PAI 2020 Summary Report

Public Affairs Index AT A GLANCE 2020 Public Affairs Index - Governance in the States of India- 2020

Research Team: Gurucharan Gollerkeri | Aparna Sivaraman | Mrinalini Kabbur | Samridhi Pandey | Aishwariya Venkatesh

ISBN: 978-81-943308-2-0 Suggested Citation: Gollerkeri, G.; Sivaraman, A; Pandey, S; Kabbur, M; Venkatesh, A (2020). Public Affairs Index (2020): Governance in the States of India, Bangalore: PAC, ISBN: 978-81-943308-2-0

Public Affairs Centre (PAC) engages in action research focussing on Sustainable Development Goals (SDGs) in the - context of India. PAC is a not for profit Think Tank established in 1994 with a mandate to improve the quality of gov gamuternance of in research-advocacy-action India. The Centre is also toa pioneerlead evidence-based in deploying researchinnovative on Social governance Accountability across sectors, Tools (SAT) geographies to measure and populationsthe quality and in India. adequacy PAC ensures of public that services. gender Over is an theover-arching years, its themescope ofin workall its hasfocus expanded research toareas. include the whole

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www.pafglobal.org State Fact Sheets designed by Malikarjun R Hosmath Public Affairs Index 2020

Gurucharan Gollerkeri is Director, Public Affairs Centre (PAC), Bangalore. A civil servant from the Indian Administrative Service, in the higher echelons of Government for over 34 years, he retired as Secretary to the Government of India, in 2016. He

a policy ‘think-tank’ on International Migration, during 2010-13. Based on his work served with distinction as the first director of the India Centre for Migration (ICM), 2016). In 2004-05, Mr. Gollerkeri was a Visiting Fellow at the Centre for Public Policy at theat the Indian ICM, Institute he co-authored of Management, ‘Migration Bangalore. Matters: MobilityMr. Gollerkeri in a Globalizing spearheaded World’ PAI 2020. (OUP,

Aparna Sivaraman

played a key role in developing is a Programme the PAI 2020Officer model, at the data Public analysis Affairs and Centre, co-authoring Bangalore. the chapters.She is the She Team was Lead also forresponsible PAI 2020 for and managing a co-author the team of the and PAI for 2019 ensuring report. veracity She has of the data. With a Bachelor’s degree in Economics and a Master’s degree in Public Policy,

Aparna’s research interests include qualitative and quantitative analyses in the areas of gender equality, migration, economic development and intellectual property. Mrinalini Kabbur

various domains such isas a education, senior data health, analyst women at the & child Centre development, for Open-Data food Research security and(CODR), migration. Public AffairsShe is Centreadept with (PAC). various She provides statistical data and analysis machine and reportinglearning algorithms support in

for primary and secondary data like Exploratory and Confirmatory Factor Analysis, Structural Equation Modelling, Principal Component Analysis, Linear and Logistic andRegression, data analysis. Decision Trees, Random Forest and Cluster Analysis. She was responsible for the application of scientific techniques to arrive at the composite index - PAI 2020

Samridhi Pandey has a Bachelors and Masters degree in Economics with a specialisation in development studies. She has worked is a onProgramme data analysis Officer and atco-authoring the Public Affairs the chapters Centre, of Bengaluru. PAI 2020. She is also part of the project on improving ICDS service delivery in the state of Karnataka. Her interest areas surround gender studies, education and economic development.

Aishwariya V - is a former data analyst at the Centre for Open Data Research (CODR), Public Affairs Centre (PAC). Her research interest areas include Machine Learning, Pre dictive Modelling with R and Data Visualisation with Tableau. She was responsible for the application of scientific techniques to arrive at the composite index - PAI 2020. Public Affairs Index 2020

EDITING AND DESIGN TEAM

Dr. Annapoorna Ravichander, Executive Director, Public Affairs Foundation and Head-Policy Engagement and Communication, PAC oversees all the activities related to branding, engaging with stakeholders and editing all documents.

Esha Daftari is a Graphic Designer. She oversees all design elements and brings in her experience of using graphics, photography and designing in maling complex infor- mation as an easy to read experience based on the audience. 4 BACKGROUND OF PAI 2020

The Public Affairs Index (PAI 2020) is a scientifically rigorous, data-based framework intothat twomeasures categories- the quality large andof governance small- using at population the subnational as the level criteria. and ranks the states and Union Territories (UTs) of India on a Composite Index (CI). States are classified

as the overarching goals of governance, constitute the bases in the approach to The three dimensions of sustainable development- Equity, Growth and Sustainability

measuring the performance of the states. They are the three pillars on which the CI is constructed. Each of the three pillars is circumscribed by five governance praxis themes that influence the pace and direction of development outcomes, in substantive ofand Corruption. context-specific At the ways, bottom in smallof the or pyramid, great measure. 50 component The themes indicators include- are Voice mapped and Accountability, Government Effectiveness, Rule of Law, Regulatory Quality and Control

theto 13 50 Sustainable indicators thatDevelopment go into the Goals calculation (SDGs) ofthat the are CI relevantwere dictated to the by states the objectiveand UTs. ofThis uncovering forms the foundationthe complexity of the and conceptual multidimensional framework characterof PAI 2020. of Thedevelopment choice of governance. Public Affairs Index 2020

METHODOLOGY

*PCA- Principal Component Analysis 6 THE EQUITY PRINCIPLE

The pillar of Equity examines the political economy of exclusion from the perspective economic,of the states social and and UTs. gender. The pillar subsumes all the five themes of PAI 2020 and uses 23 component indicators to assess performance on equity along three dimensions-

Key Findings

• There exists varying degrees of equity amongst states and UTs • ContraryPerformance to PAI in 2019,equity the parameters overall performance has increased of positivelythe large across all states and UTs in India

states is significantly influenced by their performance in the Equity pillar • In the case of small states, equity scores are not a driving factor in influencing the overall ranking. This is a marked • Inshift the from large the states, findings SDGs in 3, PAI 10 2019. and 16 In show the Union a strong Territories positive as well, overall performance is not influenced by equity parameters While SDG 16 covers indicators on crimes against women, childrencorrelation and in social influencing minorities, performance proportion in theof under Equity trials, pillar. SDG 3 covers Infant Mortality Rates and female worker population ratio

• ofFor crimes the small (SDG states, 16) and the female SDGs that worker significantly population influence (SDG 10) equity include SDGs 11, 16 and 10. Interestingly, the indicators

ofthat populations were significant living in urbanthe case slums of large under states SDG appear 11 to be significant in the case of small states as well with the addition covered under SDG 5 and disposal of cases of corruption, • For Union Territories, gender parity in elementary education,

under SDG 16 significantly influence performance in the Equity pillar Public Affairs Index 2020

Heat Map - Large states

(0.628). It is interesting to note the gap between Kerala (ranked 2nd) and Chhattisgarh Andhra Pradesh ranks first among the large states (0.651), closely followed by Kerala terms of the overall PAI ranking features 5th. Andhra Pradesh, which ranks 1st in 2020, was(ranked 9th 3rdin the with previous a score ofyear, 0.259), a sharp is considerably improvement. large. Similar Tamil Naduto 2019, which Bihar, is second Madhya in

Pradesh, Odisha and Haryana find themselves at the bottom of the rankings. 8 THE EQUITY PRINCIPLE

Heat Map - Small States

Meghalaya and Himachal Pradesh swapped places with each other, in 2020, with The rankings in the Equity pillar for 2020 are similar to those in 2019. However, Pradesh (2.020). Similar to the large states, there is a large gap in the scores of Him- Meghalaya moving to first place with a score of 2.169 followed closely by Himachal the case of small states is the fact that almost all states have shown an improvement achal Pradesh at 2nd place and Manipur (1.504) at 3rd place. An interesting finding in

in the scores from the previous year. Delhi finds its place in the bottom of the ranking with a score of -1.600. There is also a considerable gap in the scores of Delhi (-1.600) and Mizoram (-0.237) indicating considerable inequity. Public Affairs Index 2020

Heat Map - Union Territories where a considerable gap in score is observed between Jammu & Kashmir (0.593) Chandigarh tops the ranking with a score of 1.348. This is followed by Puducherry of -1.717. and Puducherry (0.098). At the bottom of the rankings is Lakshadweep with a score 10 THE GROWTH IMPERATIVE

- - The Growth pillar dwells on India’s growth challenge and the concerns that need atten tion for sustainable development. The pillar subsumes two themes and uses 20 com ponent indicators to rank the performance of states and UTs on growth. Key Findings

• technologicallyThe states that havemore performed advanced andwell secondly, on the economic their economic growth productivitypillar are characterised is dispersed by across two features a greater – firstly,number they of growthare centres and a wider spectrum of activities

• accumulationThe lesson that in PAI the 2020 backward points states to is that,and especially the rise in in the disadvantagedcumulative inequity populations is adversely affecting human capital • All the states in the top 5 positions in the Growth index are South Indian states • In the large states, the performance in growth contributes

even greater than PAI 2019 • Contrarysignificantly to PAI towards 2019, the in the performance small states in too,the overallgrowth Index,is a

positive correlation significant contributor to overall performance with a strong

• performanceAmong the Union Territories as well, the growth pillar has • Inemerged the case as of a stronglarge states, influencing strong factorpositive in correlationsthe overall have emerged in 5 of the theme level SDGs covering SDGs including

(Clean Water and Sanitation), 7 (Clean and Affordable Energy) 3 (Good Health and Well Being), 4 (Quality Education), 6 correlation is observed in the case of SDG 7 • Amongstand 11 (Sustainable the small states, Cities aand strong Communities). positive correlation The strongest is observed in the case of four theme level SDGs, namely SDG 6 Government Effectiveness and SDGs 8, 9 and 11 under the

andtheme Economic of Regulatory Growth) Quality. (0.799) The strongest correlation coefficient was observed in the case of SDG 8 (Decent Work strongly correlated which are SDG 6 and 7 under Government • Effectiveness.In the case of Union Territories, only two SDGs appear Public Affairs Index 2020

Heat Map - Large states

In the case of the large states, Kerala continues to lead the way in terms of growth rankings. Closely following Kerala is Karnataka with a score of 1.219 which has moved up from third place in 2019. What is interesting is the fall of Haryana which was 2nd featured 8th in 2019 has moved to 2nd place this year with a score of 1.159, closely in the rankings in 2019 to 7th in PAI 2020 with a score of 0.562. Tamil Nadu, which thetrailing positions Karnataka. as compared The bottom to the rankings previous are year. similar to 2019, with the states of Assam, Odisha, Bihar and Uttar Pradesh forming the bottom of the list, albeit with a shuffle in 12 THE GROWTH IMPERATIVE

Heat Map - Small States

2.154 in 2019. Following Goa is Himachal Pradesh (0.491) and what is worth noting Goa retains the first ranking with a score of 1.933 which is a drop from the score of patterns. Delhi, which was 3rd in the 2019 rankings has now slipped to 4th place with Sikkimis the gap climbing between up fromthe scores 6th to of 3rd these in the two rankings. states, indicating Meghalaya an which inequality ranks in3rd growth in the

bottom positions remain occupied by Nagaland and Mizoram, similar to 2019. overall rankings finds its place in the 9th position of 11 with a score of -0.419. The Public Affairs Index 2020

Heat Map - Union Territories

Puducherry occupies the first rank with a score of 1.218 followed by Lakshadweep Andamanwith a score & Nicobarof 1.064. Islands, A large gapDadra can & be Nagar observed Haveli between and Jammu the scores& Kashmir of Lakshadweep with scores inat the2nd negatives. rank with 1.064 and Daman & Diu (0.363). Towards the bottom are the UTs of 14 SUSTAINABILITY AS AN ORGANISING PRINCIPLE

andThe uses Sustainability 7 indicators pillar to measure analyses the the effectiveness access to and of government usage of resources efforts with that regards has an toimpact sustainability. on environment, economy and humankind. The pillar subsumes two themes

Key Findings

• Contrary to PAI 2019, the top 5 ranks in the sustainability pillar are not from South India

• InThe the parameters case of large of sustainabilitystates, the indicators significantly under influence SDG 11(0.862) overall focusperformance on solid in waste large generation and small statesand waste and Unionmanagement Territories and pollution in cities. Closely following SDG 11 are the indicators under SDG 7 (0.605), which cover the consumption of renewable energy and usage of clean cooking fuel in households

correlation with the highest being with SDG 7 (0.859), • followedIn the case by of SDG Union 15 (0.700)Territories, which all includesthe three the SDGs indicators have high on forest and tree cover and the land degradation • In the case of small states, only one SDG exhibits a high degree of correlation which is SDG 15 which has a correlation

tree cover and land usage are drivers of sustainability in the smallcoefficient states. of 0.704, indicating that parameters on forest and Public Affairs Index 2020

Heat Map - Large states

Karnataka which was 1st in the 2019 rankings has slipped to 5th this year with a sig- is Andhra Pradesh which went from 4th in 2019 (0.471) to 7th (0.212) now. Kerala has nificant drop in the scores from 1.45 in 2019 to 0.793 currently. Another similar drop Nadu which was 3rd in 2019, has moved to 2nd this year with a score of 1.457. Chhattis- garhjumped has up moved a rank up along the rankingwith a significant from 10th increase (-0.543) in in score 2019 (from to 4th 1.367 position to 2.117). (0.840) Tamil this year. On the other hand, Bihar, which was 7th in last year’s rankings has moved down to 14th this year with a score of -1.244, finding itself at the bottom of the rankings. At the bottom are the states of Bihar, Haryana, Odisha, Jharkhand and West Bengal. 16 SUSTAINABILITY AS AN ORGANISING PRINCIPLE

Heat Map - Small States

Goa, which was 5th in 2019, tops the rankings in 2020 with a score of 2.18 followed

position this year with a score of 0.053. Continuing the trend, Arunachal Pradesh which by Meghalaya which ranks 2nd. Manipur which ranked 2nd in 2019 finds itself in 8th

thetopped states the that rankings has made in 2019 an improvement finds itself atis Delhi9th in which 2020 haswith moved a score from of 0.018.the bottom Only in2 2019small tostates 5th (Himachalin PAI 2020. Pradesh and Uttarakhand) have scores that are negative. One of Public Affairs Index 2020

Heat Map - Union Territories

DamanChandigarh & Diu leads with the scores rankings of -1.01 with and a score-1.186 of respectively. 1.498, Lakshadweep ranks 2nd with a score of 0.664. At the bottom of the rankings are the UTs of Dadra & Nagar Haveli and 18 THE DELTA ANALYSIS

2019-20,The Delta coveredAnalysis by presents PAI 2020. the results on state performance and ranking measured as the Delta value over the last five years from 2015-16 when the first PAI was released to

Key Findings

who feature towards the bottom of PAI 2020 are the top • performers,In terms of Equity, while Kerala,Bihar followed Punjab and by West Maharashtra Bengal, Odisha feature at the bottom amongst the large states • In the case of small states, Mizoram is the top performer, while Goa is placed at the bottom

• PradeshIn the Growth featured pillar, among Bihar, the Assam bottom and in Odisha the delta showed analysis the with highest growth in delta, while Kerala and Karnataka and Uttar • Mizoram and Meghalaya have the highest growth with ManipurTamil Nadu at thebeing bottom. at the Himachal bottom. Pradesh ranks 2nd in PAI 2020, but has the least growth in Delta

• shownIn terms consistent of Sustainability, growth. Odisha Bihar, andGujarat, Haryana, Maharashtra show the and largest growth in delta. Tamil Nadu, Kerala and Karnataka have also • Goa is a consistent top performer followed by Delhi and Assam find places towards the bottom of the Delta rankings

Tripura. Meghalaya and Mizoram feature at the bottom. Public Affairs Index 2020

THE STATE OF THE STATES

- causeThe State they of are the hobbled States bymeasures resource inter-state constraints disparities - capital and and human shows resources that some - rootedof the instates endemic are not poverty in a position and chronic to participate backwardness. in competitive federalism, quite simply, be

Key Findings

• Most of the North-eastern states like Meghalaya, Sikkim and

• Crimes against women (total number of rapes per 10 lakh population)Tripura are includedhas a negative in the relationshiphigh performing with states growth classification

with growth, indicating that economies are growing at the cost of • The female worker population ratio has a negative relationship seen in poor performing states • Agriculturewidening gender distress disparities is still persistent in high performing in high performing states. This states is also as well as poor performing states • Rural indebtedness is increasing with increase in sustainability with a positive correlation between rural indebtedness and farmer suicides

negatively. • Increase in the state’s own tax revenue growth is affecting equity allocation towards agriculture and allied services by the • governmentReliance on agriculture is not reflected in the budgetary • 1% increase in the rape cases in these states result in a 272% fall in the Growth index

of convergence. Female labour force participation is a driving force. • The high, middle and poor performing states are following a path 20 THE SENSE OF AN ENDING

Alluding to the need for development that results in economic progress while be-

governance,ing inclusive the and PAI ecologically 2020 rankings secure, aim PAI to hold2020 up places a mirror equal to theimportance progress onmade the by three the pillars of Equity, Growth and Sustainability. Taking into account the various facets of

states and UTs while providing direction on the potential areas of intervention.

To provide a Pan-India perspective, PAI 2020 presentsCluster a1 Clusterincludes Analysis. the states of Ker- ala, Goa, Himachal Pradesh, Delhi, -

Maharashtra, Andhra Pradesh, Telanga Madhyana, Gujarat, Pradesh, Rajasthan, Sikkim Karnataka, and Chhat Tamil- Nadu, Punjab, Haryana, Uttarakhand, states and small states where most of thetisgarh. large This states cluster are on has the a listmix of of better large performers in PAI 2020. Cluster 1 per- forms above average in 17 indicators under the growth pillar as compared to

- catorsthe 11 underindicators sustainability. under equity, As comparedwhich shows to the that results this cluster in PAI is 2019, highly additions growth driven.in this clusterThese states include have states also like seen Madhya a moderately Pradesh betterwhich haveperformance moved from in the the 4 third out ofcluster. 5 indi

Cluster 2 mostly includes small states, namely, Arunachal Pradesh, Manipur, Meghalaya,

comparedNagaland, toTripura, only 5 indicatorsMizoram and in the Assam; Growth all pillar. from However,the North in East. sustainability This cluster this is cluster highly provesequity drivento be lagging with the with states above performing average performance above average in onlyin 16 2 of out the of 23 7 Sustainability indicators as

was sustainability driven. pillar indicators. This is a stark shift from the results in PAI 2019 where this cluster Cluster 3 states are the same states which have ranked towards the end in PAI 2020. In this consists of Uttar Pradesh, Bihar, Jharkhand, Odisha and West Bengal. These growth pillar and 1 out of 7 indicators in the sustainability pillar are indicators where thecluster, states only perform 8 out aboveof 23 indicatorsaverage. Interestingly, in the equity most pillar, of the6 out Aspirational of 20 indicators districts in that the

year. have been identified by the NITI Aayog fall within this particular cluster, similar to last

This raises a concern on the performance of these states over time. Public Affairs Index 2020

Heat Map - Large States improved performance in PAI 2020 with a score of 1.388 as compared to 1.011 in PAI Kerala tops the rankings yet again, followed closely by Tamil Nadu. While Kerala has which2019, Tamilare placed Nadu’s third score and has fourth slipped respectively. from 0.823 Both in PAIAndhra 2019 Pradesh to 0.912 and in KarnatakaPAI 2020. haveFollowing shown Kerala an improvement and Tamil Nadu in performance are Andhra inPradesh PAI 2020. (0.531) It is interestingand Karnataka to note (0.468) that continuing with the trend established in PAI 2019, the top four states in PAI 2020 are similar to PAI 2019, feature at the bottom of the rankings. South Indian states. Haryana, Jharkhand, Bihar, Odisha and Uttar Pradesh, which is 22 THE SENSE OF AN ENDING

Heat Map - Small States

improvement in the score as compared to PAI 2019 (from 1.1 to 1.745). Following Goa is MeghalayaGoa continues (0.797) to top which the hasrankings moved with from a third score position of 1.745. in theThe previous state has year. shown Himachal large

Pradesh follows Meghalaya, with a score of 0.725. The state has seen a consistent drop hasin performance however shown from an PAI improvement 2016, where in it scores was ranked from -1.214 first to in PAI PAI 2019 2019 where to -0.289 it ranked in PAI 2020.second, to now. Delhi has remained at the bottom of the rankings. The national capital Public Affairs Index 2020

Heat Map - Union Territories

Chandigarh emerges as the top performer with a score of 1.057. As seen in the large and the small states, there is a considerable gap in scores between Chandigarh and Puducherry (0.520), which is ranked second. At the bottom of the rankings is Jammu & Kashmir (-0.506) followed by Dadra & Nagar Haveli (-0.690). - ly in a diverse country like India, where each state is socially, culturally, economically Measuring governance is a challenge. This issue becomes increasingly complex especial and Sustainability that encapsulate governance. From a development perspective, it is axiomaticand politically that theredifferent. must PAC be thussynergies identified between three all broad the three pillars pillars. namely It isGrowth, impossible Equity to

PAI 2020believe that two of the three pillars are enough, growth and sustainability without equity; growth and equity without sustainability; equity and sustainability without growth. PAI is an amalgamation of 3 Pillars, 5 Themes, 13 SDGs and 50 indicators. states is aof conscious India, and effort rank tothem. present a scientifically sound, methodologically rigorous, and practically useful data-based framework to measure the quality of governance in the

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