoring, follow up and training of all personnel concerned on accounts and related matters of financial management

(a) PRDD, DPRD

(b) PRDD, DPRD

(a) March 2009

(b) March 2008

(a) No activity(b) No activity

(a) No responsibility


(a) No timeframe

(b) No timeframe




Social audit (a) Advocacy, campaign, monitoring and adopting other measures so that all the specified information are disseminated to people to ensure informed and effective social auditing


(a) Ongoing process

(a) (i) Placing all the specified information of GP in Gram Sansad and Gram Sabha meetings, displaying in the notice board or in wall painting, sending to library or making available to all person coming to office to see it (ii) Placing all the specified information of PS/ZP in Block/Zilla Sansad meeting, displaying in the notice board or in wall painting, sending to library or making available to all person coming to office to see it

(a) (i) GP as a whole, Artha O Parikal-pana US in particular(ii) PS/ZP as a whole, Artha, Sanstha, Unnayan O Parikal-pana SS in particular

(a) (i) & (ii) Ongoing process, the expected condu-cive atmos-phere should be reached by March 2008

6. Employees (a) Ensuring that the Panchayats (a) Administra- (a) March (a) Utilising the services of (a) Artha, (a) Process

134


Functionaries of the Panchayats and building their capacities

of the Panchayats

at every level get the services of own employees, formally deputed employees, government employees whose services have been placed for the functional control to be exercised by the Panchayats when administrative is retained by the departments concerned as well as professional service providers or trained para-professionals to bear the work load of the Panchayats setting up a mechanism for the Panchayat bodies to have adequate functionaries with reasonable accountability

tive departments of State Government whose activities are linked with the Panchayats

2009 different types of employees with utmost efficiency so as to ensure maximum level of service delivery to the people

Sanstha, Unnayan O Parikal-pana SS of ZP/PS and Artha O Parikal-pana US of GP in particular and the respective bodies in general

going on



6. Functionaries of the Panchayats and building their capacities

Capacity building of employees & other functionaries of Panchayats

(a) Training all new recruits on the basic skills required at that level as well as to orient them for working as an employee of the local bodies, preferably within three months from their joining the services

(b) Ensuring in-service training as per felt need and reorientation of all employees once in every five year

(c) Imparting basic training to all the members elected for the first time within six months of their election using the distance learning mode as well as class room based training

(d) Providing appropriate training

(a) PRDD, DPRD, SIPRD, ETCs, District and Block level officials

(b) Same as (a)

(c) Same as (a)

(d) Same as (a)

(e) Same as (a)

(f) SIRPD, Training

(a) Ongoing process to be strengthen-ed after March 2008

(b) Ongoing process

(c) A continuous process after every Panchayat election

(d) Same as (c)

(e) Same as

(a) Ensuring that all the employees attend the training, utilisation of their acquired knowledge for good practices as also assessing their acquired competency level after the training and giving feed back to PRDD through Block and District level officials

(b) Same as (a)(c) Ensuring that all the

members attend the training, assessing their acquired

(a) Respective Panchayat body as a whole and particularly Artha, Sanstha, Unnayan O Parikalpana SS of ZP/PS and Artha O Parikalpana US of GP

(b) Same as (a)(c) Same as (a)(d) No

responsibility(e) Sabhadhipati/

Sahakari

(a) Commen-cing from the next of the training programme

(b) Same as (a)(c) Same as (a)(d) No

timeframe(e) Within one

month of the training programme

(f) No timeframe

135


to the important office bearers like Sabhapati, Sahakari Sabhapati, Pradhan, Upa-Pradhan within six months of their assuming office

(e) Providing appropriate training to Karmadhyakshas of SS of ZP and PS and Sanchalaks of US of GP within one year of their assuming office

(f) Reviewing training materials (printed and electronic) to identifying further requirement particularly in the context of distant learning using the recently installed satellite based facilities (Loka Shiksha Sanchar)

& NGO Cell and SRD Cell of PRDD, DPRD and ETCs

(c)(f) March

2008

competency level after the training and giving feed back to PRDD

(d) No activity(e) Ensuring that all

Karmadhyakshas/Sanchalaks attend training, assessing their acquired competency level after the training and giving feed back to PRDD

(f) No activity

Sabhadhipati and Sabhapati/ Sahakari Sabhapati for Karmadhya-kshas and Pradhan/ Upa-Pradhan for Sanchalaks

(f) No responsibility





(g) Arranging exposure visits of Panchayat functionaries for peer learning and sharing of best practices

(h) Establishing Training Cell in each ZP to tie up with SIPRD and ETCs to meet training requirement

(i) Developing suitable training infrastructure at the districts for residential training, developing infrastructure of WBCADC for providing livelihood related training, developing local resource pool of trainers in various

(g) PRDD, District and Block level officials

(h) PRDD(i) PRDD,

DPRD, SIPRD, ETCs and District level officials

(j) PRDD, District and Block level

(g) A continuous process from 2009

(h) March 2008

(i) March 2008

(j) December 2007

(k) December 2007

(l) March 2009

(m) At present, support is being

(g) Selecting appropriate persons, and sharing their experiences after the exposure visit

(h) Providing necessary establishment support along with regular monitoring the activities of the Cell

(i) Providing necessary support for infrastructure development and in selecting persons for the resource pool

(j) Monitoring infrastructure

(g) Artha, Sanstha, Unnayan O Parikalpana SS of ZP/PS and Artha O Parikalpana US of GP

(h) Artha, Sanstha, Unnayan O Parikalpana SS of ZP

(i) Artha, Sanstha, Unnayan O Parikalpana SS and Purtakarya O Paribahan SS of ZP

(g) A continuous process from 2009

(h) A continuous process during and after setting up the Cell

(i) As and when required by the State Government

(j) December 2007

(k) Ongoing

136


disciplines in each district(j) Ensuring that each Block

office have suitable training infrastructure for non-residential training

(k) Developing 2-3 resource persons in each Block to facilitate distance learning through Loka Shiksha Sanchar

(l) Developing one classroom for training in each GP

(m) Providing handholding support to the GP functionaries (of those GPs who are not performing at per other GPs) at their office by mobile facilitators

officials(k) PRDD,

Roopkala Kendro, District and Block level officials

(l) PRDD, District and Block level officials

(m) PRDD, District and Block level officials

provided to 442 GPs of 8 most backward districts, the same will be scaled up to cover all the GPs (where it is necessary) by March 2008

developed(k) Facilitating the

process of selecting resource persons

(l) Providing necessary support for infrastructure development

(m) Creating enabling environment at the GP office on the day at which the team providing support along with ensuring that all concerned attend the interactive session

(j) Artha, Sanstha, Unnayan O Parikalpana SS of ZP and PS

(k) Artha, Sanstha, Unnayan O Parikalpana SS

(l) Shilpa O Parikathama US of GP

(m) Artha O Parikalpana US of GP

process making the set-up fully functional by December 2007

(l) March 2009(m) A

continuous process where this handholding support is being provided





(n) Wider dissemination of knowledge about the roles and functions of the Panchayats for enabling the citizen to participate more effectively through continuing Panchayat O Gramonnayaner Asor (an interactive Radio programme broadcasted through Kolkata – A of AIR on every Saturday from 8 p.m. to 9 p.m.) and setting up Citizens’ Service Centres (CSC) in every GP and PS

(n) PRDD for Radio programme, PRDD, District and Block level officials for CSC

(n) Radio programme ongoing and CSC to follow National E-Governance Plan (NEGP)

(n) Intimating the community about the Radio programme and CSC and asking them to participate or to take access

(n) All elected representatives and employees of three tier Panchayats

(n) Continuous process

Strengthening SIPRD, the ETCs

(a) Strengthening SIPRD as per requirement to meet the capacity building need as specified

(a) PRDD, SIRPD

(b) PRDD,

(a) March 2008(b) March 2007(c) Expected by

(a) No activity(b) No activity(c) No activity


(b) No

(a) No timeframe

(b) No

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throughout this map(b) Strengthening (infrastructure

including computer lab for computer training) the ETCs as well as the facility at Rajarhat to take up courses

(c) Developing a specialized training institute to deal with training requirement of the SHGs

District level officials

(c) PRDD on putting in place available resources

March 2010 responsibility(c) No

responsibility

timeframe(c) No

timeframe

Use of Information and Communica-tion Technology (ICT) for efficient functioning

(a) Developing websites of all Zilla Parishads having PS and GP level information

(b) Bringing all the PS under intra-mail facility through WEBSWAN

(a) NIC with the help of PRDD, District and Block level officials

(b) PRDD, WEBSWAN

(a) March 2008(b) March 2008

(a) Taking active initiative for website development with the help of NIC

(b) No activity

(a) Artha, Sanstha, Unnayan O Parikalpana SS of ZP


(a) March 2008(b) No

timeframe




Use of Information and Communication Technology (ICT) for Efficient Functioning

(c) Establishing connectivity with all GP through the service providers of CSC

(d) Providing faxing facilities to all the GPs for better exchange of information and easier and timely collection of reports

(c) PRDD, Service providers of CSC

(d) PRDD, District and Block level officials

(c) Following setting up of CSC as per NEGP

(d) March 2008

(c) No activity(d) Procuring

the fax machine from Twelfth Finance Commission grant or from OSR

(c) No responsibility

(d) Artha O Parikalpana US of GP

(c) No timeframe

(d) March 2008

Strengthening the Directorate Office

(a) Setting up one Audit & Accounts cell, one Fund Management cell, one Resource Mobilization cell, one

(a) PRDD, DPRD (a) March 2009

(a) No activity (a) No responsibility

(a) No timeframe

138


Training cell and one Inspection cell in the directorate to give special emphasis in those areas

7. Harmonisation of Acts and Rules concerning functioning of the Panchayats

Acts for which amendments are proposed

(a) 29 State Acts – (i) Sending the proposals to the concerned departments(ii) Preparing the Bills for Amendment(iii) Finalisation of the Bills (iv) Decision of Cabinet on the Bills and enactment

(a) (i) PRDD(ii) Concerned administrative departments(iii) Concerned administrative departments and Law Deaperment(iv) Cabinet

(a) (i) September 2007(ii) September 2008(iii) March 2009(iv) September 2009

(a) No activity (a) No responsibility

(a) No timeframe



7. Harmonisation of Acts and Rules concerning functioning of the Panchayats

Acts for which amendments are proposed

(b) 4 Central Acts – (i) Preparing the proposals(ii) Approval of the Cabinet(iii) Sending the proposals to the GOI as may be approved by the Cabinet(iv) Enacting the amendments

(b) (i) PRDD(ii) Cabinet(iii) PRDD or concerned department(iv) GOI (as may be desired by them)

(b) (i) September 2007(ii) December 2007(iii) March 2008(iv) As may be desired by GOI

(b) No activity


(b) No timeframe

Amendment of Panchayat Act / Rules

(a) Amendment of the West Bengal Panchayat Act, 1973

(b) Framing the West Bengal Panchayat (Gram Panchayat Accounts, Audit and

(a) PRDD, Law Department, Cabinet

(b) PRDD, Law Department

(a) Bill by June 2007, Cabinet approval by September 2007 and finalisation by December 2007

(a) No activity

(b) No activity

(c) No



(c) No

(a) No timeframe

(b) No timeframe

(c) No

139


Budget) Rules, 2007(c) Framing the West Bengal

Panchayat (Panchayat Samiti Administration) Rules, 2007

(d) Framing the West Bengal Panchayat (Zilla Parishad Administration) Rules, 2008

(c) PRDD, Law Department

(d) PRDD, Law Department

(b) Drafting by March 2007, finalisation by May 2007

(c) Drafting by September 2007, finalization by December 2007

(d) Drafting by March 2008, finalization by June 2008

activity(d) No

activity

responsibility(d) No

responsibility

timeframe(d) No

timeframe

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9.2 Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the ConstitutionSubjects in

the Eleventh Schedule

Corresponding Departments

Sthayee/ Upa Samiti concerned

Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping

Division Zilla Parishad Panchayat Samiti Gram Panchayat1. Agriculture, including agricultural extension

(i) Agriculture, (ii) Agriculture Marketing, (iii) Co-operation(iv) Food and Supplies(v) Sundarban Affairs

(i) Krishi, Sech O Samabay S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions

1) Fixing up target for each Panchayat Samiti for selection of beneficiaries

2) Fixing up target for holding awareness camp and campaign and monitor and supervise the same, if necessary

3) Involving the Sub-divisional Agricultural Officer and Specialist Officers in the campaign, if necessary

4) Initiating Block wise awareness campaign at the beginning of each crop season

5) Sub-allot minikits/seeds/ bio-fertilizer (at subsidized price) to Panchayat Samitis for distribution among farmers

6) Fix target for each Panchayat Samiti for distribution of Agricultural equipments

7) Fix target in consideration of technical possibilities and field situation and monitor timely distribution

8) Monitor & supervise Block wise distribution of farmers’ old age pension.

9) Distribute financial assistance under centrally sponsored programme for infrastructure development

10) Const. & maintenance of Agricultural Training Centres, Government Agricultural Farms and Seed Testing Laboratory

11) Selection of hats, markets, link roads, godowns etc for development

12) Sanction of subsidy for improved storage structure, bullock cart, van rickshaw to small and marginal farmers

13) District Level competition on the production of organic manure.

14) Drought Prone Area Programme in 36 Blocks – linked with the Water Shed Development Programmes of P&RD Dept

1) Fixing up target for each Gram Panchayat for selection of beneficiaries

2) Fixing up target for holding awareness camp and campaign and monitor and supervise the same, if necessary

3) Select venue and faculty for training4) Supervise and monitor training5) Fix target for distribution of minikits /

seeds / bio-fertilizer (at subsidized price) to Gram Panchayats

6) Monitor proper and timely distribution of Agricultural equipments on the basis of technical possibilities and field situation

7) Integrated programme for cereal development

8) Seed supply and development – subsidized sale of quality seeds / seeds for green manuring

9) Fertilizer and manure – making sale points, balanced use of fertilizer and micronutrients, Transport subsidy.

10) Development of pulses (State plan and Centrally sponsored National Pulses development Project)

11) Development of Oil seeds – supply of mini kits (State and Centrally Sponsored Seed Production programme)/ Seed village scheme

12) Demonstration center/ supply of nutrient minikits

13) Development of sugar cane—nursery plot demonstration,

14) Development of Maize— Supply of improved seed minikits / training of farmers

15) Development of Jute cultivation – supply of improved variety seeds, marketing support.

16) Monitor and supervise GP wise distribution of farmers’ old age pension

17) Organizing credit support for farmers.

1) Selecting or nominating beneficiaries

2) Organizing awareness camp and field demonstration in consultation with ADO / SAO

3) Identify and select farmers for training

4) Identify & select beneficiaries for distribution of minikits / seeds / bio-fertilizer / pesticides / farm machinery / plant protection equipments

5) Field-training and visit system6) Popularization of new varieties and

package of practices through distribution of Minikits.

7) Selection of farmers for the study tours

8) Selection of farmers' for new variety cultivation

9) Distribution of certified seeds and minikits

10) Construction of pucca manure pits11) Promotional work for producing

organic manure, green manure and bio- fertilizers

12) Field demonstration for transfer of technology and distribution of minikits

13) Distribution of equipments viz, row seed drills and wheel hoe, hand sprayer, power sprayer etc.

14) Distribution of plant protection equipment, Crop cutting experiment etc.

15) Dry land / Rain fed crop demonstration

16) Demonstration centers of improved seeds

17) Selection of Old aged farmers for pension from Gram Sansads according to the norms

Contd. in next page……

141


Subjects in the Eleventh

Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat1. Agriculture, including agricultural extension

(i) Agriculture, (ii) Agriculture Marketing, (iii) Co-operation(iv) Food and Supplies(v) Sundarban Affairs

(i) Krishi, Sech O Samabay S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Additional Functions

15) Identifying the training need16) Preparing action plan for

enhancing skill and field demonstration and executing the same

17) Preparing action plan for information dissemination and motivation of farmers and executing the same

18) Prepare Block wise Action Plan involving Agricultural Officers working at Sub-division level and monitor & supervise crop insurance and Kishan Credit Card distribution

19) Prepare Action Plan for quality seed production

20) Take initiative for supply and utilization of human resources in Agri-farm

21) Periodical supervision of cold storage

22) Inspection of ware houses23) Supervision & monitoring of Hat /

markets in Panchayat areas24) Circulation of market information

to State Govt. & other organizations

18) Collect Agricultural data from all Gram Panchayats and forward to the District Office for future use in training and skill upgradation

19) Organize awareness camp with the support of Gram Panchayat for maintenance of eco-system and reuse of implements/equipments/inputs

20) Fix up GP wise Action Plan for crop insurance and Kishan Credit Card distribution

21) Prepare Action Plan for quality seed production in Agri-farm

22) Take action for supply of Agri-labour in Agri-farm

23) Maintain quality of seeds24) Arrange for proper utilization of seeds in

the locality25) Settlement of dispute between owners and

hirers regarding allocation of space in cold storage

26) Assessment of need for further cold storage, identification of opportunities and execution of scheme

27) Monitoring sale prices of commodities in rural hats and markets

28) Circulation of market information to ZP & other organizations

18) Send all agriculture related data and special need or necessities to the ADO

19) Collect data and jointly survey loss of crop and assist the Department in estimation of amount

20) Collect soil for sample survey and organize awareness camp on this issue

21) Estimate need-based requirement of seeds

22) Take active role in production of quality seeds and their distribution

23) Collect data on use of seeds and their impact

24) Allocation of space in cold storage25) Issuing recommendation for setting

up new cold storage26) Identification of hats, markets, link

roads, godowns etc for development27) Awareness campaign among

farmers for using cold storage28) Collection of raw data on market

prices29) Circulation of market information

to Panchayat Samiti

2. Land improvement, implementa-tion of land reforms, land consolidation and soil conservation

(i) Land and Land Reforms, (ii) Panchayats and Rural Development (iii) Agriculture(iv) Irrigation and Waterways

(i) Krishi, Sech O Samabaya S.S., (ii) Bon O Bhumi Sanskar S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions

1) Identification of benami lands, monitor vesting & distribution of vested lands

2) Short term settlement of River-fisheries, Ferries and Jalkars,

3) Settlement of sowing and harvesting disputes,

4) Steps for increased collection of Royalties and Cess on mines-minerals,

5) Utilization and maintenance of Khasmahal lands,

6) Survey and vesting of char land,7) Legal steps against illegal

brickfields and filling of tanks / water bodies.

8) Protecting interest of tribal raiyats

1) Distribution of vested lands2) Identification of big land owners & vesting

of ceiling surplus land3) Identify Bargadars for recording4) Solution of harvesting & sowing disputes5) Exemption of land revenue for eligible

raiyats6) Identify eligible homestead beneficiaries

under Acquisition of Homestead Lands Act 1975

7) Protection of tribal raiyats & share croppers

8) Joint survey of char lands vested in the State

9) Preventing operation of illegal brick fields & filling of tanks / water bodies

1) Identification of big land owners2) Identification of cultivators for

recording names as Bargadars3) Identification of beneficiary for

distribution of vested agri-land4) Exemption of land revenue to eligible

raiyats including issue of certificates5) Identify cases of dispute during

sowing or harvesting6) Initiate legal action against illegal

felling of trees7) Identify illegal brick fields, queries &

illegal conversion of land8) To initiate legal action against in

respect of above cases9) Inspect & report illegal filling up

tanks / water bodies

142

Roadmap for the Panchayats in West Bengaland share croppers



Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat2. Land improvement, implementa-tion of land reforms, land consolidation and soil conservation

(i) Land and Land Reforms, (ii) Panchayats and Rural Development (iii) Agriculture(iv) Irrigation and Waterways

(i) Krishi, Sech O Samabaya S.S., (ii) Bon O Bhumi Sanskar S.S. / (i) Krishi O Prani Sampad Bikash U.S.


9) Management of Ferry / Fishery / Tanks transferred to ZP

10) Co-ordination in collection efforts of land revenue and Cess in peak collection season

11) To communicate opinion regarding Amalgamation or splitting up of mouzas

12) Suggesting name of ‘char’ land

13) Management of road side land of roads maintained by the State Govt. through the ZP

14) Supervision of the functions of GP and PS relating to land matters

15) Settlement of different types of vested or part-vested fisheries / tanks / water bodies

10) Supervision of Barga recording11) Management of Ferry / Fishery / Tanks

transferred to PS12) Pre-distribution survey of undistributed agri-

land13) Preparation of a priority list of beneficiaries14) Performing function of Land Reforms

Advisory Committee at Block level15) Distribution of Patta16) Organization of collection camp for

collection of land revenue and Cess during peak collection season, i.e., the Bengali months of Poush, Magh, Falgun and Chaitra

17) Fixing target of institutional finance in Panchayat Samiti area to Bargadars and Pattadars in consultation with BLBC (Block Level Bankers’ Co-ordination Committee)

18) Supply of application forms to GPs for institutional finance to Bargadars and Patta holders

19) Drawing up programme for disbursement of loan to Bargadars and Patta holders in consultation with concerned bank


10) Display of notice containing names of Bargadars cultivating land in that mouza

11) Management of Ferry / Fishery / Tanks transferred to GP

12) Identification of vulnerable areas relating to cultivation & harvesting dispute

13) Creation of public awareness regarding payment of revenue and Cess through suitable leaflets and other means of publicity

14) Identification of beneficiaries for institutional finance to Bargadars and Patta holders

15) Assistance in filling up application forms by beneficiaries (Bargadars and Patta holders)

16) To attend loan disbursement programme to Bargadars and Patta holders


3. Minor irrigation, water management and watershed development

(i) Water Investigation and Development(ii) Panchayats and Rural Development(iii) Agriculture(iv) Sundarban Affairs

(i) Krishi, Sech O Samabaya S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions

1) Drilling and installation of Deep TWs / Mini Deep TWs

2) Electrification of DTWs3) Extension of canal line4) Installation of River Lift

Irrigation (Major / Minor)5) Policy decisions and sub-

allotment of fund

1) Construction of Jorh Bundh and Sech Bundh above 2 lakh rupees

2) Revival of traditional water sources3) Installation of dug wells4) Construction of field channel5) Site selection of schemes above 2 lakh

rupees6) Seeking technical vetting of Executive

Engineers (AI / AM) through ZP for MI schemes beyond the competence of Panchayat Samitis

1) Construction of Jorh Bundh and Sech Bundh below 2 lakh rupees

2) Management of all DTWs / Mini DTWs / RLIs and installations through Beneficiary Committee

3) Formation of Watershed Development Teams / User Groups

4) Identification of beneficiaries under various programmes for MI Projects through Gram Sansad

5) Site selection of schemes upto 2 lakh rupees6) Construction of percolation tanks, field

channels within the GPAdditional Functions

6) Scrutiny of the schemes received from GP / PSs and recommendation to DSSC for final selection

7) Joint supervision and monitoring of progress of the schemes

7) Encouraging farmers for on farm development and development of field channels / delivery system for proper utilisation of water

143

Roadmap for the Panchayats in West Bengal7) Joint supervision,

monitoring and review of the progress



Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat3. Minor irrigation, water management and watershed development

(i) Water Investigation and Development(ii) Panchayats and Rural Development(iii) Agriculture(iv) Sundarban Affairs

(i) Krishi, Sech O Samabaya S.S. / (i) Krishi O Prani Sampad Bikash U.S.


8) Co-ordination between various departments and agencies funding projects

9) Propagation of modern water management & delivery methods

8) Organizing farm demonstration for modern water management techniques & conservation of water in field

8) Maintaining MI schemes, collecting water charges through User Committee for new projects handed over to PRI

4. Animal husbandry, dairying and poultry

(i) Animal Resources Development(ii) Panchayats and Rural Development

(i) Matsya O Prani Sampad Bikash S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions


2) Identification of training need of farmers

3) Selection of trainees for training program at dist. Level

4) Allotment of fund to Panchayat Samitis for training

5) Distribution of improved variety of livestock to Blocks

6) Drawing up action plan of Vaccination program and Artificial Insemination program for the Dist

7) Policy decision on execution of work and release of fund


2) Selection of trainees for Block level training program

3) Selection of venue for GP level training

4) Supervision of GP level training 5) Celebration of PRANI SAPTAHA6) Release of fund to Gram Panchayats7) Collection of improved variety of

livestock from Dist. Farm and determining scale of distribution to GPs

8) Monitoring of the situation to prevent out break of epidemic

9) Monitoring of Artificial Insemination program; identifying problem areas and covering gap

1) Identification and selection of beneficiaries

2) Initiate Animal Health Campaign in villages for awareness generation

3) Organization of self-help groups4) Identification of training need and

selection of trainees for GP level training program

5) Organization of health camp at villages on ARD issues

6) Organization of awareness camp on preventive measures

7) Celebration of PRANI SAPTAHA8) Distribution of improved variety birds /

small animals to farmers9) Providing facility of hatching10) Vaccination of animals against epidemic11) Execution of Artificial Insemination

with the help of Prani Bandhu at fixed price

12) Assessment of need for infrastructure development

13) Mobilizing farmers for actual vaccination of cattle and buffalo


8) Preparation and analysis of dist. Level data base

Nil Nil


144



Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat5. Fisheries (i) Fisheries

(ii) Backward Classes Welfare

(i) Matsya O Prani Sampad Bikash S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions

1) Development of Aqua-culture and planning, monitoring, supervision, evaluation of the activities.

2) Action plan for all sorts of training and awareness camp in consultation with the Asstt. Director of Fisheries

3) Train-up fish farmers in inland fisheries sector and construction /maintenance of district level training centers

4) State grant to primary/ Central Fishermen's Co-op. Societies to avail of NCDC assistance – Development of Beel fisheries.

5) Socio economic development of Tribal people through Pisciculture Scheme and by providing Dwelling houses.

6) Group Personal Accident Insurance for active Fishermen – Co ordination with BENFISH.

7) Pilot project for development of Fisheries in the Hill areas of the State.

8) Setting up District level Laboratories for conducting Research activities.

9) Development of market including Retail outlets

1) Organization of training2) Selection of training venue3) Liaison with NGO for training4) Intensive culture in perennial

ponds.5) Training to the fish farmers.6) Tie up with schemes of BCW

Deptt.7) Marketing of produce etc.8) Excavation of ponds to the extent

of 1 ft, 2 ft, 1 meter and pisciculture therein.

9) Prawn culture in freshwater ponds and newly constructed tanks deepening up to 2.5 meters.

10) Supply of Minikits, finger-lings to the farmers’ Co-op. Societies.

11) Selection of such societies in consultation with the GPs

12) Training of Fisher women in net making, repairing and ancillary skill development of fishermen families

13) Promotion of Integrated Fish Farming – Duck cum fishery/ pig cum fishery – Training and Extension activities.

14) Poly culture of prawn with finfish and monoculture of prawn.

1) Selection of farmers and supervision of works and arranging for long-term lease of ponds.

2) Motivating farmers for the prawn culture.

3) Identification & selection of beneficiaries for GP or village level training

4) Holding awareness camp5) Arranging for training activities.6) Distribution of minikits to the fish

farmers according to the needs.7) Consultation to Panchayat Samiti in

selecting such Societies for Grants. 8) Selection of fisher women for such

trainings.9) Air breathing fish culture (Magur and

Singi) and selection of farmers.10) Identification of SC/ST beneficiaries for

dwelling houses.11) Developing SHGs of fisher-men /

women12) Selection of beneficiaries for FFDA /

BFDA

145

Roadmap for the Panchayats in West BengalAdditional Functions

10) Release of fund for training11) Preparation of Training Need

Assessment in consultation with the Asstt. Director of Fisheries

12) Supervision of training13) Allocation of HARI, Cast net and

Drag net, fingerlings, lime and vending inputs for Blocks

15) Approval of beneficiaries and ponds / open cast pit for pisciculture

16) Approval of derelict / semi-derelict tanks for pisciculture

17) Handing over tanks to Co-operative Societies or Groups on lease for management and farming

18) Selection of sites for liberation of fingerlings in river

19) Supervision of works related to selection of beneficiaries for allocation of HARI, Cast net and Drag net, fingerlings, lime and vending inputs

13) Identification of fisher women belonging to Co-operative Societies

14) Identification & selection of derelict / semi-derelict tanks

15) Netting and harvesting16) Collection of sample (soil and water) for

testing17) Supply of lime and minikits18) Identification and selection of groups

/beneficiaries for distribution of HARI, Cast net and Drag net, fingerlings, lime and vending inputs

19) Delivery of fingerlings and other inputs



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat6. Social forestry and farm forestry

(i) Panchayats and Rural Development

(i) Bon O Bhumi Sanskar S.S. / (i) Krishi O Prani Sampad Bikash U.S.

Present Functions


2) Coastal Belt Plantation to mitigate the fury of cyclones along the coast – new plantation, maintenance of older plantations.

3) For overall development of Forest cover and Socio-economic condition through forestry – planning / execution and monitoring.

4) Generating rural employment through forestry and related activities to popularize the use of eco-friendly inputs like bio-fertilizer for enhancement of soil fertility.


2) Coordination, planning and monitoring involving prospective beneficiaries.

3) Organize Economic development Programme, Environmental awareness and education campaign.

4) Developing nursery at Panchayat Samiti level for supply of saplings to the Gram Panchayats.

5) Plantation of trees, distribution of saplings

1) Identification and selection of beneficiaries

2) Awareness generation at village3) SHG formation4) Selection of areas under soil erosion and

pursuing villagers in aforestation.5) Generate awareness of people and

arrange environmental education at the GP level.

6) Arrangement for socials forestry and farm forestry, their plantation and maintenance.


5) Preparation of Action plan for (a) increasing forest coverage through aforestation and strip plantation (b) development of fruit garden and saplings nursery, supervision and monitoring of works

6) Preparation of Action plan for construction of village road, earthen dam, excavation of well, installation of Tube Well in forest village; supervision and monitoring of works

6) Execution of Infrastructural works (construction of village road, earthen dam, excavation of well, installation of Tube Well in forest village)

7) Selection of Workers / beneficiaries in consultation with Forest Protection Committee

8) Selection of Workers / beneficiaries in consultation with Forest Protection committee for construction of village road, earthen dam, excavation of well, installation of Tube Well in forest village

146

Roadmap for the Panchayats in West Bengal7. Minor forest produce

(i) Forest (i) Bon O Bhumi Sanskar S.S. / (i) Artha O Parikalpana U.S.

Present Functions

1) Planning for increasing forest cover and improving overall ecological condition.

2) Economic development strategy in and around protected areas as well as villages in the periphery of the protected areas.

3) Promoting JFM with people’s participation, offering timber, non- timber forest produce and value added products at reasonable prices.

1) Constitution of Joint Forest Management and Forest Protection Committee to contain illicit collection of fuel wood, fodder and small timber.

1) Selection of prospective beneficiaries and mobilization of SHGs in forest area.

2) Community mobilization through Forest Management Committees/ SHGs in the local areas.

3) Distribution of minor forest products among villagers and members of Forest Protection Committee.


4) Preparation of Action plan for income generating activities for villagers viz., distribution of Sal-leaf-plate making machine / sewing machine / chicks / ducklings/ fingerlings / minikits / saplings of fruit trees in forest villages, supervision and monitoring of works

2) Distribution of inputs for micro-enterprise

3) Providing assistance for income generating activities

4) Identification of income generating activities



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat8. Small scale industries, including food processing industries

(i) Cottage and Small Scale Industries(ii) Food Processing Industries and Horticulture(iii) Agriculture Marketing

(i) Khudra Shilpa, Bidyut O Achiracharit Shakti S.S. /(i) Shilpa O Parikathama U.S.

Present Functions

1) Establish and identify Training Centers for Skill Development.

2) Allocate and sanction funds for Training and stipend to the trainees.

3) Identify appropriate technologies and arrange for their transfer to the workers.

4) Tie up arrangements for marketing of the products through Government and non-government marketing agencies.

5) To encourage artisans’ cooperative for production and marketing of products.

6) Organizing Entrepreneur Development Programmes.

7) Co-ordination between entrepreneurs and financial institutions for credit linkage

1) Select beneficiaries for Training or Skill development and nominate them in training institutes, arrange for master craftsmen / women.

2) Pay stipend to the beneficiaries and honorarium / training cost to the trainers.

3) Transfer or upgradation of technology in different areas of production.

4) Supply of raw material, equipment and other inputs to the beneficiary workers.

1) Identification of artisans for skill up gradation training

2) Assisting in Distribution of raw material, equipments etc.

3) Identification of beneficiaries for old age pension, financial support / credit under various programmes.

4) Assistance to the KVIC / Bank in the recovery of loan.


8) Assessment of training need9) Organization of skill

development Training10) Organization of awareness camp

at Dist. Level11) Organization of Handicraft

competition at Dist. Level

5) Selection of trainees / venue for skill dev. training program run by NGO

6) Supervision of training7) Organization of awareness camp at

Block level8) Conducting wide publicity for

competition

5) Identification of training need for skill dev. training

6) Organization of awareness camp at GP level

7) Motivation of rural artisans8) Identification of micro-enterprise /

entrepreneurs

147

Roadmap for the Panchayats in West Bengal12) Action plan for development of

micro-enterprise / entrepreneurs13) Supervision and organization of

training program (food processing, technical operation of cold storage, better storing of potato) at Dist. Level

9) Selection of micro-enterprise / entrepreneurs

10) Developing micro enterprise / self enterprise with bank credit

11) Selection of Artisans for fairs / melas within the district

12) Promotion of bio-gas plant13) Organizing demonstration program

(food processing, better storing of potato) at Block level

14) Supervision of GP level training (food processing, better storing of potato)

9) Group formation & selection of activities

10) Selection of Artisans for fairs / melas outside the district or state

11) Awareness generation and wide publicity

12) Organizing demonstration program (food processing, better storing of potato) at village level and linkage with SHG

13) Identification & selection of trainees (food processing, better storing of potato)



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat9. Khadi, village and cottage industries

(i) Cottage and Small Scale Industries


Present Functions

1) Establish and identify Training Centers for Skill Development.

2) Allocate and sanction funds for Training and stipend to the trainees.

3) Identify appropriate technologies and arrange for their transfer to the workers.

4) Tie up arrangements for marketing of the products through Government and non-government marketing agencies.

5) To encourage artisans’ cooperative for production and marketing of products.

6) Organizing Entrepreneur Development Programmes.

7) Co-ordination between entrepreneurs and financial institutions for credit linkage

1) Select beneficiaries for Training or Skill development and nominate them in training institutes, arrange for master craftsmen / women.

2) Pay stipend to the beneficiaries and honorarium / training cost to the trainers.

3) Transfer or up gradation of technology in different areas of production.

4) Supply of raw material, equipment and other inputs to the beneficiary workers.

5) Construction of common work sheds, market complexes.

6) Organizing Cooperatives / Federation for production and marketing of the products.

1) Identification of artisans for skill up gradation training

2) Assist in Distribution of raw material, equipments etc.

3) Site selection for construction of common work shed and market complex.

4) Identification of beneficiaries for old age pension, financial support / credit under various programmes.

5) Assistance to the KVIC / Bank in the recovery of loan.

6) Formation of SHGs for artisans.


8) Assessment of training need9) Organization of skill dev.

Training10) Organization of awareness camp

at Dist. Level11) Organization of Handicraft

competition at Dist. Level12) Action plan for development of

7) Selection of trainees / venue for skill dev. training program run by NGO

8) Supervision of training9) Organization of awareness camp at

Block level10) Conducting wide publicity for

competition11) Selection of micro-enterprise /

7) Identification of training need for skill dev. training

8) Organization of awareness camp at GP level

9) Motivation of rural artisans10) Identification of micro-enterprise /

entrepreneurs11) Group formation & selection of

148

Roadmap for the Panchayats in West Bengalmicro-enterprise / entrepreneurs entrepreneurs

12) Developing micro enterprise / self enterprise with bank credit

13) Selection of Artisans for fairs / melas within the district

activities12) Selection of Artisans for fairs / melas

outside the district or state13) Awareness generation and wide

publicity10. Rural housing

(i) Panchayats and Rural Development(ii) Fisheries

(i) Purta, Karya O Paribahan S.S.(ii) Matsya O Prani Sampad Bikash S.S. /(i) Shilpa O Parikathama U.S.

Present Functions

1) Overall supervision and monitoring of construction of houses and occupation of housing units.

2) Release of fund to Gram Panchayats.

1) Consolidation of GP level plans, monitoring and supervision.

1) Preparation of list of prospective beneficiaries from the Gram Sansads.

2) Assignment of priority and preparation of a Master List for the entire Gram Panchayat.

3) Transmission to Panchayat Samiti. 4) Release of fund to beneficiary for

construction of house.Additional Functions

3) Monitoring and supervising construction of Cluster housing with Community Hall for fishermen

2) Monitoring and supervising construction of Cluster housing with Community Hall for fishermen

5) Identification of beneficiaries and places for construction of Cluster housing with Community Hall for fishermen



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat11. Drinking water

(i) Public Health Engineering(ii) Panchayats and Rural Development(iii) Sundarban Affairs

(i) Janasasthya O Paribesh S.S. /(i) Shiksha O Janasasthya U.S.

Present Functions

1) Prioritization of the areas requiring piped water and sending proposals to the PHE Dept.

2) Identify spot sources for Rig bored Tube well and execution through PHE machinery.

3) Maintenance of Laboratories to reduce Arsenic contamination of drinking water in identified districts.

4) Execution of schemes beyond the competence of Panchayat Samitis

5) Technical approval of schemes beyond the competence of Panchayat Samitis

6) Release of fund for projects to Panchayat Samitis / Gram Panchayats

7) Providing technical skill and fund, when necessary, for maintenance of water supply system

1) Selection of areas requiring piped water supply in consultation with Gram Panchayats.

2) Selection of sites for Rig bored TW and Ordinary TW.

3) Sinking of Ordinary TW. 4) Seeking technical approval from Zilla

Parishad for projects beyond the competence of Panchayat Samitis

5) Execution of schemes (DTW / Mark-II / Tara Hand Pump) beyond the competence of Gram Panchayats

6) Monitoring and supervising progress and quality of works

7) Maintaining big water supply schemes beyond the competence of Gram Panchayats

1) Identification of areas requiring piped water supply.

2) Identification of sites for Rig bored TW and Ordinary TW.

3) Construction of wells, tanks, Tube Wells (Ordinary Hand Pump)

4) Maintenance of wells, tanks, Tube Wells.

5) Arrangement for water testing.6) Reporting about Arsenic

contamination of drinking water. 7) Periodical chlorination of open wells

and disinfection of Tube wells8) Reporting progress of schemes9) Maintaining drinking water schemes,

collecting water charges for projects handed over to PRI through User Committee

10) Awareness on use of safe drinking water


Nil Nil Nil

12. Fuel and fodder

(i) Forest(ii) Animal

(i) Bon O Bhumi

Present Functions

1) To select fuel deficit blocks and plantation planning in those blocks.

1) Identification of fuel deficit areas in the Block – planning, implementation and

1) Mobilizing people for plantation and fodder cultivation.

149

Roadmap for the Panchayats in West BengalResources Development

Sanskar S.S.,(ii) Matsya O Prani Sampad Bikash S.S. /(i) Krishi O Prani Sampad Bikash U.S.

2) Selection of trees that have some uses other than timber.

supervision etc. 2) Distribution of fodder and fuel saplings among deserving families.

3) Field demonstration for fodder cultivation on community land and vested land


4) Policy decision on supply of minikits / seeds / manure to Blocks (Fodder)

5) Fixing scale of distribution of minikits / seeds / manure per block (Fodder)

6) Policy decision on purchase of seeds (Fodder)

7) Policy decision on sub-allotment of fund to different Blocks (Fodder)

2) Supply of minikits to different GPs and fixing scale of distribution of minikits per GP (Fodder)

3) Monitoring & supervising distribution of minikits and sale of seeds to farmers (Fodder)

4) Distribution of minikits / seeds / manure to farmers (Fodder)

5) Generation of awareness and wide publicity among farmers (Fodder)


Subjects in the Eleventh Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat13. Roads, culverts, bridges, ferries, waterways and other means of communication

(i) Public Works(ii) Panchayats and Rural Development(iii) Fisheries(iv) Agriculture Marketing(v) Sundarban Affairs(vi) Transport

(i) Purta, Karya O Paribahan S.S. /(i) Shilpa O Parikathama U.S.

Present Functions

1) Examine technical feasibility and formulating road development projects.

2) Allocation and sanction of funds for roads covering more than one block.

3) Acquiring land and grant of compensation.

4) Awarding contracts, for construction of roads, culverts and bridges.

5) Monitoring the specifications of roads, culverts, bridges and supervision of the quality of works.

6) Technical vetting of projects of Panchayat Samitis.

7) Leasing out waterways (big).

1) Identify villages not having all weather roads and formulate projects for construction of link roads.

2) Construction of pucca / semi pucca roads covering more than one Gram Panchayat.

3) Providing technical assistance to Gram Panchayats for construction of roads / culverts.

4) Leasing out waterways (medium).

1) Selection of sites through Gram Sansad.

2) Construction of village link roads through beneficiary committees.

3) Monitoring and supervision of quality of works through beneficiary committee.

4) Construction of culverts through beneficiary committee with technical support from Panchayat Samiti.

5) Leasing out waterways (small).


Nil Nil Nil

14. Rural electrification, including distribution of electricity

(i) Power (i) Khudra Shilpa, Bidyut O Achiracharit Shakti S.S. /(i) Shilpa O Parikathama

Present Functions

1) Assessing villages / hamlets / colonies uncovered and formulating projects for their electrification in coordination with WBSEB/CESC.

2) Providing fund to WBSEB/CESC for electrification.

3) Electrification of irrigation

1) Assisting Zilla Parishad in assessing uncovered areas and formulating electrification projects.

2) Monitoring and reporting on progress of electrification of irrigation pump sets.

3) Conducting raid in co-ordination with police and WBSEB/CESC for checking

1) Providing land for installing electric transmission poles.

2) Collection of electricity charges and depositing to the concerned authority.

3) Reporting power supply position during prime crop season.

4) Vigilance and reporting against

150

Roadmap for the Panchayats in West BengalU.S. pump sets.

4) Monitoring and supervision of electrification.

5) Vigilance against power theft and illegal connection

power theft and illegal connections. power theft and illegal connections to the police.


Nil Nil Nil

15. Non-conventional energy sources

(i) Power,(ii) Sundarban Affairs


Present Functions

1) Promote and popularize non-conventional energy devices/sources.

2) Coordinate different agencies including NGOs for promotion of alternative sources of energy.

1) Select beneficiary for installation of community/ private source of energy.

2) Train up users in the maintenance of non-conventional energy devices.

3) Monitor and supervise the operation and functioning of the projects.

1) Identification of beneficiary for individual biogas plants and other devices.

2) Monitoring functioning of the devices.


Nil Nil Nil



Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat16. Poverty alleviation programme

(i) Panchayats and Rural Development

(i) Artha, Sanstha, Unnayan O Parikalpana S.S.,(ii) Janasasthya O Paribesh S.S., (iii) Purta, Karya O Paribahan S.S.,(iv) Krishi, Sech O Samabaya S.S.,(v) Sishu O Nari Unnayan, Janakalyan O Tran S.S.,(vi) Bon O Bhumi Sanskar S.S.,(vii) Matsya O Prani Sampad Bikash S.S.,(viii) Khadya O Sarbaraha S.S. /(i) Artha O Parikalpana U.S.,(ii) Krishi O Prani Sampad Bikash U.S.(iii) Shiksha O Janasasthya U.S.,(iv) Nari, Sishu Unnayan O Samajkalyan U.S. (v) Shilpa O Parikathama U.S.

Present Functions

1) Promoting Cluster and Federation of SHGs in the District through DRDC.

2) Promotion of marketing of goods produced by Swarojgaries.

3) Monitoring and supervision of SGSY Programme.

4) Organizing Group management Training and skill dev. training.

5) Approving involvement of NGOs in Group formation, training.

6) Preparation of estimates for schemes to be taken up by ZP.

7) Technical vetting of estimates, implementation and monitoring of the Wage Employment Programmes.

8) Coordination among various agencies implementing the schemes.

9) Release of fund to PSs and GPs.

10) Lifting of food grains from FCI and distribution to other tiers.

1) Identification of Key activities for SHGs.

2) Grading of SHGs for releasing funds and Bank loans.

3) Promoting Cluster of SHGs and Federation of SHGS in the local area.

4) Training of SHGs with the support of NGOs at Block Level.

5) Preparation of estimates for schemes to be taken up by Panchayat Samiti and GPs.

6) Technical vetting of estimates, implementation and monitoring of the Wage Employment Programmes.

7) Selection of storing place for food grains.

8) Release of fund to GPs.

1) Formation, Nurturing of SHGs in the GP area.

2) Promotion of SHG cluster.3) Identification of beneficiaries at GP

from Gram Sansad. 4) Identification, implementation and

monitoring of schemes for the poor families in GP area.

151


Nil Nil Nil

17. Education, including primary and secondary schools

(i) School Education(ii) Panchayats and Rural Development(iii) Backward Classes Welfare, (iv) Minorities Development and Welfare(v) Relief

(i) Shiksha, Sanskriti, Tathya O Krira S.S. /(i) Shiksha O Janasasthya U.S.

Present Functions

1) Release of fund for construction of New School Buildings and Additional Classrooms.

2) Release of fund for construction of toilets and drinking water facilities at schools.

3) Compiling proposals from Panchayat Samitis for opening all the alternative education centres and forwarding them to the respective agencies.

4) Setting up computer education center for school children.

5) Supervision and management of Mid day meal Programme

1) Construction of New School Buildings and Additional Classrooms.

2) Construction of toilets and drinking water facilities at schools.

3) Compiling proposals from Gram Panchayats for opening all the alternative education centres and forwarding them to the Zilla Parishad.

4) Approval of list of students for mid day meal in schools.

5) Management and supervision of the Mid day meal Programme.

6) Improvement of school library – purchase of books for library through Managing Committee.

1) Construction of Additional Classrooms in Primary Schools / Sishu Shiksha Kendras through Village Education Committee / Managing Committee.

2) Construction of toilets and drinking water facilities in Primary Schools / Sishu Shiksha Kendras through Village Education Committee / Managing Committee.

3) Preparation of list of students for Mid day meal Programme in convergence with the Village Education Committee and engaging SHGs for cooking.

4) Sending proposals for opening all the alternative education centres to the Panchayat Samiti.

5) Helping Managing Committee of SSK to select Sahayika.

6) Supervision of SSK by Gram Panchayat.




Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat17. Education, including primary and secondary schools

(i) School Education(ii) Panchayats and Rural Development(iii) Backward Classes Welfare, (iv) Minorities Development and Welfare(v) Relief

(i) Shiksha, Sanskriti, Tathya O Krira S.S. /(i) Shiksha O Janasasthya U.S.


6) Selection of sites for establishment of new school

7) Recommendation for up-gradation of schools

8) Supervision and monitoring of Village Education Committees

7) Supervision and monitoring of VECs 7) Mobilization of VEC8) Counseling, guidance &

monitoring of VEC9) Formation of Parents – teacher

association10) Organizing teacher-community

interface

18. Technical training and vocational education

(i) Technical Education and Training

(i) Shiksha, Sanskriti, Tathya O Krira S.S.

Present Functions

1) Extension and maintenance of ITI, Polytechnic.

Nil Nil


Nil Nil Nil

19. Adult and non-formal education

(i) Mass Education Extension

(i) Shiksha, Sanskriti, Tathya O Krira S.S. /(i) Shiksha O

Present Functions

1) Planning, Monitoring & Supervision by the ZSS

2) Convergence of development schemes with CEP

3) Monitoring & supervision of Continuing Education Centre

1) Running of literacy centers at Gram Sansad level

2) Selection of Prerak and Sanchalak3) Regular contact with Literates /

Neo-literates for attendance in

152

Roadmap for the Panchayats in West BengalJanasasthya U.S.

Continuing Education Centre Additional Functions

4) Consideration of proposal for opening of new Adult High School [To impart education up to Madhyamik level to interested Adult learners who are not enrolled in any formal school] (To be forwarded to the MEE Deptt. / Dte. with recommendation or otherwise)

1) Convergence of Literacy with income generating activities, SHGs & community health initiative

2) Publicity and Supervision of Adult High Schools

4) To treat nodal Continuing Education Centre as Rural Information Centre

5) Publicity and Supervision of Adult High Schools

20. Libraries (i) Mass Education Extension

(i) Shiksa, Sanskriti, Tathya O Krira S.S. /(i) Shiksha O Janasasthya U.S.

Present Functions

1) Release of fund for Rural Library

Nil Nil


2) Supervision of the activities of District Libraries

3) Sending copies of guidelines / booklets for all development programs to Dist. Library for general information of public

4) Sending copy of Annual Report / Budget / Annual Plan of ZP to Dist. Library

5) Sending data / information on social issues to Dist. Library

1) Supervision of the activities of Sponsored Libraries

2) Sending copies of guidelines / booklets for all development programs to Sponsored Library for general information of public

3) Sending copy of Annual Report / Budget / Annual Plan of PS to Sponsored Library

4) Sending data / information on social issues to Sponsored Library

5) Disbursement of salary to organizer of CLIC

6) Audit of CLIC by PAAO

1) Supervision of the activities of Rural Libraries / Library cum Information Centre

2) Sending copies of guidelines / booklets for all development programs to Rural Library / CLIC for general information of public

3) Sending copy of Annual Report / Budget / Annual Plan of GP to Rural Library / CLIC

4) Sending data / information on social issues to Rural Library / CLIC






Division Zilla Parishad Panchayat Samiti Gram Panchayat21. Cultural activities

(i) Information and Cultural Affairs(ii) Backward Classes Welfare

(i) Shiksha, Sanskriti, Tathya O Krira S.S. /(i) Artha O Parikalpana U.S.

Present Functions

1) Construction of Auditorium.2) Organizing folk festival, film

festival, drama festival and youth festival at District level.

3) Release of fund for Block Youth festival.

1) Organizing Block Youth Festival.2) Organizing folk campaign for social

motivation.

1) Selection of local talents in cultural activities through booth level youth and cultural festival.

2) Conduct awareness campaign for social cause.


4) Selection of blocks for Cultural Programs, speech, film etc.

5) Release of fund for Cultural Programs, speech, film etc.

6) Selection of subject for essay writing competition in schools

7) Fund release for essay writing competition in schools

8) Releasing fund and selection of blocks for celebration of important dates

9) Selection of theme for folk festival

10) Selection of block for folk

3) Selection of Gram Panchayats for Cultural Programs, speech, film etc.

4) Organizing Cultural Programs, speech, film etc.

5) Contact with teachers & students of schools for essay writing competition

6) Checking of answer scripts of essay writing competition

7) Organizing campaign for celebration of important dates and organization of celebration program keeping liaison with GPs

8) Selection of GP for folk festival9) Organization of festival

3) Selection of Venues for Cultural Programs, speech, film etc.

4) Wide publicity & campaign for celebration of important dates and selection of venue

5) Selection of venue for folk festival

6) Identification of beneficiaries / participants for folk festival

7) Distribution of entry tickets / cards for children’s film festival

153

Roadmap for the Panchayats in West Bengalfestival

11) Fund release for folk festival12) Supply of Musical instruments

for folk festival13) Fund release for children’s film

festival, contacting Cinema Hall owners and fixing up time for film show

10) Infrastructural support for folk festival11) Selection of venues for children’s film

festival and contacting schools for publicity among students

22. Markets and fairs

(i) Land and Land Reforms,(ii) Information and Cultural Affairs

(i) Artha, Sanstha, Unnayan O Parikalpana S.S.(ii) Bon O Bhumi Sanskar S.S. /(i) Artha O Parikalpana U.S.

Present Functions

1) Construction of market complex and leasing out.

2) Organizing famous fairs like Gangasagar Mela, Sunderban Mela, Bishnupur Mela etc.

3) Management of Hat / Bazar transferred to ZP

1) Arrangement for sanitation, drinking water, lighting etc. at fair grounds.

2) Management of Hat / Bazar transferred to PS

1) Management of Hat / Bazar transferred to GP


Nil Nil Nil



Schedule




Division Zilla Parishad Panchayat Samiti Gram Panchayat23. Health and sanitation, including hospitals, primary health centres and dispensaries

(i) Health and Family Welfare(ii) Panchayats and Rural Development


Present Functions

1) Establishment and maintenance of RCH.

2) Supply of medicines, equipments to RCH.

3) Training of Nursing and Para-medical functionaries.

4) Coordinate with state/International Agencies for sanitation & health related issues.

5) Organizing immunization camps.

6) Identify and approve NGOs for Sanitation & RCH.

7) Promote school health programmes.

8) Training of ANMs and others.

1) Maintenance and upgradation of BPHC and PHC

2) Distribution of medicines and equipments to the centres.

3) Assistance in organizing immunization camps.

4) Organization or supervision of sanitary marts.

5) Formulating plan for the assistance in the construction of sanitary latrines.

6) Coordination & supervision on construction of sanitary latrines.

7) Construction of community toilets at public places, Sub-Centres under TSC and toilets in schools, AWCs under School Sanitation Programme

1) Maintenance and upgradation of Sub-centers2) Generate awareness for promotive & preventive health

care.3) Visit each family in a month with health related issues.4) Educate people about immunization & motivate them.5) Monitoring immunization and vaccination coverage of

children and pregnant women and taking follow-up action.6) Enlist eligible couples, spread message of RCH programs

& provide follow up services.7) Identify communicable diseases, carry out control

measures in affected areas.8) Meet & distribute Iron / Vitamin Tablets to pregnant &

lactating mothers, children.9) Awareness generation for sanitation and organizing house

to house campaign for targeting uncovered households and making arrangements for equipments through sanitary marts.

10) Promote use of sanitary latrine & safe drinking water. 11) Birth & death Registration.12) Preparing proposals for community toilets at public

places, schools, AWC, Health Sub-Centres.

154


9) Civil works for improvement of infrastructure (large size outlay)

10) Fund allotment for procurement of materials

11) Lifting of materials from State Hqtrs and supply to different block

12) Compilation of reports and returns from Block-level and analysis for monitoring crucial public health indicators

13) Planning for focused interventions

14) Supervision of secondary curative services and standing committees of the Panchayat Samiti

15) Devising IEC Strategy for involving community in promotive and preventive health care management

16) Developing IEC materials

8) Supervision and monitoring of utilization of funds and materials by BPHCs and PHCs

9) Local Purchase of non-medical items required by the PHCs and BPHCs as may be authorized by H&FW Department

10) Compilation of monthly reports from Sub-centers and GPs, and analysis for monitoring crucial public health indicators

11) Supervision of Primary curative Services

12) Supervision of GP level Upa-Samitis on Health.

13) Planning for focused interventions

14) Planning and organizating IEC activities for involving community in promotive and preventive health care management

13) Supervision and monitoring of utilization of funds and materials by Sub-centers

14) Local Purchase of non-medical items required by the sub-centers as may be authorized by H&FW Department

15) Monitoring most important public health indicators16) Planning for focused interventions17) Involving Self-Help Groups in monitoring community

health18) Updating ECCR19) Conducting Baseline Survey on status of community

health20) Surveillance and rapid response issues21) Arrangement of referral transport in serious cases22) Promotion of concepts of nutrition and best dietary

practices23) Ensuring nutrition supplement for mother and child

through ICDS / AWC24) Ensuring nutrition supplement in schools25) Awareness for taking preventive measures against

common diseases like malaria, kalajar, TB, leprosy and monitoring follow-up practices by patients.

26) Promotion of demand for latrines in every household.27) Ensuring environmental sanitation including prevention

of open defecation, protection of water source, drainage, cleanliness of habitat



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat23. Health and sanitation, including hospitals, primary health centres and dispensaries

(i) Health and Family Welfare(ii) Panchayats and Rural Development



17) Organizing campaign for safe motherhood, best child care practices

18) Fund allotment, monitoring and supervision of immunization program including pulse polio

19) Development of infrastructure for Institutional delivery

20) Monitoring availability of medicine at PHCs

21) Allotment of fund for training

22) Sending resource persons for training

23) Organizing and conducting skill development training for

15) Organizing campaign for planned family, safe motherhood, best child care practices

16) Implementation of immunization programme17) Promotion of Institutional delivery18) Monitoring availability of medicine at sub-

centres19) Organizing training of school teachers on eye

care20) Organizing training of Traditional Birth

Attendants (Dai)21) Ensuring timeliness and quality in delivery of

household latrines by Rural Sanitary Marts22) Organizing training of School Teachers in

School Sanitation, Environmental Sanitation and Personal Hygiene

23) Monitoring School heath programme24) Organizing and conducting sensitization

Training25) Selection of clientele for training

28) Ensuring Timely Spraying of Vector control chemicals

29) Identifying clienteles for training30) Capacity building for SHGs for

developing a surveillance system through SHGs

31) Up-gradation of HQ sub-centers for delivery of additional services including development of a Panchayat owned Labour Hut

155

Roadmap for the Panchayats in West BengalHealth workers

24) Organizing cataract operation camps

24. Family welfare

(i) Health and Family Welfare


Present Functions

1) Planning for Family Welfare Programme

2) Organizing campaign for planned family

3) Organizing sterilization camp for eligible couple

1) Distribution of family planning materials to the centres.

2) Organize & Coordinate in monitoring and supervision of family welfare and family planning services.

3) Assistance in organizing family planning camps.

1) Educate people about family planning & promoting planned family norms and practices.


Nil Nil Nil

25. Women and child development

(i) Women & Child Development and Social Welfare

(i) Sishu O Nari Unnayan, Janakalyan O Tran S.S. /(i) Nari, Sishu Unnayan O Samajkalyan U.S.

Present Functions

1) Organize Legal Aid Camp at District level with the assistance of District Legal Aid Committee.

1) Organize Legal Aid Camp at Block level with the assistance of Sub-divisional Legal Aid Committee.

2) Monitoring coverage and quality of ICDS programme.

3) Supervision of construction of Anganwadi Centers

4) Co-ordination to ensure availability of facilities / benefits to SHGs of Swayamsiddha & convergence with other SHGs formed under different programmes

5) Convergence of activities of ICDS and reporting of functioning of Anganwadi Centers to the Sthayee Samiti of Panchayat Samiti

1) Maintaining basic database like IMR, MMR, malnourished children, immunization status, vaccination status, dai etc.

2) Taking necessary preventive and promotive measures for women and children.

3) Monitoring ICDS centres and Primary Health Sub-Centres

4) Recommendation of sites for AWCs5) Construction and maintenance of

AWCs6) Convergence of ICDS activities and

reporting of functioning of AWCs in the convergence meeting at GP level with the Supervisors and the ANMs



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat25. Women and child development

(i) Women & Child Development and Social Welfare



2) Selection of beneficiaries for Non-institutional care of children up to 18 years

6) Recommendation of beneficiaries for Non-institutional care of children up to 18 years

7) Supportive role in survey of beneficiaries availing facilities of AWCs

8) Identification of beneficiaries for NPAG & Kishori Shakti Yojana

9) Issue of BPL certificate for beneficiaries of Balika Sambriddhi Yojana

10) Awareness generation in villages to motivate parents for pre-school education & immunization of their children

11) Mobilize community participation to improve quality of cooked food in AWCs

156

Roadmap for the Panchayats in West Bengal26. Social welfare, including welfare of the handicapped and mentally retarded

(i) Women & Child Development and Social Welfare(ii) School Education(iii) Mass Education Extension


Present Functions

1) Distributing equipments for handicapped people to Panchayat Samitis.

1) Release of pension to aged / infirm persons, widows.

2) Selection of handicapped people for distribution of equipments in consultation with the Gram Panchayats.

3) Distributing equipments to handicapped people.

1) Assisting Panchayat Samiti for selection of handicapped people for equipment distribution.

2) Identification of Beneficiaries for old age pension, family pension, maternal benefits etc.


2) Supervision and monitoring of the Institutes for the disabled (Special Schools).

3) Consideration of the proposals for academic recognition / sponsorship of Institutes for disabled (to be forwarded to the MEE Dept. / Dte. with recommendation or otherwise)

4) Publicity and supervision of Social Welfare Homes

4) Recommendation of names of beneficiaries for Pension Schemes to the DM for approval

5) Sponsoring names of students through school for scholarship for handicapped students of class IX onwards

6) Monitoring disbursement of scholarship to handicapped students of class IX onwards through school

7) Supervision and monitoring of the Institutes for the disabled (Special Schools)

8) Recommendation of applications for admission to Social Welfare Homes

9) Publicity and Supervision of Social Welfare Homes

3) Organization of Publicity campaign for scholarship for handicapped students of class IX onwards

4) Holding awareness camp for handicapped students & their parents

5) Identification of handicapped students for scholarship

6) Recommendation of applications for admission to Social Welfare Homes

7) Publicity and Supervision of Social Welfare Homes

27. Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes

(i) Backward Classes Welfare(iv) Minorities Development and Welfare


Present Functions

1) Release of fund for self-employment of SC/ST/OBC people.

2) Fixing up targets of beneficiaries / pensioners / SHGs for each Panchayat Samiti

3) Fixing up target for credit inputs for each Panchayat Samiti

1) Release of stipend and Book Grant for SC/ST students.

2) Conducting enquiry and processing application for SC / ST / OBC caste Certificates.

3) Selection of Beneficiaries for self employment and financial assistance.

4) Co-ordination with Bank, Finance Corporation for availability of credit.

5) Supervision for selection of beneficiaries / pensioners / SHGs

6) Credit linkage for SHGs / farmers / individual beneficiaries under SCP or TSP or other programs

7) Disbursement of pension to old age pensioners

1) Sending application for SC / ST certificates to Block Office.

2) Identification of Beneficiaries for self employment and financial assistance

3) Contact with Bank for loan disbursement and assist in recovery.

4) Identification of farmers for Minor Irrigation schemes

5) Identification & selection of pensioners / beneficiaries at Gram Sansad for Poverty Alleviation Programs



Schedule


Sthayee/ Upa Samiti

concerned


Division Zilla Parishad Panchayat Samiti Gram Panchayat27. Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes

(i) Backward Classes Welfare(iv) Minorities Development and Welfare



4) Selection of Gram Panchayats for Minor Irrigation schemes, augmenting sources of drinking water

5) Release of fund for training6) Action plan for all sorts of

training and Awareness camp 7) Assessment of Training

Need

8) Supervision for selection of new sources of drinking water

9) Selection of Gram Panchayats with concentration of weaker sections for awareness camp, wide publicity

10) Organization and supervision of training for women / SHGs / farmers

11) Release of fund to Gram Panchayats12) Collection of names of students from

schools for Book Grant, Stipend &

6) Site selection for new sources of drinking water

7) Organization of grain-gola / grain-bank8) Holding awareness / motivation camp 9) Hand holding support to SHGs / women

groups10) Reporting to Panchayat Samiti about

any difficulty in getting book grant, stipend, scholarship from school within its area

157

Roadmap for the Panchayats in West Bengal8) Fixing up targets for

different schools for Book Grant, Stipend & Scholarship for SC/ST/OBC students

Scholarship for SC/ST/OBC students13) Release of fund to schools for Book Grant,

Stipend & Scholarship for SC/ST/OBC students

28. Public distribution system

(i) Food and Supplies

(i) Khadya O Sarbaraha S.S. / (i) Artha O Parikalpana U.S.

Present Functions

1) Approval of beneficiary list for distribution of food grains to BPL / Antodaya Annya Yojana & Annapurna Card holders

2) Fixing additional quota of beneficiaries for blocks

3) Monitoring lifting of food grains from FCI

4) Allocation of food grains to Blocks / Panchayat Samitis.

5) Release of fund.

1) Preparation of list of beneficiaries for BPL cards

2) Fixing quota of beneficiaries for Gram Panchayats

3) Monitoring distribution of food grains to MR Dealers at GP level.

4) Monitoring preparation and distribution of Ration Cards

5) Supervision over MR shops

1) Identification & selection of beneficiaries for distribution of BPL Cards, Antodaya Annya Yojana Cards & Annapurna Cards

2) Fixing quotas of beneficiaries for each Gram Sansads

3) Distribution of ration cards to beneficiaries

4) Implementing distribution through MR Shop.

5) Monitoring distribution of food grains from MR Shop to the beneficiaries


6) Fixing up target for each Rice Mill for procurement of food grains

7) Monitoring Milling of paddy

8) Storing of rice in Godowns

6) Selection of Farmers’ Co-operative Societies for purchase of paddy

6) Providing certificate confirming procurement of paddy from the farmers at Minimum Support Price (MSP)

29. Maintenance of community assets

(i) Public Works (i) Purta, Karya O Paribahan S.S. / (i) Artha O Parikalpana U.S.

Present Functions

1) Maintenance of those assets which are either developed by it or vested upon it or have no other agency to maintain.



Additional Functions Nil Nil Nil

158

9.3 Self Evaluation Format for GPs

Gram Panchayat: Telephone No. (With STD Code):

Block: District:

A. Good Goverence

1. Peoples’ participation in GP’s activities

(a) Last Gram Sansad meeting (General Meeting, not special)

Subject Scoring PatternMaximum

MarksMarks

ObtainedWhat was the percentage of Gram Sansads where last meeting took place?

2 if in 100% Gram Sansad, 1 if in 90-99% Gram Sansad, 0 if in less than 90% Gram Sansad

2

What was the percentage of average attendance in the last Gram Sansad meeting?

9 if 40% or more, 8 if 30-39%, 7 if 25-29%, 6 if 20-24%, 4 if 16-19%, 2 if 12-15% and 0 if 10-11%

9

What was the average percentage of women among the total attendance?

9 if 50% or more, 8 if 40-49%, 6 if 30-39%, 4 if 20-29%, 2 if 10-19% and 0 if less than 10%

9

Total 20Actual Marks Obtained (= Total Marks Obtained 2) 10

(b) Formation of Gram Unnayan Samiti and Secretary Election


MarksMarks

ObtainedIn how many GS, Gram Unnayan Samiti has been constituted?

6 if in 100% Gram Sansad, 5 if in 90-99% Gram Sansad, 4 if in 80-89% Gram Sansad, 3 if in 70-79% Gram Sansad, 2 if in 60-69% Gram Sansad, 1 if in 50-59% Gram Sansad, 0 if in less than 50% Gram Sansad

6

How many Gram Unnayan Samitis have elected Secretary?

4 if 100% Gram Unnayan Samiti have elected Secretary, 3 if 80-99% Gram Unnayan Samiti have elected Secretary, 2 if 60-79% Gram Unnayan Samiti have elected Secretary, 1 if 40-59% Gram Unnayan Samiti have elected Secretary and 0 if less than 40% Gram Unnayan Samiti have elected Secretary

4

Total 10

2. Participation of the members in the functioning of GP

(a) How many Upa-Samitis have submitted their Budget?Pattern Maximum

MarksMarks

ObtainedNo. of Upa-Samitis submitted Budget 1 5

Total 5


(b) How many Upa-Samitis have submitted their budget within due time?

(c) How many meetings of the GP General Body and Upa-Samitis took place during the last one year?

Sector Scoring PatternMaximum

MarksMarks

Obtained

GP General Body5 if no. of meetings is 15 or more, 4 if no. of meetings is 13-14, 3 if no. of meetings is 12, 2 if no. of meetings is 8-11, 0 if no. of meetings is less than 8

5

Finance & Planning Upa-Samiti

3 if no. of meetings is more than 6, 2 if no. of meetings is 6, 0 if no. of meetings is less than 6

3

Agriculture & Animal Resource Development Upa-Samiti

3 if no. of meetings is more than 6, 2 if no. of meetings is 6, 1 if no. of meetings is 4-5, 0 if no. of meetings is less than 4

3

Education & Public Health Upa-Samiti

,, 3

Women, Child Development and Social Welfare Upa-Samiti

,, 3

Industry & Infrastructure Upa-Samiti

,, 3


(d) Issues regarding the General Body meeting of GP


MarksMarks

ObtainedHow many meetings of GP General Body have been adjourned during the last one year?

5 if 0, 3 if 1-3,0 if more than 3

5

In how many General Body meetings opposite views/proposals have been written in the resolution book during the last one year?

5 if more than 6, 3 if 3-6, 0 if less than 3

5


(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year?


MarksMarks

Obtained

GP General Body5 if average attendance is 80% or more, 4 if 60-79%, 3 if 50-59%, 2 if 40-49%, 1 if 33-39% and 0 if less than 33% (when most meetings are adjourned meeting)

5

Continued in next page ……

Pattern Maximum Marks

Marks Obtained

No. of Upa-Samitis submitted their budget within due time 1 5Total 5

160


(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year? (Continuing)


MarksMarks

ObtainedFinance & Planning Upa-Samiti

3 if average attendance is 80% or more, 2 if 60-79%, 1 if 33-59% and 0 if less than 33%

3

Agriculture & Animal Resource Development Upa-Samiti

,, 3

Education & Public Health Upa-Samiti

,, 3

Women, Child Development and Social Welfare Upa-Samiti

,, 3

Industry & Infrastructure Upa-Samiti

,, 3


3. Services delivered by GP


MarksMarks

Obtained(a) Do the GP have list of all roads (Road Register) under its jurisdiction?

1 if yes, 0 if no 1

(b) What percentage of habitations has connective roads in the GP area?

On the basis of the data available from Road Register or any other source 2, if 75-100% habitation has connective roads 1, if 50-74% habitation has connective roads 0, if less than 50% habitation has connective roads or data is not available

2

(c) What percentage of total roads in the GP area are all weather roads?

On the basis of the data available from Road Register or any other source 2, if 80-100% habitation has connective roads 1, if 60-79% habitation has connective roads 0, if less than 60% habitation has connective roads or data is not available

2

(d) What percentage of roads under the GP’s jurisdiction requires repairing?

On the basis of the data available from Road Register or any other source 5 if 10% or less; 4 if 11-25%; 3 if 26-50%; 2 if 51-75%; 1 if 76-85%; 0 if more than 85% or data is not available

5


161


3. Services delivered by GP (Continuing)


MarksMarks

Obtained(e) What percentage of tube wells in the GP area is out of order?

On the basis of the available data 5 if 10% or less; 4 if 11-20%; 3 if 21-30%; 2 if 31-40%; 1 if 41-50%; 0 if more than 50% ordata is not available

5

(f) Do the GP take attempts to examine the water quality of the drinking water sources and take necessary action?

For those GPs where tube well is used as drinking water source

For those GPs where well is used as drinking water source

5

On the basis of the available data5, if water of 91-100% tube well has been examined and necessary actions taken4, if water of 81-90% tube well has been examined and necessary actions taken3, if water of 71-80% tube well has been examined and necessary actions taken2, if water of 61-70% tube well has been examined and necessary actions taken1, if water of 40-60% tube well has been examined and necessary actions taken0, if water of less than 40% tube well has been examined and necessary actions taken or data is not available

On the basis of the available data5, if 91-100% wells have been cleansed or disinfected4, if 81-90% wells have been cleansed or disinfected3, if 71-80% wells have been cleansed or disinfected2, if 61-70% wells have been cleansed or disinfected1, if 40-60% wells have been cleansed or disinfected0, if less than 40% wells have been cleansed or disinfected ordata is not available

(g) What percentage of Gram Sansads has drainage system prepared by GP?

On the basis of the available data 5 if 60-100%; 3 if 31-59%; 1 if 20-30%; 0 if less than 20% ordata is not available

5

(h) What percentage of roads in the GP area has lighting facility (out of the areas where street lighting is required)?

On the basis of the available data or any realistic calculation 5, if 75% or more of the required roads have lighting 4, if 50-74% of the required roads have lighting 3, if 30-49% of the required roads have lighting 2, if 10-29% of the required roads have lighting 1, if 5-9% of the required roads have lighting 0, if less than 5% of the required roads have lighting or data not available

5

Continued in next page……

162




MarksMarks

Obtained(i) How much time GP takes to issue birth & death certificate?

5, if certificate is given on the date of application 4, if certificate is given on the next day of application 3, if certificate is given on the second day of application 2, if certificate is given within four days of application 1, if certificate is given within a week of application 0, if certificate is given after 7 days of application

5

(j) How trade registration certificate is issued by the Gram Panchayat?

2 if GP issues regularly by taking initiative, 0 if otherwise 2

1 if renewal is done regularly, 0 if otherwise 1

2 if the records are maintained in a register, 0 if otherwise 2

(k) What is the role of GP in house or other construction?

What percentage of house or other construction takes place by approving the plan from the GP 2, if 90-100% 1, if 80-89% 0, if less than 80%

2

2, if GP approves the plan within due time 0, otherwise 2

1, if GP monitors whether construction is taking place according to the approved plan 0, otherwise

1

(l) Whether any infectious disease like Diarrhea, Malaria, TB etc. did spread in a large scale during the last 3 years in the GP area?

5, if no 3, if at the time of spread information is given to BMO(H) and medicine circulated brining from him 2, if at the time of spread information is given to BMO(H) but GP did not take any initiative at its own 0, if no action taken at the time of spread

5

(m) Is there any encroachment of public streets or public places within the GP area?

1, if no 0, if yes

1

(n) Does the GP manage and maintain the public tanks, common grazing grounds, burning ghats, public graveyards or other properties vested on it?

2, if 76-100% properties are managed and maintained 1, if 50-75% properties are managed and maintained 0, if less than 50% properties are managed and maintained

2

Continued in next page……

163




MarksMarks

Obtained(o) Whether there are separate ladies and gents toilets and water facility in markets, busstands or other public places in the locality?

2, if exists everywhere 1, if exists somewhere 0, if exists nowhere

2

(p) Whether there are separate toilets for boys and girls and water facility in the primary schools, sishu shiksha kendras and anganwadi kendras in the locality?

2, if exists in 76-100% primary schools, SSKs and anganwadi kendras 1, if exists in 50-75% primary schools, SSKs and anganwadi kendras 0, if exists in less than 50% primary schools, SSKs and anganwadi kendras

2

(q) Whether there are waiting sheds in the bus stands?

1, if yes 0, if no 1

(q) Whether there are children parks or playground under GP management?

2, if exists in each habitation 1, if exists in more than one habitation 0, if does not exist 2


4. GP Building & Office Management

SubjectScoring Pattern

Maximum Marks

Marks Obtained

Does the GP have own building? 1 if yes, 0 if no

1

Is there sufficient space to perform all the works in the GP building? ,, 1Is there big hall for meeting/training in the GP building? ,, 1Do the GP have own go down? ,, 1Is there any provision of drinking water for the people coming to GP? ,, 1Is there any provision of good toilet for the people coming to GP? ,, 1Is there any provision of good ladies toilet for the people coming to GP? ,, 1Is there any system of cleaning the toilets regularly? ,, 1

Total 8

164


5. GP Information Management & Disposing System

(a) Register related


MarksMarks

ObtainedDoes Pradhan notice whether employees signing the Attendance Register in due time?

1 if yes, 0 if no1

Is Asset Register updated regularly? ,, 1Is Stock Register updated regularly? ,, 1Is Advance Register updated regularly? ,, 1Is Project Register updated regularly? ,, 1Is Works Register updated regularly? ,, 1Is Register for Issue & Receipt of Letters updated regularly?

,,1

Is Cheque Issue & Receipt Register updated regularly? ,, 1Is Birth & Death Register updated regularly? ,, 1Is there any register to note complains? ,, 1

Total 10

(b) Are the following lists available at the GP office for public viewing?


MarksMarks

ObtainedBPL list 2 if yes, 0 if no 2IAY beneficiary list 1 if yes, 0 if no 1Annapurna Anna Yojana beneficiary list 1 if yes, 0 if no 1Antyodaya Yojana beneficiary list 1 if yes, 0 if no 1NOAPS beneficiary list 1 if yes, 0 if no 1NMBS beneficiary list 1 if yes, 0 if no 1Beneficiary list of other government programmes

1 if yes, 0 if no 1

Land Reforms beneficiary list 1 if yes, 0 if no 1List of registered bargadars 1 if yes, 0 if no 1


(c) Regarding right to information


MarksMarks

ObtainedIs there any provision of providing information to people as per ‘Right to Information Act’?

2 if there is provision and some people has collected information 1 if there is provision but no people has collected information 0 if there is no provision

2

Total 2

6. Transparency in GP’s work

165



MarksMarks

Obtained(a) How GP Budget and Annual Report are placed for public viewing?

Placed to Gram Sansad meeting

3 if all provisions are there 2 if any two provisions are there 1 if any one provision is there

0 if no provision is there

3Submitted to local librarySupplied to public on demand

(b) Is there any notice board in the GP office displaying information for public viewing?

2 if yes, 0 if no

2

(c) Is there any provision of displaying necessary information (work details, budget & who got work) at the notice board in the workplace?

3 if displayed all the times 2 if displayed in maximum times 1 if displayed in some times 0 if displayed never

3

(d) Is there any provision of giving copy of Master Roll if demanded?

2 if there is provision and some people has collected 1 if there is provision but no people has collected 0 if there is no provision

2

Total 10

7. Education


MarksMarks

Obtained(a) What is the female literacy rate at the GP?

8 if 90-100%, 7 if 80-89%, 6 if 70-79%, 5 if 60-69%, 4 if 55-59%, 3 if 50-54%, 2 if 45-49%, 1 if 40-44% and 0 if less than 40%

8

(b) By what percentage female literacy rate falls short of male?

6 if less than 5%, 4 if 6-10%, 2 if 11-15% and 0 if more than 15%

6

(c) What is the percentage of children going to schools / alternative schools in 5-14 age group?

6 if 97-100%, 5 if 93-96%, 4 if 89-92%, 3 if 85-88%, 2 if 81-84%, 1 if 75-80%, 0 if less than 75% and -2 if GP does not have any information

6

(d) What percentage of children admitted in Class I pass Class IV in due time?

5 if 90-100%, 4 if 80-89%, 3 if 70-79%, 2 if 60-69%, 1 if 50-59%, 0 if less than 50% 5

(e) What percentage of children admitted in Class I pass Class VIII in due time?

5 if 85-100%, 4 if 70-84%, 3 if 55-69%, 2 if 40-54%, 1 if 25-39%, 0 if less than 25% 5


7. Education (Continuing)

166



MarksMarks

Obtained(g) How the Village Education Committee is functioning within the GP?

Do VECs hold regular meeting? 2 if yes, 0 if no 2Have Child Registers been prepared?

2 if yes, 0 if no 2

Whether household specific list for the out of school children have been prepared by compiling Child Register?

2 if yes, 0 if no 2

Whether any attempts have been taken to admit those out of school children by house to house or any other campaign?

2 if yes, 0 if no 2

Whether any attempts have been taken to open EGS / Bridge Course / Rabindra Mukta Vidyalayas in those Gram Sansads where there is no formal or alternative school?

2 if yes, 0 if no 2

What is the percentage of Gram Sansads without having any Primary School / Sishu Siksha Kendra / EGS / Bridge Course Centres?

5 if 0%, 4 if 1-5%, 3 if 6-10%, 2 if 11-15%, 1 if 16-20%, 0 if more than 20%

5


8. Public Health

(a) Health Services


MarksMarks

ObtainedLast Saturday health meeting in the GP

3 if regularly takes place in every month and report of the meeting is regularly sent to BMO(H),2 if regularly takes place in every month but report of the meeting is not sent regularly to BMO(H),1 if the meeting takes place occasionally,-2 if the meeting takes place never.

3

Does the GP take definite action plan for service providing at the last Saturday health meeting?

2 if definite action plans taken in 9 or more meetings in last financial year,1 if definite action plans taken in 6-8 meetings in last financial year,0 if definite action plans taken in less than 6 meetings in last financial year.

2

Does the GP implements the action plan?

3 if implemented in 9 or more cases, 2 if implemented in 7-8 cases, 1 if implemented in 5-6 cases and 0 if implemented in less than 5 cases

3


(a) Health Services (Continuing)

Subject Scoring Pattern Maximum Marks

167


Marks ObtainedIs there any provision of Doctor coming to GP headquarter sub-centre at any particular day in a week?

5 if yes, 0 if no(If there is a system of doctor coming regularly in a health centre run by the Health Department within the GP area, then also the GP will get 5 marks)

5

Out of the total birth cases in last one year what was the percentage of children whose birth was registered within 21 days?

5 if 80% or more, 4 if 70-79%, 3 if 60-69%, 2 if 50-59%, 1 if 40-49% and 0 if less than 40% or data not available

5

Out of the total death cases in last one year what was the percentage of cases where death was registered within 21 days?

5 if 80% or more, 4 if 70-79%, 3 if 60-69%, 2 if 50-59%, 1 if 40-49% and 0 if less than 40% or data not available

5

Is there any information at the GP regarding primary health sub-centre wise number of Dais (midwife)?

2 if yes, 0 if no2

Out of total Dais (midwife) in the GP area what is the percentage of trained Dai?

3 if 80% or more, 2 if 60-79%, 1 if 40-59% and 0 if less than 40% or data not available

3

What is the percentage of child born neither in hospital nor with the help of a trained Dai (midwife) during the last one year?

3 if 0%, 2 if 1-10%, 1 if 11-20% and 0 if more than 20% or data not available

3

What was the percentage of children covered under vaccination of 6 diseases in last one year?

5 if 95-100%, 4 if 75-94%, 3 if 55-74%, 2 if 40-54%, 1 if 25-39% and 0 if less than 25% or data not available

5

What was percentage of pregnant women taking 2 tetanus vaccinations in last one year?

4 if 85-100%, 3 if 70-84%, 2 if 55-69%, 1 if 40-54%, 0 if less than 40% or data not available

4

What was percentage of women who has gone through at least 3 health check-ups at the pregnancy period and and at least 1 health check-up after delivery in last one year?

5 if 95-100%, 4 if 75-94%, 3 if 55-74%, 2 if 40-54%, 1 if 25-39% and 0 if less than 25% or data not available 5


(b) Drinking Water & SanitationSubject Scoring Pattern Maximum Marks

168


Marks ObtainedWhat is the percentage of families who do not need to go beyond 100 meters to collect drinking water even in Baisakh-Jaistha (mid April to mid June) months?

4 if 100%, 3 if 95-99%, 2 if 90-94%, 1 if 85-89% and 0 if less than 85% or data not available 4

What is the percentage of families having access to tap water?

4 if 80% or more, 3 if 60-79%, 2 if 40-59%, 1 if 20-39% and 0 if less than 20% or data not available

4

What is the percentage of families having tap / tube well / well within the household?

4 if 50% or more, 3 if 40-49%, 2 if 30-39%, 1 if 20-29% and 0 if less than 20% or data not available

4

What is the percentage of household having sanitation?

4 if 100%, 3 if 70-99%, 2 if 50-69%, 1 if 30-49% and 0 if less than 30% or data not available

4

What is percentage of tubewell/well having cemented floor?

On the basis of the available data2 if 90-100%, 1 if 80-89% and 0 if less than 80% or data not available

2

What is percentage of water source having soak pit?

,, 2


(c) Women & Child development


MarksMarks

ObtainedWhat is the percentage of girls getting married under 18 during the last one year?

4 if 0%, 3 if 1-5%, 2 if 6-12%, 1 if 13-20%, and 0 if more than 20% or data not available

4

What is the percentage of women becoming mother under 20 during the last one year?

,, 4

What is the percentage of women having 3 or more children?

4 if 10% or less, 3 if 11-20%, 2 if 21-30%, 1 if 31-40% and 0 if more than 40% or data not available

4

Is there any provision of taking weight at time of birth when the child is born neither in hospital nor with the help of trained dai?

1 if yes, 0 if no

1

If there is provision, what percentage of newly born child was weighted during the last one year?

2 if 80% or more, 1 if 70-79% and 0 if less than 70% or data not available

2


(c) Women & Child development (Continuing)


MarksMarks

Obtained

169


What was the percentage of underweight children out of the total child birth in last one year (classified in Red & Yellow category of ICDS weight chart)?

2 if 10% or less, 1 if 11-20% and 0 if more than 20% or data not available

2

Does the GP have any arrangement of supplementary nutrition for the underweight children below 3 years of age?

3 if GP has own arrangement, 2 if GP does not have own arrangement but helps in the arrangement of anganwadi centres for all children, 1 if GP does not have own arrangement but helps in the arrangement of anganwadi centres for some children and 0 if GP has done nothing or data not available

3


9. Pro-poor Activities


9. Pro-poor Activities (Continuing)


MarksMarks

Obtained(a) What is the percentage of BPL family?

5 if less than 10%, 4 if 11-20%, 3 if 21-30%, 2 if 31-40%, 1 if 41-50%, 0 if more than 50%

5

(b) What is the average number of man days generated per BPL family in various employment generation programmes like NFFWP/SGRY/ WBREGS?

5 if 25 days or more, 4 if 21-24 days, 3 if 17-20 days, 2 if 13-16 days, 1 if 10-12 days, 0 if less than 10 days 5

(c) What is the percentage women belonging to Self Help Group?

4 if 70% or more, 3 if 50-69%, 2 if 30-49%, 1 if 25-29% and 0 if less than 25%

4

(d) Is there any Cluster of SHGs at the GP level?

2 if the answer is yes and GP has made arrangement for the office of the Cluster, 1 if the answer is yes but GP has not made any arrangement for the office of the Cluster and 0 if the answer is no

2

(e) What percentage of Untied fund has been spent for the economic development of women during the last financial year?

2 if 15% or more, 1 if 5-14% and 0 if less than 5%

2

170


10. Development of Economic and Social Infrastructure


MarksMarks

Obtained(a) What is the percentage of land in the GP area having irrigation facility?

On the basis of the available data 5 if 80-100%, 4 if 60-79%, 3 if 40-59%, 2 if 20-39%, 1 if 5-19%, 0 if less than 5% or data is not available

5

(b) What is the percentage of mouza having electrification? 2 if 60-100%, 1 if 30-59%, 0 if less than 30% 2

(c) What is the percentage of households having electricity?

3 if 60-100%, 2 if 30-59%, 1 if 10-29%, 0 if less than 10%

3

(d) What is the percentage of primary schools in the GP area that do not have minimum infrastructure?

On the basis of the available data 5 if 0%, 4 if 1-20%, 3 if 21-40%, 2 if 41-60%, 1 if 61-80%, 0 if more than 80% or data is not available

5

(e) What is the percentage of Sishu Siksha Kendras in the GP area that do not have minimum infrastructure?

,, 5

(f) What is the percentage of primary health sub-centres in the GP area that do not have minimum infrastructure?

,, 5



MarksMarks

Obtained (f) What percentage of BPL families has been targeted to be provided opportunities for enhancing income under various schemes in the 2006-07 Annual Plan?

5 if 90-100%, 4 if 80-89%, 3 if 70-79%, 2 if 60-69%, 1 if 50-59%, 0 if less than 50%

5

(g) What percentage of SC & ST BPL families has been targeted to be provided opportunities for enhancing income under various schemes in the 2006-07 Annual Plan?

2 if 90-100%,1 if 70-89% and0 if less than 70%

2

(h) What is the percentage of families expected to come out of BPL list in this year? [combining the opportunities mentioned in question (f) and other incomes from own attempt]

5 if 10% or more, 4 if 8-9%, 3 if 6-7%, 2 if 4-5%, 1 if 2-3% and 0 if less than 2%

5


171


10. Development of Economic and Social Infrastructure (Continuing)


MarksMarks

Obtained(g) What is the percentage of ICDS centres GP area that do not have minimum infrastructure?

On the basis of the available data 5 if 0%, 4 if 1-20%, 3 if 21-40%, 2 if 41-60%, 1 if 61-80%, 0 if more than 80% or data is not available

5


11. Housing


MarksMarks

Obtained(a) What is the percentage of families without a homestead?

10 if 0%, 8 if 0.1-0.5%, 6 if 0.6-1%, 4 if 1.1-1.5%, 2 if 1.6-2%, 0 if more than 2%

10

(b) What is the percentage of families living in dilapidated house?

5 if 0-5%, 4 if 6-10%, 3 if 11-15%, 2 if 16-20%, 1 if 21-25%, 0 if more than 25%

5

(c) What is the percentage of families living in one room dwelling house?

5 if 0-10%, 4 if 11-20%, 3 if 21-40%, 2 if 41-60%, 1 if 61-80%, 0 if more than 80%

5


12. Disaster Preparedness


MarksMarks

ObtainedDo the GP have any advance disaster preparedness plan?

5 if yes, 0 if no5

Total 5

13. Social Security


MarksMarks

Obtained(a) Do all the poor / Antyodaya Anna Yojana beneficiary families get sufficient food as per scheme standard quality and quantity?

4 if the answer is yes by asking directly to at least 10% beneficiaries, 2 if the answer is yes by common perception and 0 if the answer is no

4


172


13. Social Security (Continuing)


MarksMarks

Obtained(b) After how many days of receiving the last installment of NOAPS the money has been given to be pensioners?

4 if within 7 days of receiving allotment, 3 if within 15 days of receiving allotment, 2 if within 21 days of receiving allotment, 1 if within 30 days of receiving allotment and -2 if beyond 30 days of receiving allotment

4

(c) Do the GP have list of physical and mental handicapped persons?

4 if yes, 0 if no4

(d) What is the percentage of physical and mental handicapped persons provided with any benefit under any scheme?

4 if 80-100%, 3 if 60-79%, 2 if 40-59%, 1 if 25-39%, 0 if less than 25%

4

(e) How many landless agricultural labourers have been brought under the PROFLAL scheme?

4 if 80-100%, 3 if 60-79%, 2 if 40-59%, 1 if 20-39%, 0 if less than 20%

4


B. Resource Mobilization & Its Utilisation

14. Issues regarding Bye-Law of GP

Subject Scoring Pattern Maximum Marks

Marks Obtained

(a) Whether new Rate, Fee etc. have been fixed as per Bye-Law?

3 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by 50% or more, 2 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by 30-49%,1 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by 15-29%,0 if new Rate, Fee etc. have been fixed and accordingly collection of Rate, Fee etc. have increased by less than 15% and -2 if new Rate, Fee etc. have not been fixed

3

(b) How Rate Fee etc. are collected as per Bye-Law?

2 if collected by using all sections1 if collected by using some sections0 if not collected

2

Total 5

173


15. Issues regarding GP Plan & Budget

SubjectAllotted Marks Marks

ObtainedIf yes If no(a) Was any estimation done at the time of annual plan preparation regarding total resources to be available?

Resources from Govt. Programmes 1 0GP’s Own Revenue 1 0Peoples’ Contribution 1 0Local unused or low used resources 1 0

(b) Whether village based participatory plans are prepared? 2 0(c) Whether Annual Plan has been prepared in due time? 2 0(d) Whether Annual Budget has been prepared in due time? 2 0(e) If some expenditure is incurred beyond budget is that get approved by GP General Body meeting?

2 0

(f) Before giving work order

Is it checked whether the work is included in plan? 1 0Is it checked whether the work is provisioned in budget? 1 0Is it checked whether exact plan & estimate exists? 1 0Whether the supply of funds is checked? 1 0

(g) If some expenditure is incurred beyond estimate is that get approved by GP General Body meeting?

1 0

(h) Is there any mechanism at the time of expenditure to check whether the work is included in approved plan & budget?

1 0

(i) How much time is required to start work after receiving of fund?

2 if 7 days or less, 1 if 8-15 days and 0 if 15 days or more

Maximum Marks : 2

Total 20 0Actual Marks Obtained (= Total Marks Obtained 2) 10 0

16. Own Source Revenue in Last Financial Year

Subject Pattern Scoring PatternMaximum

MarksMarks

Obtained

Tax Revenue

Per capita Tax Revenue

7 if Per Capita Tax Revenue is more than or equal to Rs. 106 if Per Capita Tax Revenue is within Rs. 8 to Rs. 9.995 if Per Capita Tax Revenue is within Rs. 6 to Rs. 7.994 if Per Capita Tax Revenue is within Rs. 5 to Rs. 5.993 if Per Capita Tax Revenue is within Rs. 4 to Rs. 4.992 if Per Capita Tax Revenue is within Rs. 3 to Rs. 3.991 if Per Capita Tax Revenue is within Rs. 2 to Rs. 2.990 if Per Capita Tax Revenue is less than Rs. 2

7


174


16. Own Source Revenue in Last Financial Year (Continuing)


MarksMarks

Obtained

Tax Revenue

What is the percentage of increment of tax revenue in the last year compared to its previous year?

10 if increment is 30% or more9 if increment is 27-29%, 8 if increment is 24-26%7 if increment is 21-23%, 6 if increment is 18-20%5 if increment is 15-17%, 4 if increment is 12-14%3 if increment is 9-11%, 2 if increment is 6-8%1 if increment is 3-5%, 0 if increment is less than 3% and -2 if last year’s collection is less than its previous year

10

What was the percentage of Collection out of Assessment in last financial year?

13 if 100% collected, 12 if 95-99% collected,11 if 90-94% collected, 10 if 80-89% collected,9 if 70-79% collected, 8 if 60-69% collected,7 if 50-59% collected, 6 if 40-49% collected,5 if 30-39% collected, 4 if 25-29% collected,3 if 20-24% collected, 2 if 15-19% collected and0 if less than 15% collected

13

Non-Tax Revenue

Per capita Non-Tax Revenue

8 if Per Capita Non-Tax Revenue is more than or equal to Rs. 107 if Per Capita Non-Tax Revenue is within Rs. 8 to Rs. 9.996 if Per Capita Non-Tax Revenue is within Rs. 6 to Rs. 7.995 if Per Capita Non-Tax Revenue is within Rs. 5 to Rs. 5.994 if Per Capita Non-Tax Revenue is within Rs. 4 to Rs. 4.993 if Per Capita Non-Tax Revenue is within Rs. 3 to Rs. 3.992 if Per Capita Non-Tax Revenue is within Rs. 2.50 to Rs. 2.991 if Per Capita Non-Tax Revenue is within Rs. 2 to Rs. 2.490 if Per Capita Non-Tax Revenue is less than Rs. 2

8

What is the percentage of increment of non-tax revenue in the last year compared to its previous year?

12 if increment is 30% or more, 11 if increment is 27-29%, 10 if increment is 24-26%, 9 if increment is 21-23%, 8 if increment is 18-20%, 7 if increment is 15-17%, 6 if increment is 12-14%, 5 if increment is 9-11%, 4 if increment is 7-8%, 3 if increment is 5-6%, 2 if increment is 3-4%, 1 if increment is 1-2%, 0 if increment is less than 1% and -2 if last year’s collection is less than its previous year

12

Total 50Actual Marks Obtained (= Total Marks Obtained 2 5) 20

175


17. Cashbook


MarksMarks

ObtainedOn which date cashbook has been written last?

4 if yesterday 3 if within last 3 days 2 if in between 4-7 days 1 if in between 8-15 days 0 if more than 15 days ago

4

On which date subsidiary cashbook has been written last?

,,4

On which date Pradhan has signed the cashbook last?

,,4

What is cash in hand today? (if some money is withdrawn from the bank to make labour payment, that amount not to be taken into consideration here)

4 if Rs. 500 or less 3 if in between Rs. 501-700 2 if in between Rs. 701-800 1 if in between Rs. 801-900 0 if in between Rs. 901-1000 -2 if more than Rs. 1000

4

For how many days money is kept in hand for labour payment as per today?

4 if no such cash in hand or cash withdrawn today or yesterday3 if cash withdrawn 2 days ago2 if cash withdrawn 3 days ago1 if cash withdrawn 4-5 days ago0 if cash withdrawn more than 5 days ago

4


18. Audit


MarksMarks

ObtainedHas the report of last Statutory Audit has been placed and discussed in the General Body meeting of GP?

2 if yes, 0 if no2

How the measures suggested in this report have been taken?

3 if all measures have been taken within due time, 2 if some measures have been taken within due time and some after due time, 1 if all measures have been taken after due time and 0 if no measures have been taken

3


176


18. Audit (Continuing)


MarksMarks

ObtainedHas the report of last Internal Audit has been placed and discussed in the General Body meeting of GP?

2 if yes, 0 if no2

How the measures suggested in this report have been taken?

3 if all measures have been taken within due time, 2 if some measures have been taken within due time and some after due time, 1 if all measures have been taken after due time and 0 if no measures have been taken

3

Total 10

19. Fund Utilisation


MarksMarks

ObtainedWhat is the percentage of funds utilized out of the total funds received for different programmes (including opening balance) during the last financial year?

40 if 90-100%, 32 if 80-89%,24 if 70-79%, 16 if 60-69%,8 if 50-59% and 0 if less than 50%

40

Utilisation of Own Fund of GP during the last financial year (including opening balance)

What percentage of Own Fund has been utilized?

10 if 90-100%, 8 if 80-89%, 6 if 70-79%, 4 if 60-69%,2 if 50-59% and 0 if less than 50%

10

What percentage of Own Fund has been utilized for office expenses?

5 if less than 10%, 4 if 10-19%, 3 if 20-29% and0 if more than 30%

5

What percentage of Own Fund has been utilized for various social programmes (e.g. education, health, nutrition, women and child development etc.)?

5 if 40% or more, 4 if 30-39%,3 if 20-29%, 2 if 10-19%, 1 if 5-9% and0 if less than 5%

5

What percentage of Own fund has been utilized for education during the last financial year?

5 if more than 15%, 4 if 13-15%, 3 if 9-12%, 2 if 6-8%, 1 if 3-5% and 0 if less than 3%

5

What percentage of Own fund has been utilized for health during the last financial year?


5

What percentage of Own fund has been utilized for women & child development during the last financial year?


5


177


20. Provision for sending Utilisation Certificates and Report Returns

(a) Utilisation Certificates


MarksMarks

ObtainedWhen GP normally sends UC?

For various schemes

7 if sent within 3 months from the receiving of fund,3 if sent within 4 months from the receiving of fund,1 if sent within 6 months from the receiving of fund, 0 if sent beyond 6 months from the receiving of fund

7

For adminis-trative expenses

3 if sent within the period for which the fund is received, 2 if sent within 15 days from the end of the period for which the fund is received, 1 if sent within 1 month from the end of the period for which the fund is received, 0 if sent beyond 1 month from the end of the period for which the fund is received and-2 if never sent

3

Total 10

(b) Report Returns


MarksMarks

ObtainedWhen GP normally sends these reports and data?

Annual works report 2 if within the due date, 0 otherwise 2Half-yearly works report 1 if within the due date, 0 otherwise 1Monthly progress report 4 if within the due date, 0 otherwise 4Data and reports demanded by State Govt., District, Sub-division, Block from the GP time to time

3 if within the due date, 2 if within 7 days after the due date, 1 if within 15 days after the due date and0 if more than 15 days after the due date

3

Total 10

21. Natural Resource Utilisation


MarksMarks

Obtained(a) What percentages of areas have been covered under social forestry out of the total possible space?

On the basis of the available data 10 if 90-100%, 8 if 80-89%, 6 if 70-79%, 4 if 60-69%, 2 if 50-59%, 0 if less than 50% and -2 if data is not available

10

(b) What is the percentage of tubewell/well/tank that dries out in the summer?

5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31-40%, 1 if 41-50%, 0 if more than 50% 5

(c) What is the percentage of areas where it has not been possible to prevent land erosion?

5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31-40%, 1 if 41-50%, 0 if more than 50% 5


Overall

178


SubjectMaximum

MarksMarks

ObtainedA. Good Governance1. Peoples’ participation in GP’s activities

(a) Last Gram Sansad meeting (General Meeting, not special) 10(b) Formation of Gram Unnayan Samiti and Secretary Election 10

2. Participation of the members in the functioning of GP

(a) How many Upa-Samitis have submitted their Budget? 5(b) How many Upa-Samitis have submitted their budget within due time?

5

(c) How many meetings of the GP General Body and Upa-Samitis took place during the last one year?

10

(d) Issues regarding the General Body meeting of GP 5(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the last one year?

5

3. Services delivered by GP 204. GP Building & Office Management 85. GP Information Management & Disposing System

(a) Register related 10(b) Are the following lists available at the GP office for public viewing?

5

(c) Regarding right to information 26. Transparency in GP’s work 107. Education 158. Public Health (a) Health Services 15

(b) Drinking Water & Sanitation 10(c) Women & Child development 10

9. Pro-poor Activities 1010. Development of Economic and Social Infrastructure 1011. Housing 1012. Disaster Preparedness 513. Social Security 10

Total (Good Governance) 200B. Resource Mobilization & Its Utilisation14. Issues regarding Bye-Law of GP 515. Issues regarding GP Plan & Budget 1016. Own Source Revenue in Last Financial Year 2017. Cashbook 1018. Audit 1019. Fund Utilisation 1520. Provision for sending Utilisation Certificates and Report Returns

(a) Utilisation Certificates 10(b) Report Returns 10

21. Natural Resource Utilisation 10Total (Resource Mobilization & Its Utilisation) 100

Grand Total 300Actual Total Marks Obtained (= Total Marks Obtained 3) 100

Signature & Seal of Secretary Signature & Seal of Executive Assistant Signature & Seal of Pradhan

179

vision for panchayat in west bengal,india

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