LEAD SHG members participate in the GPDP exercise (pg. 27) newsreach

JAN_FEB 2019 IN THIS ISSUE

02 LEAD 21 CASE STUDY 48 CASE STUDY Scaling up Gram Panchayat Strengthening Local Pindarkone Gram Organization Development: Governance: A Development Panchayat: Setting The Way Forward Paradigm Examples of Governance Strengthening the organizational Recognizing the idea of the In the words of Mahatma Gandhi, capability of gram panchayats, the Panchayati Raj as crucial for the “The best, the quickest and the constitutionally recognized units foundation of the Indian political most efficient way is to build up of democratic governance vested system, the 73rd Constitution from the bottom... Every village with the responsibility of economic Amendment was passed by has to become a self-sufficient development and social justice, by Parliament in 1992, giving republic. This does not require addressing systemic issues within Constitutional power to local elected brave resolutions. It requires brave, the panchayats is both a process bodies, leading to a decentralized corporate, intelligent work...” and a journey form of governance in which each SHAILENDRA KUMAR SINGH, SURJODOY DR. ANJALI KAROL MOHAN and every village is responsible for NANDY AND DHIRAJ KUMAR MAHATO its own affairs NEHA JOSHI AND NIDHI TRIVEDI

08 REPORT 35 JOURNEY Building the Organization Activating Panchayats Capabilities of Gram through MGNREGA Panchayats: The pilot Implementing MGNREGA in its project in Jharkhand fullness is a movement to establish Evolving a process-centric local democracy and instruments Gram Panchayat Organization of local governance, honour Development framework, the local wisdom and knowledge, Anode Lab, in collaboration with promote power decentralization PRADAN, focussed on building to panchayats and encourage the organizational capacity of participatory decision-making. gram panchayats, knowing that if Jharkhand’s experience warrants the local body is capable and its telling. members and staff are inspired to DEBMALAYA NANDI perform, it can impact sustainable change in key development spheres SONALI SRIVASTAVA

Newsreach, a bimonthly journal, is a forum for sharing the thoughts and experiences of PRADAN professionals working in remote and far-flung areas.Newsreach helps them reach out and connect with each other, the development fraternity and the outside world.

1 LEAD

DR. ANJALI KAROL MOHAN

Scaling up Gram Panchayat Organization Development: The Way Forward

Strengthening the organizational capability of gram panchayats, the constitutionally recognized units of democratic governance vested with the responsibility of economic development and social justice, by addressing systemic issues within the panchayats is both a process and a journey

Context democratic units of governance steering economic — development and ensuring social justice. INCE 2015, PRADAN AND ANODE This context provides the rationale for the Gram Governance Lab are implementing Panchayat Organizational Development (GPOD) the Gram Panchayat Organization framework. It aims to strengthen the organizational Development (GPOD) framework capacity of GPs. Conceptualized as a process and across 15 panchayats in Jharkhand and 10 in Madhya Pradesh.1 Gram a journey, the GPOD framework aims to address panchayats (GPs) are constitutionally systemic issues within the panchayats, using recognized units of democratic governance vested the philosophy and principles of organization with the responsibility of economic development development (OD) and behaviour. Foregrounding S the GPs as a unit of analysis and intervention, and social justice. It needs no reiteration that, despite this recognition, even after 25 years, in most the framework recognizes the members of a states—Madhya Pradesh and Jharkhand being no GP—the functionaries as well as the elected exception—GPs are far from being autonomous, representatives—as primary agents of change.

1https://www.panchayat.gov.in/documents/10198/456811/Book_English_Framwork%20for%20RGS%20Abhiyan%204.pdf

2 NEWSREACH JAN_FEB 2019 REPORT CHANGES THROUGH PARTICIPATORY THEATRE Two years since, there is a conviction in working collaboratively with multiple stakeholders, to contextualize and implement GPOD to strengthen GPs as organizations and institutions of self- governance, having the potential to emerge as centres of excellence

GPOD through SPACE immovable property and to enter having the potential to emerge — into contracts.” (Section 11 of the as centres of excellence. Over Madhya Pradesh Panchayat Raj these two years, the intervention The framework is being Avam Gram Swaraj Adhiniyam, has resulted in several tangible implemented as SPACE 2001) and intangible movements (Strengthening Panchayat Actions that enhance a belief in the for Community Empowerment) Following the signing of the MoU, appropriateness and applicability in the two states. It involves an GPs are facilitated into a process of the framework. active engagement with multiple that underlines the need to stakeholders. These include simultaneously differentiate and Tangible results include the management and development integrate its components as an opening of Panchayat Bhavans, professionals, state and district organization: vision, organization regularizing GP meetings governments, grass-roots structure, incentives, resources inclusive of recording attendance, practitioners working with NGOs and action plans. Ultimately, GPs minutes and decisions, setting and CBOs and, last but not the are encouraged to plan for and an agenda, and maintaining the least, elected and executive implement solutions to identified requisite registers that mark an members of GPs. The latter are pain points. This essentially active GP. the most critical and should translates into GPs initiating necessarily display an interest action-planning with individual There are GPs in both the states and the will to improve the GP members, taking on the onus that have moved to a stage where functioning of GPs. of delivering on select functions. they are taking decisions and The objective of the process and planning actions around larger The framework entails an the journey is to encourage GPs to deliverables that aim at systemic iterative step-wise process move from sporadic fire-fighting solutions. For instance, GPs have (translating into a journey) that to process-oriented functioning. identified deeper intervention GP members embark upon to Gradually, GPs are facilitated and focussed engagement with strengthen themselves. In doing to establish and strengthen challenges related to education, so, it simultaneously draws structures and systems that agriculture and MGNREGA. To upon and embeds the legal and bring in accountability and resolve these challenges, GPs statutory provisions to engage transparency in their functioning, have been facilitated to establish with GPs. For instance, a starting through a pro-active division of and activate corresponding GP point of the engagement is a work and responsibility. structures as prescribed by the bi-partite MoU between the GP law, namely, setting up Standing and PRADAN, expressing the Two years since, there is and ad-hoc Committees. willingness to engage. This is a conviction in working premised on the state Panchayati collaboratively with multiple The intangibles include Raj Acts, recognizing the GP as a stakeholders, to contextualize and collaborative decisions around body corporate having the powers implement GPOD to strengthen recurring issues, enhanced “to sue and be sued as well as GPs as organizations and negotiation skills while the power to acquire movable or institutions of self-governance, engaging with block and district

LEAD SCALING UP GRAM PANCHAYAT ORGANIZATION DEVELOPMENT: THE WAY FORWARD 3 This visible movement of GPs towards debating and thinking collectively and working collaboratively, evidences the relevance of this framework in strengthening governance at the grassroots

panchayats, better conduct of Whereas the engagement with the stakeholders in this scaling the gram sabha (GS), etc. This GPs and the implementation process, assume significance. visible movement of GPs towards of various steps conceptualized debating and thinking collectively in the GPOD framework has There may be many ways and working collaboratively, led to (and continues to do of meeting these emerging evidences the relevance of this so) in positive movements in imperatives; here are a few possibilities. framework in strengthening GPs, the journey is far from governance at the grassroots complete. Thus, the first emerging Imperative One: Sustaining imperative is to sustain these and deepening the efforts of Way Forward: Emerging Imperatives positive movements and, at the SPACE in pilot GPs. — same time, incorporating the learnings and recognizing the a) Sustaining ongoing With the first phase of the SPACE project nearing completion (the evolving needs and requirements practices and interventions: initial agreement with PRADAN of GPs. Several GPs within the pilot is for 2016–18), there are two have reached a stage in A second emerging imperative emerging imperatives that which they have collectively merit mention. First, how do we is to scale the intervention and collaboratively created internalize the learnings from in a manner that impacts the aspirational visions for their the field to further enhance the magnitude of the challenge GPs. Deriving from these applicability of the framework? substantially. That the current visions, these GPs have Second, how do these learnings engagement across 25 pilot GPs identified tangible goals, inform the way forward in GPs is perhaps a tiny drop in the which, in turn, require a deeper wherein the engagement is ocean needs no reiteration. To engagement. For instance, ongoing? put it in perspective, Madhya Rampur Mal has identified Pradesh has close to 23,000 GPs streamlining the provision That two years is too short a time whereas Jharkhand has 4,402. of water, facilitating higher to expect dramatic changes on Yet, this pilot and the learnings it education and enhancing the ground needs no reiteration. has afforded cannot be negated. labour provision through MGNREGS. Towards this As was rightly remarked by one Without this pilot, the application end, the GP has collectively of the PRADAN professionals, of the philosophy and principles “A 25- to 30-year history of made efforts to establish of OD would have remained de-capacitating GPs cannot be structures (mainly Standing a mere theoretical exercise. reversed in a two-year period. Committees) and processes Furthermore, the way forward Strengthening GPs as units of that will facilitate a deeper would perhaps be fuzzy, at best. self-governance is much required engagement. Committee and calls for long-term sustained Thus, questions on how can the members have been nominated efforts.” pilot, inclusive of its learnings, and responsibilities have been be scaled and who would be assigned. Yet, it is critical to

4 NEWSREACH JAN_FEB 2019 There are several internal and external challenges that GPs identify and acknowledge as intervention points as they move in this journey. PRADAN and Anode need to co-learn and co-create with GPs the ways and means of continual strengthening

recognize that this is work in in the elected representatives Pradesh, such conversations progress and, while gaining (and perhaps the functionaries have led to an understanding momentum, there is much that too). The management of this that, probably, GPs will see is yet to be done. For instance, transition is the first step to a 50 per cent change in the delivering on specifics in any of sustaining the change that elected representatives. Work these areas would require skills is slowly taking form in the on initiating the likely/aspiring of collective bargaining and GPs. This can be effectively people representatives into the negotiation with higher tier addressed by roping in aspiring GPOD framework is currently PRIs, namely block and district candidates as well as past being planned with the GPs. panchayats, both of which play elected representatives in the a critical role in delivering on change management process. Imperative Two: Scaling the GPOD these. Developing these skills Conversations that stand to requires hand-holding GPs. ground the implications of — There are several internal and the transition in the GP body a) Scaling through state external challenges that GPs on the momentum gained in structures: Visible impact identify and acknowledge as affecting change in the day- requires scale and the state intervention points as they to-day functioning of the GP departments are critical move in this journey. PRADAN will help bridge the gap likely stakeholders in the scaling. and Anode need to co-learn to emerge with a new elected Various state schemes and and co-create with GPs the body. To quote an instance, programmes that have a ways and means of continual in the pilot GPs in Madhya similar objective, that is, strengthening. In those GPs in which progress has been Training substantial, there is now an Training needs Training of programmes engagement around instituting assessment trainers processes to raise revenues for PRIs through some of these committees. Impact Development of Handholding assessment b) Transition Management: training modules support for GPDP SPACE was initiated in year two of training and material preparation of the election cycle in both the programmes states. With the elections in the pilot GPs likely to happen in the end of 2019, effectively, Peer learning Exposure visits the engagement with GP centres members would be for three years. What this also implies is that there will be a change Figure 1: Training and Capacity Building: RGSA Guidelines

LEAD SCALING UP GRAM PANCHAYAT ORGANIZATION DEVELOPMENT: THE WAY FORWARD 5 It must be kept in mind that leveraging state structures, schemes and programmes helps mitigate the risk of creating parallel delivery mechanisms and structures while bringing in a degree of legitimacy and ensuring systemic change.

strengthening the GPs as Impact Scale State units of autonomous units Involvement of local governance, can be leveraged and converged with. For instance, the Rashtriya Legitimacy Gram Swarak Abhiyan (RGSA) of the Government of India is premised on Systemic Change an acknowledgement of weak administrative and technical capacity at the GP Sustainable Change level. It mandates capacity enhancement of PRIs to deliver Figure 2: Visible Impact Requires Scale: Scale is Possible with the on economic development Involvement of the State and social justice within their respective jurisdictions. GPs. A detailed reading of the The GPOD framework can As per the guidelines, the guidelines points to an alignment be modularized as a training PRIs must go through a of the aims and objectives of the programme to be conducted foundational course that GPOD framework with that of through the State Institute of aims to cover the themes of RGSA. It must be kept in mind Rural Development through its “good governance, enhancing that leveraging state structures, infrastructure, while leveraging efficiency, transparency schemes and programmes helps RGSA and its provisions. In doing and participation.” Figure 1 mitigate the risk of creating so, the facilitation of GPs in the outlines the specific activities parallel delivery mechanisms and field cannot be done away with. that the scheme will cover.2 structures while bringing in a It is recommended that this be degree of legitimacy and ensuring operationalized through a host Furthermore, the guidelines systemic change. Thus, scaling of identified organizations (such recognize the potential of (and with the state departments and as PRADAN), which are engaged mandates) involving the existing their programmes and projects is with GPs and have an established scheme-specific committees a possible way forward. relationship with them. (Joint Forest Management Committees, Village Health As in Karnataka, the GPOD b) Scaling up through CSR: Sanitation and Nutrition framework in Madhya Pradesh Scaling up can also be done Committee and Village Education and Jharkhand can be scaled through CSR involvement. Committee, to name a few) and to cover an entire block. There Here, the state machinery of community-based institutions are two possible options of the zilla (district) panchayat (SHGs, CBOs) in strengthening interventions at the block Level. could be approached with an

2 https://www.panchayat.gov.in/documents/10198/456811/Book_English_Framwork%20for%20RGS%20Abhiyan%204.pdf

6 NEWSREACH JAN_FEB 2019 Initiating change within GPs requires a clear understanding and acknowledgement that this institution is distinctly different from CBOs, the SHG being one of them

intention to cover one block. representatives. Thus, the need those blocks/districts should Given the larger number of for a balance between CBO-PRI be prioritized in which there GPs, it may be prudent to have engagements. is SHG saturation.3 This will several CBOs hand-holding GPs have a two-fold advantage. On in implementing the GPOD 2. Sustaining any change in the one hand, it will provide this institution requires a framework. Scaling up through functioning CBOs to enhance degree of preparedness of CSR could also supplement governance mechanisms. On scaling up through the State a GP that is premised on complex dynamics, both at the the other, it will save energy Institute of rural Development and effort in mobilizing CBOs/ (SIRD). individual and organization levels. Hence, the need for SHGs, thereby freeing up space continuous and concerted for engagement with the GPs. Conclusion engagement around, for — instance, role realization by In conclusion, meeting the above emerging imperatives Meeting both these imperatives Ward Members, and increased requires a two-fold engagement: requires pro-active thinking understanding (of elected representatives as well as a) designing and implementing and strategizing. The following panchayat functionaries) of a deeper engagement in the learnings from the field will assist the statutory framework, existing GPs in identified in this strategizing: mandated structures, processes sectors, be it education, health, 1. Initiating change within GPs and responsibilities, necessary employment or agriculture; requires a clear understanding to deliver. and, b) working with the state and acknowledgement that machinery and, or, leveraging CSR 3. Initiating and sustaining this institution is distinctly to intervene on scale. In doing change within the GP requires so, it must be borne in mind that different from CBOs, the a necessary engagement SHG being one of them. with the larger eco-system challenges and opportunities of Whereas strengthening comprising state departments scale are different from those citizenship (through SHG and block and district of a deeper engagement. Yet, engagement) is necessary, it panchayats, on the one hand, the experience with the latter, is not a sufficient condition to and CBOs on the other. In currently ongoing in GPs across strengthen GPs. Instituting other words, it demands an the state, will inform the former. accountability mechanisms intensity of engagement at are a necessary condition and various scales. this can be achieved through — Dr. Anjali Karol Mohan works with Anode an effective and meaningful 4. Given this intensity of Governance Lab as Lead, Research and engagement with elected engagement, when scaling, Training. She is based in Bangalore.

3 There are geographies where SHG creation and mobilization (under the Government of India’s National Rural Livelihoods Mission) is complete.

LEAD SCALING UP GRAM PANCHAYAT ORGANIZATION DEVELOPMENT: THE WAY FORWARD 7 REPORT

SONALI SRIVASTAVA

Building the Organization Capabilities of Gram Panchayats: The Pilot Project in Jharkhand

Evolving a process-centric Gram Panchayat Organization Development framework, the Anode Lab, in collaboration with PRADAN, focussed on building the organizational capacity of gram panchayats, knowing that if the local body is capable and its members and staff are inspired to perform, it can impact sustainable change in key development spheres

HE JOURNEY BEGAN IN AUGUST helping villagers understand their rights and 2015 with a meeting in PRADAN responsibilities as citizens. to explore ways to leverage Panchayati Raj Institutions (PRIs) However, there is a mismatch between the toward sustainable change and demands on the institutions serving the development. Building on its communities and their capacities (supply-side extensive work in improving capabilities). The team at Anode Governance Lab livelihoods across seven of the poorest states in has evolved a process-centric Gram Panchayat the country, through the formation and promotion Organization Development (GPOD) framework, T focussed on building the organizational capacity of of Self Help Groups (SHGs), PRADAN has been

8 NEWSREACH JAN_FEB 2019 PRADAN commissioned an exploratory study to gain an understanding of the devolution status in the states of Jharkhand and Madhya Pradesh as well as to see its impact on the actual functioning of the panchayats and how the citizens engage with these bodies

1 gram panchayats (GP), with the Strengths Weaknesses premise that if the local body is capable and its members and • Significant provisions for • Many provisions of the staff are inspired to perform, it representative and direct Jharkhand Panchayat Raj Act democracy mechanisms– not operationalized, PESA can impact sustainable change in Gram Panchayats (GPs) and not notified key development spheres. Gram Sabhas (GSs) • Lack of information and As a first step, PRADAN • Social capital created through powers that legal statutes commissioned an exploratory women’s collectives facilitated confer on GSs and its study to gain an understanding by PRADAN committees of the devolution status in • Basic foundation for GP • Limited funds for GP the states of Jharkhand and functioning exists: Provision functioning: nonfunctional Madhya Pradesh as well as to for staff, Notifications by 16 SFC, no roles for generating see its impact on the actual departments own revenue functioning of the • GPs implementing • Inadequate staff, and how the citizens engage MNGREGA, albeit at different infrastructure with these bodies. Based on the levels of engagement findings of this study, Anode and PRADAN were to conceptualize, Opportunities Threats design and implement a deeper • New local bodies in place • Dictating a top-down agenda engagement with panchayats. with elections in 2015 stifling the ability to evolve • Capacities building bottom-up priorities Status of devolution: The capacities of GP and GS, • Patriarchal society inhibiting findings of the exploratory leveraging and building on participation of women, study for Jharkhand have been JPR Act provisions especially in non-tribal areas summarized in a Strengths, Weaknesses, Limitations and • Collaboration with women’s • Issues of elite capture and Threat (SWOT) format, which collectives to activate GS, corruption prevalent in GPs further informed the design of support GPs • Budgetary implications of the two-year pilot. • Utilization of 14th FC funds reform (for example staff • Convergence through GPDP recruitment, untied funds) Theoretical foundation: The • Improve Own Source of • Naxal presence may GPOD framework is inspired by Revenue (OSR) impact elections as well as the principles of organization implementation if programs • Advocacy with state development (OD), which held in scheduled areas take a holistic, systemic view to provide support on of an organization and stress notifications, rules, SFC etc.

1Developed through an action research project in Karnataka, documented in ‘Nurturing panchayats to grow, the Gram Panchayat Organisation Development project: A process document’.

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 9 The GPOD framework is inspired by the principles of organization development (OD), which take a holistic, systemic view of an organization and stress on the role of members of the organization as key drivers of change.

on the role of members of the benefit from them, and make organizational circumstances, organization as key drivers of full-scale changes. OD maximizes and take advantage of an array change. participation to teach people of organizational opportunities to identify and solve their (Hefner, 1988, p. 442) Organization members learn own organizational problems, to analyze their own processes, learn to adapt to changing

Vision & Strategy Skills Incentives Resources Action Plan Change Purpose

Vision Strategy Skills Incentives Resources Action Plan Confusion OD High Excitement Vision Strategy Skills Incentives Resources Action Plan components Low Results and Vision Strategy Skills Incentives Resources Action Plan Anxiety methodology Vision Strategy Skills Incentives Resources Action Plan Gradual Change Vision Strategy Skills Incentives Resources Action Plan Frustration Vision Strategy Skills Incentives Resources Action Plan False Start Source: The Managing Complex Change model was copyrighted by Dr. Mary Lippi, founder and president of Enterprise Management, Ltd., in 1987

Unravelling the legal framework Rationale and boundaries for change Enrolment and context Momentum, context for change Organization mapping Self-reflection on status of the GP organisation GP Vision and Mission Share vision as a local self government GPOD Process Framework mapping Understanding and strengthening delivery processes GP organisation structure Mechanisms of accountability, ownership and distribution leadership Handholding Implementation capabilities: Planning, Resourcing, Execution, implementation Monitoring, Networking Deepening capacities Delivering services across sections, inter-governmental partnerships Transition mechanisms Transferring institutional mechanisms to the next elected body

Figure 1: GPOD Framework Derived from OD methodology

10 NEWSREACH JAN_FEB 2019 The focus is to strengthen the capacity of the local government institutions, recognizing GPs as organizations in their own right, and enabling them to develop into mature institutions delivering their mandate, through a structured OD approach.

SPACE project and its Panchayat project, which enactment and provisions in objectives: The name of the provides us the opportunity to the Jharkhand Panchayati Raj project in which the GPOD leverage various platforms of the Act (JPRA) 2001, the Panchayat intervention is embedded is government and mainstream our Extension to the Scheduled Areas Strengthening Panchayat Actions effort. Act (PESA) 1996, applicable to for Community Empowerment the state, as well as notifications (SPACE). Legal provisions guiding issued by various departments panchayats: A deeper from time to time, are listed here: The focus is to strengthen the understanding of the legal capacity of the local government framework of the state was done • JPRA, Section 12: For each institutions, recognizing GPs to understand the boundaries such village, specified as a as organizations in their own that need to be taken into village under Section 3 for the right, and enabling them to consideration when developing purposes of this Act, there develop into mature institutions systems and structures for shall be a GP. delivering their mandate, through strengthening panchayats, as • PESA rules have not been a structured OD approach. well as to make accessible the notified. Rules related to knowledge and resources hitherto JPRA have not been laid out SPACE is being implemented not visible to these institutions. comprehensively. in 15 GPs in Jharkhand, in five Key findings related to the blocks, spanning 3 districts: Basia (Gumla district), Padma and 3. CBO-PRI 5. Delivering Barhi blocks (Hazaribagh district) collaboration on 4. Strengthening infrastructure and Chandwara and Jainagar accessing rights PRIs (GS, GP) programmes blocks (Koderma district). The and entitlements through GP SPACE project in Jharkhand integrates other efforts, including enhancing civic literacy 2. Improving 6. Creating among women’s collectives participation of information and partnering with the state women and her centres and help government for the social audit collectives desk at GPs of the implementation of key government programmes such as MGNREGS and Yojana Banao 1. Civic Literacy: Impacting 7. Monitoring Abhiyaan (Jharkhand’s GP Awareness & Local state of education on Governance development planning process). governance rights/civics In addition, the SPACE programme is a part of Developing Policy Content Jharkhand State’s Beacon Figure 2: Intervention Buckets in Jharkhand’s SPACE programme

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 11 The key premise of the intervention is that the GP is an institution in its own right, emphasized from the first step. Whether or not to engage in the project and sign an MoU accordingly is the panchayat’s discretion as much as that of the implementing partner, PRADAN

• JPRA Section 3: of the panchayats in Jharkhand, The bi-partite MoU document ‚‚ District Magistrate can notify where the state has an overriding lists the roles and responsibilities a village or a group of villages power over PRIs. More on this of its signatories—the GP for the purpose of forming a will be discussed in the section on and PRADAN, and these were GS/GP. challenges. discussed with each GP in detail before seeking partnership. ‚‚ One revenue village is to have Journey of different GP members were encouraged one GS. panchayats: Whereas the GPOD to discuss the MoU amongst ‚‚ PESA Area: More than one processes followed were more or themselves before taking the GS can be constituted in a less similar, the responses varied decision to participate. Kumhari revenue village. across panchayats, exemplifying and Kolhuakala GPs from the • Sections 71 and 72 define the the need for contextualizing Basia and Barhi blocks decided Standing Committees of GS, interventions, in-built in the not to sign the MoU, the former GP, Panchayat Samiti (PS) and principles of OD. stating they did not need such Zilla Parishad (ZP). an intervention, with the latter’s Memorandum of mukhia (head of the elected body) • JPRA Sections 10, 75, 76 and Understanding (MoU) with 77: Functions of the GP, PS and not refusing but indulging in each GP: The key premise of the delay tactics. ZP, respectively. intervention is that the GP is • The government may delegate an institution in its own right, On the other hand, the Tamai GP powers by amending, after due emphasized from the first step. (Jainagar block) came forward deliberation, the Acts/Rules Whether or not to engage in and convinced the team that for the time being in force with the project and sign an MoU they wanted to be included in regard to the functions of the accordingly is the panchayat’s the pilot, despite it being in a GP, PS and ZP (in general areas) discretion as much as that of the block not covered by the project. or its additional functions (in implementing partner, PRADAN. Needless to say, Tamai is one scheduled areas) • There could be possible conflicts between GP structures and mandates, and PESA provisions. • Fifteen departments of the state have issued notifications detailing the functions, funds and functionaries of the three PRIs. Whereas these provide the legal basis for our intervention, they also reveal the fragile position Figure 3: MoU discussion in Dapok panchayat, Barhi block

12 NEWSREACH JAN_FEB 2019 The construct of organization mapping tools is built on OD principles. Facilitators, through conversations, help panchayat members understand the components of an effective organization as well as the legal mandate of a GP as an institution

of the front-runners, because it already had the key foundation for change, that is, the will to move forward.

At the stage of the MoU signing, the seeds for the core programme objectives were emphasized through identification of quick wins in three categories: Activities to improve the functioning of GPs (regular opening, full attendance of elected members in monthly meetings); improving citizen participation (information board Figure 4: Interactive process for rating GS participation as part of in villages); and enhancing service the citizen engagement tool (Bhondo GP, Chandwara block) delivery (GP to forward widow pension applications to the block, to construct soak-pits in schools), of GP functioning and citizen direction in which they wanted etc. engagement. The focus on quick their institution to move. The wins continues to sustain the process was facilitated in a Showing a mirror to the GP momentum of change. workshop, with elected members and Organization Mapping: and citizens drawn from different The construct of organization Six to seven months into the wards representing different mapping tools is built on OD intervention (July 2017), professions, economic class and principles. Facilitators, through the status of the GPs was caste, the purpose being to have conversations, help panchayat consolidated on the basis of a microcosm of the GP to develop members understand the ratings from the organization the vision for their panchayat. components of an effective mapping. The journey with the organization as well as the legal panchayats continued and a In each panchayat, members from mandate of a GP as an institution. similar exercise was done about SHG collectives were invited There is a subsequent process a year later, to understand the to participate in the workshop. of self-rating, in which the movement of GPs (Figure 5). The process evoked significant members rate their panchayats on participation among members various organization parameters, Developing the Vision and and citizens, with people sharing understanding its strengths and Mission of a GP: With an personal stories and drawing weaknesses, and, consequently, understanding of the current their dream GPs. The process was establishing a trigger for change. status of their GP, the next designed to enable visioning, Two key tools were designed, one step for the participants was based on the deepest thoughts each to understand the status to develop and agree on the and aspirations of what the

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 13 Against stereotypes, and to the pleasant surprise of the facilitators, most panchayats arrived at a vision, which was not the typical—road, electricity and water—but which spoke of the values they cherish and want to nurture, and the kind of society they want to build

Figure 5: Comparative Categorization of the 16 GPs from 24.7.2017 to 9.8.2018. people wanted their GP to be like thin during the early years of panchayats identify common in the future. Against stereotypes, engagement. This being a pilot, areas of focus, which could help and to the pleasant surprise of we also suggested that the the facilitators consolidate their the facilitators, most panchayats arrived at a vision, which was not the typical—road, electricity and water—but which spoke of the values they cherish and want to nurture, and the kind of society they want to build.

Deciding focus areas, understanding service delivery processes and developing accountability structures: Our recommendation to panchayats was to keep their focus on quick wins across many sectors, and yet to go deeper in one or two areas, both to understand the systems and processes as well as to be able to contribute significantly rather than spreading themselves Figure 6: The visioning exercise, Tamaipanchayat

14 NEWSREACH JAN_FEB 2019 Our focus has been to build the capacity of panchayats, with the premise that these institutions will build pressure from below, eventually leading to meaningful devolution.

efforts, and which would also whereas notifications issued by component of an effective enable peer learning among the departments state significant organization: developing an GPs. Accordingly, based on most mandate to the panchayats organization structure that vision statements, the panchayats (Figure 7), they have not really will help a GP take its vision in Koderma and Hazariabagh been actualized and remain more forward. Activation of Standing identified education and or less on paper. Committees in the focus areas, agriculture as their focus whereas and the nomination of their those in Basia chose to focus on Whereas process analysis revealed Adhyakshas (Heads) aimed at NREGA and agriculture. issues through the value chain, designing the organization which required systemic change structure of the GP as per the With a view to understanding and redesign of processes, our needs rather than the rule. the existing processes and focus has been to build the structures, and the potential capacity of panchayats, with the Rather than constituting all areas to which GPs could premise that these institutions seven Standing Committees of contribute, an in-depth study will build pressure from below, the panchayat, which remain on was conducted for agriculture eventually leading to meaningful paper due to lack of clear roles and education. This would feed devolution. and identity, GPs started with into workshops with GPs on the activating one or two Standing roles of various agencies and Post the visioning process, Committees, that for agriculture the GP itself. Not surprisingly, we focussed on another key in all the three districts and also

Figure 7: Notifications by Departments of Agriculture and Education

• Assessing agriculture-related activities such as the Statements from the notification: requirement of seeds and their distribution, assessment • Maintain registers with all available of fertilizers and their distribution, procurement human resources and other facilities of food grains and their storage, distribution of • Conduct education campaigns, along with other agricultural raw material/machinery, as SMC, need for schools, enrolment. well as monitoring/observation of successful implementation of other agricultural work. • Monitor and inspect schools • Selecting eligible beneficiariesfor successful • Ensure attendance of students and implementation of agricultural work. teachers • Ensuring availability of agricultural loans for • Make sure delivery of books, kits, etc. farmers and distributing farmer credit cards, etc. • Support minimizing drop outs. • Organizing successful district/block/panchayat-level • Meet with parents & SMC publicity and promotion/exhibition/workshops, etc. • Supervise mid-day meals • Encouraging farmers to get crop insurance and • Have head teachers and para teachers ensuring its timely payment. function under the authority of the GP

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 15 With an emphasis on the principle that responsibility can be shared but accountability best lies with one individual, the focus has been on building the capacities of Adhyakshas

education in case of the GPs in The goals being set with GPs, Similarly, in education, a Core Koderma and Hazaribagh. With therefore, focussed both on Committee has been constituted, an emphasis on the principle that the process and the results. For comprising the Mukhia, the responsibility can be shared but example, during the monthly Adhyaksha of the Education accountability best lies with one Joint Agriculture Adhyksha Standing Committee, the individual, the focus has been meeting (September 2018), the Headmasters of all the schools in on building the capacities of following goals were set: the GP and the Presidents of the Adhyakshas, who have begun to School Management Committees. identify with their role, seeking Process goals: The Core Committee meets on a further understanding and monthly basis in different schools also driving various initiatives. • Plan activities for the next on a rotation basis, to discuss the Forums such as the Joint three months issues and the possible solutions. Adhyaksha meetings are being • Regularize Agriculture Institutionalizing this committee institutionalized to reinforce Standing Committee meetings and building capacity of the identity as well as peer learning. in each GP Education Adhyaksa has been In our experience, distribution of the key role of the facilitators. leadership (till now primarily with Outcome of Agriculture-related The functioning of the Education the Mukhia), overall transparency activities discussed Core Committee has brought and effectiveness of the panchayat about another aspect of effective • Identify the poorest families begins to improve. organization functioning: as and link them with credit Kisan the GP engages with various Credit Card (KCC) Role of facilitators slowly stakeholders, it is reflecting to change from drivers to • Initiate kitchen gardening in on its styles of engagement, catalysts of the change schools and households moving from a hierarchy driven process: One year into the • Train farmers, in collaboration confrontation approach to that of engagement, the role of the with Krishi Vikas Kendras collaboration and empathy. facilitators began to shift. As the (KVKs) and Agriculture panchayats started developing Technology Management Project facilitators in Basia, their plans, the role of facilitators Agency (ATMA) (technical who have engaged with GPs was no longer to implement training agencies of the extensively, to develop the and deliver tangible results; government) 2019–20 GPDP, are taking the rather it was to ensure the opportunity to invest in and to institutionalization of processes, • Help farmers access insurance institutionalize the two Standing shifting the onus gradually to the through the Prime Minister’s Committees formed during the panchayats. One of the processes Fasal Bima Yojana (PMFBY) preparation of the plan, that being focussed on was the • Identify infrastructure, to be is, the committees for Women, monthly meetings of Adhyakshas incorporated in the annual Children and Social Welfare and to ensure that they received Gram Panchayat Development (with a mandate to implement the required knowledge and Plan (GPDP) social security programmes) support to perform their roles. and Development and

16 NEWSREACH JAN_FEB 2019 After two rounds of organization mapping facilitated by our teams, the Mukhias now track how their institution is functioning, through a recently introduced ‘Self Tracker’, to be filled after every monthly meeting of the panchayat

Construction (with a mandate an organic process of capacity meeting of the panchayat. The to oversee implementation of development. facilitators need to ensure that MGNREGS). To start with, these these trackers are filled regularly two committees received their Another shift in the role of the and accurately, along with mandate from the activities facilitators is reflected in how explanatory/qualitative remarks. included in the 2019–20 GPDP. we are tracking the functioning As in the case of the Agriculture of GPs. After two rounds of Achievement and Challenges and the Education Standing organization mapping facilitated Committees, the facilitators by our teams, the Mukhias are — aimed at building peer-learning now to track how their institution Our engagement with GPs in platforms for the Adhyakshas is functioning, through a recently Jharkhand (and Madhya Pradesh) of these two committees to introduced ‘Self Tracker’, which is, at present, a work in progress. meet and share, setting forth is to be filled after every monthly However, it is apparent that with

Figure 8: Self-Tracker filled by ThamPanchayat

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 17 Our engagement with GPs in Jharkhand (and Madhya Pradesh) is, at present, a work in progress. However, it is apparent that with their involvement in the delivery of services, GPs are beginning to understand the hurdles that impact access to services

their involvement in the delivery Agriculture improvement areas (Tamai); the of services, GPs are beginning — GPs track whether toilets are to understand the hurdles that functional in all schools, and Ongoing and collective impact access to services at the take corrective measures, which negotiations with the block last mile, and arrive at targeted are discussed and resolved in the machinery, to ensure timely solutions, which the departments GPEC (most GPs). access of seeds to farmers, are not able to, given their reach which are otherwise delayed in remote locations. Following Needless to say, the panchayats (most GPs); improving accuracy the well-established principle in Jharkhand are far from in soil testing by the Krishak of subsidiarity, if supported the local self-government Mitra (Rani Chua) by ensuring adequately and if they function institutions that we envision. that samples are collected from as effective institutions, GPs are There are many internal as well diverse farms; leveraging schemes better placed to resolve these as external challenges. One of from the Department of Minor sticky and persistent issues. The the biggest challenges is the Irrigation (MI) for lift irrigation focus of the project, therefore, is lack of transparency and the structures with an outlay of Rs on strengthening institutional existence of corruption in various 7 crores. Locations for the lifts functioning, hand-holding facets of their administration, are decided through meetings in GPs during the preparation ranging from selecting ineligible the GS; the material is procured and the implementation of beneficiaries, the nexus from the vendor appointed by plans, networking with other between the contractors and the the MI department; and citizens stakeholders and gradually are provided labour through the panchayats, to elected members deepening their capacities constitution of a Beneficiary and staff asking for bribes for to address more complex, Committee (Pindarkon). providing services to citizens. development issues. A recently conducted study on management of the Fourteenth Figure 9 provides a glimpse into Education Finance Commission funds in the review of the functioning — some of our panchayats still shows of the Kanko panchayat from fragile systems and inadequate September to October 2018. The GPs organize sports and other events to engage with the record-keeping. Of course, there Achievements of the GPs in the students, which essentially is to are many exceptions. In our work, sectoral areas listed here are impact attendance and prevent we have come across Mukhias those that reflect the enhanced dropouts (two to three GPs); with high levels of integrity, who ability of the GPs to work with assessment tests are organized follow and demand transparency the system, and functioning as by the panchayat and the schools from others. However, corruption institutions in their own right. together for Math and English and non-transparency are The text within brackets indicates for all Class 8 students in the pervasive issues and need to the GP(s) where such movements panchayat to gauge school-wise be addressed. As stated by Mr. have happened:

18 NEWSREACH JAN_FEB 2019 The GPs organize sports and other events to engage with the students, which essentially is to impact attendance and prevent dropouts

Figure 9: Review of the Kanko GP (September to November 2018) Activities Status Remarks Monthly Gram 2 of 3 held. On the pre-fixed date for GPEC, 5th October, theMukhia was Panchayat Executive September meeting unavailable due to illness of her mother-in-law. Later, the lady passed Committee (GPEC) was not organized away. The Mukhia tried to organize the meeting in the last week of meetings October, which could not be held due to festivals GPEC meeting attended by block 2 coordinators Consistency in participation by women unlike by men, whose Participation 7/12, 8/12 participation fluctuates. • Meeting is organized on the 5th of every month. • GP income and expenditure details are shared in every meeting. Significant Quality of GS- and • Sachiv/Rojgar Sevak writes the minutes of the proceedings during improvement in the GP-level meetings the meeting and the Mukhia closes the meeting. quality of GPEC. • They review the proceedings of the last GPEC. • Role of the husbands of EWR is now minimal. Due to Pragya Kendra, the Panchayat Office now opens regularly. The Opening of GP office At least four days Sachiv, Rojgar Sevak, Mukhia and the Up-Mukhia ensure their presence at least once in a week. Registers Minutes register, Sachiv: GS register, GPEC minutes register, Cash book, Asset register maintained by the Cash book, Scheme GP register, GS register, Asset register, GRS: MGNREGS register 7 registers of MGNREGS Annual Plan and 2019–20 GPDP GS meeting held on 15 December, 2018 Budget planning process is going on Pragya Kendra Regular Thepanchayat provided a separate room for the Pragya Kendra on the ground floor. This ensures that the main gate of thepanchayat office opens regularly. Trainings conducted Yes Seven Ward Members and almost all the women members participated. for women Ward Topics: The three-tier PRI system, the role of the GPEC, GPDP and the Members, if any role of the GP, MGNREGS and the role of the Ward Member Challenges at the Challenges of the Villages are remotely located so the Ward Members come to the GP GP level GP as a functioning office primarily during meetings. TheSachiv handles the multiple GPs. institution The BDO engages theRojgar Sevak in block affairs also. Some caste- based conflicts in the GP, also spill to the GPECs

REPORT BUILDING THE ORGANIZATION CAPABILITIES OF GRAM PANCHAYATS: THE PILOT PROJECT IN JHARKHAND 19 Another key challenge relates to the oft-spoken and well- documented ambiguity in devolved functions and the power of the panchayats, and the lack of commensurate human and financial resources to these bodies. Panchayats are not treated as equal inter-governmental bodies by other tiers, but rather as the implementation arms of government departments, which are to follow instructions rather than to self-govern.

SM Vijayanand2, “Corruption at government departments, which I would like to acknowledge the the village level is indeed more are to follow instructions rather Governance Team, which has dangerous than at other levels than to self-govern. come on board particularly to because it kills democracy and work with the panchayats, the culture.” We do believe this I hope this article will contribute PRADAN professionals, as well as situation will change when we to a discussion on the need the participating GPs. Without focus on building the institution. for a structured methodology their wholehearted engagement, in developing GP institutions. this journey and our learnings, Another key challenge relates The team at Anode has been though not anywhere near to the oft-spoken and well- working with panchayats across complete, would not have been so documented ambiguity in four states, since 2009. Our rich. devolved functions and the experience in each state deepens power of the panchayats, and the our understanding, helping — lack of commensurate human us build further on the GPOD Sonali Srivastava, founder and CEO of and financial resources to these framework. We strongly believe Anode Governance Lab is a development & management professional. She set up Anode bodies. Panchayats are not treated in the potential of this institution Governance Lab to pursue work towards as equal inter-governmental to address sticky issues and bring systemic strengthening of institutions engaged bodies by other tiers, but rather the much-required changes at the in public services. as the implementation arms of village level.

2Retired Chief Secretary, Government of Kerala, and Former Secretary, Union Ministry of Panchayati Raj

20 NEWSREACH JAN_FEB 2019 CASE STUDY

NEHA JOSHI AND NIDHI TRIVEDI

STRENGTHENING LOCAL GOVERNANCE: A Development Paradigm

Recognizing the idea of the Background Panchayati Raj as crucial for — the foundation of the Indian N OCTOBER 1989, RAJIV GANDHI GAVE A SPEECH THAT political system, the 73rd envisioned the idea of a panchayat and a self-sufficient Constitution Amendment was village ecosystem. In his speech he said, “In a vast country like ours, there are at present not more than 5,500 passed by Parliament in 1992, persons—5,000 in the state legislatures and around 500 in giving Constitutional power to the Parliament—to directly represent 800 million people. local elected bodies, leading The number of voters seeking the assistance of elected to a decentralized form of representatives is so large that there is no way the representative can give his personal attention to his electorate as a whole.” governance in which each and I every village is responsible This meant that if the people at the grass roots had an issue they for its own affairs needed resolved, they would have to directly approach the MLA. The desire to allow people to have local self-governance led to the passing of a crucial Act in the Parliament, in 1992—the 73rd Constitution Amendment 1992, that gave Constitutional power to local governance bodies.

21 The idea was to bring uniformity in the structure of local bodies and, simultaneously, ensure the representation of the weaker sections of society through reservation in all local bodies

Later, in 1993, Article 243 G Odisha, Rajasthan, Chhattisgarh challenges and scope of our was added; this gave “provisions and Andhra Pradesh. engagement. of mandatory devolution This Act gave special powers to of powers, authorities and Context responsibilities by state the gram panchayat (GP) and governments to the panchayats.” the gram sabha (GS), which — Initially, the Amendment was includes participatory planning Basia block lies 101 km from passed in eight tribal states. The for decision-making, approval Ranchi towards Simdega. It idea was to bring uniformity of plans, programmes for social is located in Gumla district, in the structure of local bodies and economic development, Jharkhand. It has 15 panchayats, and, simultaneously, ensure the and mandatory consultation comprising 88 revenue villages. representation of the weaker before acquisition of land The total tribal population of the sections of society through in the Scheduled Areas for block is 64 per cent, with a major reservation in all local bodies. development projects. The GS dependency on agriculture. It also Mahatma Gandhi had advocated refers to a body comprising lies under the 5th Schedule Area. the idea of Panchayati Raj as persons registered in the PESA empowers GSs, making it a very crucial for the foundation electoral rolls of a revenue prime institution with decision- village within a GP area. of the Indian political system... making powers. the decentralized form of This Act also made GSs and GPs governance in which each the centre of self-governance Conditions in Basia block and every village would be for protecting tribal population — responsible for its own affairs. from exploitation. It lays The GSs of Basia block are not emphasis on empowering GSs; Later, in 1996, on the basis of empowered enough to make their this has not been conferred by the report submitted by the own decisions, in spite of being any other Act in any state. It Bhuria Committee in 1995, the has already been 22 years since in the 5th Schedule area. PRIs Parliament also enacted ‘The PESA and 25 years since the have a certain level of execution Provisions of the Panchayat 73rd Amendment was passed in powers and they are increasingly (Extension to the Scheduled the Parliament. replacing the concept of a GS. Areas) Act 1996’ also known The traditional leaders, theGram as the PESA Act. This extends Here, we critically look at the Pradhans, are not aware of their particularly to Part IX of the status of the 73rd Amendment powers and their rights, and are, Constitution, with certain and PESA in Basia block of therefore, not equipped to pass modifications and exceptions Jharkhand, and attempt to on the decisions taken in the GS to the Fifth Schedule Areas that understand the struggles to PRIs. GSs are usually held to were notified in 10 states, that during the implementation of discuss government schemes to is, Maharashtra, Jharkhand, both of these Acts, the current be rolled out in the village under Madhya Pradesh, Gujarat, engagement of the Basia team MGNREGS. On the other hand, Himachal Pradesh, Telangana, with PRIs and the GS, and the the women of Basia block are

22 NEWSREACH JAN_FEB 2019 The team thought that professionals need to engage extensively with PRIs to create a better delivery mechanism of social welfare schemes and that could only be possible through rigorous engagement with local governance institutions

slowly collectivizing themselves to lack of awareness of their roles is a Bangalore-based organization, strongly through SHGs, VOs and responsibilities. They were working on strengthening PRIs and Cluster- and block-level also getting into trouble with the in Karnataka. The objective of the Federations. middlemen and the naxalites. programme was to strengthen This led to a conflict situation GP institutions through capacity- During the interactions with between the CBOs and the building trainings. the collectives and in their Mukhiyas because the Collectives meetings, it was always on the were not able to understand the In the beginning, the team agenda that the Community struggle of the Mukhiyas, and engaged with panchayat members Based Organization (CBO) the CBOs eventually started informally to understand the members should contest the questioning them. current state of affairs, the elections because many members struggles and the challenges of faced difficulties in approaching The team thought that the panchayat. A meeting then panchayats. The PRADAN Basia professionals need to engage took place of the panchayats of team also thought of engaging extensively with PRIs to create all fivepanchayats , wherein the extensively with PRIs for a better delivery mechanism of PRIs and PRADAN had a detailed decentralization of democracy. social welfare schemes and that discussion on the functioning of The whole idea of engaging with could only be possible through the panchayat. PRIs became stronger when rigorous engagement with seven of the SHG members were local governance institutions. This helped the team identify selected as Mukhiyas and, that The Basia team thought that the key areas in which to engage too, in just the second elections there was a complete mismatch with PRIs such as in areas where held in Jharkhand for panchayats. between the demand on there was no clarity of roles and the institutions serving the responsibilities among Ward The CBOs were quite happy with communities and their capacities Members, the lack of awareness SHG members being represented (supply-side capabilities); and among the citizens, the lack by the Mukhiya of the panchayat looking at the panchayat, it was of clarity about the ownership and it gave hope to the members the need of both the team and of resources, the demands of that now they would be able the CBOs to strengthen the the citizens not being met to get their work done at the local governance institutions, and the poor service delivery panchayat level. The CBOs took that is, the GS and the GP. mechanisms. This opened a door charge of calling the Mukhiyas to PRADAN was new to the field of for the team to engage with their meetings and the members governance; therefore, the team panchayat members. of the Federation explained initiated a pilot project called the to them the struggles of their Strengthening Panchayat Actions An MOU was signed between panchayats. for Community Empowerment PRADAN, the panchayat and the (SPACE) in fivepanchayats Panchayati Raj department. In On the other hand, the Mukhiyas of Basia, with the support of order to show panchayat members were not completely effective due ANODE (Governance lab), which the current state of the panchayat,

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 23 The team also introduced a citizenship perspective because during meetings with panchayat members, PRIs constantly complained of lack of awareness of rights among the villagers.

an organization mapping was Scheduled Areas (PESA) 1996, These cohorts (now known as done at the GP level called the which was applicable in Basia. Samvidhan Saathis) are men Gram Panchayat Organization The notifications that were issued and women, who are motivated Development (GPOD). This was to by the departments, from time enough to further motivate, help PRIs understand the current to time, were shared with the educate and encourage others state of panchayat deliverables, PRIs. This provided a legal basis to be aware of the rights, their capacity and capability, for our intervention in Basia. values, and morals enshrined and build self-awareness of Various other trainings were also in our Constitution. Thereafter, the roles and responsibilities organized in the panchayat such they run training sessions on among panchayat members and as MGNREGA, MIS system set- the Constitutional values and the staff, and ownership in the up, and GP help-desk and Ward principles at SHGs, VOs and the organization building process. Members. GS, in the local language. They help the villagers understand At the end of the GPOD Interventions their rights and entitlements. processes, PRIs were asked to They have also been talking to — rate their panchayat (on a scale community members about laws of 1–5) on four parameters, The team also introduced a and Acts such as MGNREGA that is, infrastructure, service citizenship perspective because and National Food Security Act, delivery, citizen demand and during meetings with panchayat relevant to them. GS functioning. When this members, PRIs constantly was done, it was time for the complained of lack of awareness Pertinent issues such as team to understand the vision of rights among the villagers. In water, sanitation, drought of the panchayat members and order to fulfil this requirement and discrepancies in social what they aspired for in their of the panchayat, PRADAN security schemes were taken own panchayat. An exercise collaborated with an organization up by the cohorts and later was conducted with all the called ‘We the People’ for by the Federation as well. The members of the panchayat. enhancing citizenship awareness investment on cohorts and the Training programmes on the through civic literacy programmes trainings that were given to them legal framework of the state were at the grass roots. Twenty had a very positive impact on the also conducted with PRIs so that (men and women) cohorts were villagers. The people have grasped the panchayat could understand selected by the team, and are the skill of writing applications the boundaries that were to be to be trained by We the People with reference to the Constitution taken into consideration when on Constitutional rights. These and have consequently been doing any system settings for cohorts underwent three-phase able to put pressure on the block strengthening the panchayat, and trainings on the Constitution, the administration. The language the provisions of the Jharkhand Acts relevant to Jharkhand and of the letters has changed from Panchayati Raj Act (JPRA) 2001, the struggles faced by villagers in “Aapke sada ehsaanmand rahenge the Panchayat Extension to their everyday life. to kuch dinon ke andar yeh karya

24 NEWSREACH JAN_FEB 2019 There was also a need to bridge the gap between the GPs and the GSs. It was important for both to take ownership and control of their respective powers.

karwana sunischit karein (We will have also taken a back seat once was spent on strengthening forever be grateful to you if you they read the applications written panchayats and building sanction this work for us in a few by the cohort. citizenship perspective with the days)” to that which quotes the help of cohort training in the relevant Acts and Rights detailed In the beginning of this community. There was also a need in the sub-clauses. The officials programme, a lot of time to bridge the gap between the GPs

Application written with the help of cohorts by the Training of new Samvidhan Saathis on Federation leaders for conducting pension camps in Constitutional rights their panchayats

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 25 During various internal discussions and field observations, it was realized that GSs could not revive themselves in a vacuum; the need to hold thematic sabhas on issues pertaining to a particular village was recognised; this would help re-establish a system for the community and reinstate the importance of GSs and the GSs. It was important security schemes, participatory a list of observations in order for both to take ownership and planning, drinking water, etc., are to be able to better comprehend control of their respective powers. now taking place in Basia. group processes, decision-making and the overall functioning of a A healthy relationship between In addition, we initiated GS. a GP and a GS is imperative, panchayat-level monthly wherein the GS takes part in meetings of all Gram Pradhans in In one of our initiatives with the decision-making and the a panchayat, where they would the panchayat, we worked on panchayat ensures that the come together, share their the vision-mission, in which decisions are executed. The experiences, hold discussions the GPs underwent a three-day Panchayati Raj system is still on various methods of dealing workshop in meditating upon dormant in Jharkhand and with issues, concerns, good the aspirations that they have for power devolution is not a practices and cross-learning. their panchayat and the themes visible phenomenon. Hence, the These meetings were initiated in that they believe are the most panchayat has to take repeated five beacon panchayats of Basia. important in the coming two to initiative to establish itself as an (Beacon Panchayat Project aims three years. institution. The team, therefore, at empowering GP by improving arrived at a consensus that their infrastructure, service This exercise with our beacon working with the GS should also delivery mechanism and making GPs has helped in prioritizing be a part of our institutional them aware of their rights, their goals on agriculture and strengthening engagement powers and responsibilities as an MGNREGA. Panchayats took because it needs to sustain and institution.) The Gram Pradhans up their roles to make these evolve. responded to it very well and look two activities function better. forward to such meetings. After Agriculture Standing Committees During various internal detailed discussions and a needs- of all the respective panchayats discussions and field realization exercise, we are now were activated. MGNREGA has observations, it was realized that in the process of planning several a clear mandate, wherein the GSs could not revive themselves trainings for them. Discussions elected representatives of the in a vacuum; the need to hold around jal, jungle, zameen (water, panchayat and the GS have clearly thematic sabhas on issues forest, land) and the involvement defined roles in sanctioning pertaining to a particular village of youth in GSs have been some schemes, monitoring ongoing was recognised; this would help of the major deliberations in the works, grievance management re-establish a system for the meetings so far. and escalation, etc. community and reinstate the importance of GSs. This method Alongside, the Basia team began The Act, in its spirit, is clearly will further help in systematizing talking to PRI representatives and focussing on strengthening GS meetings. Thematic meetings the community to understand local institutions of governance. on Forest Rights Act (FRA), social their idea of a GS. The team made Therefore, after an initial

26 NEWSREACH JAN_FEB 2019 They also worked at setting up of a Management Information System (MIS) in the panchayat for MGNREGA-related works, which was earlier being operated from the block headquarters

training, an action plan for was activated. This Committee During the process, those PRI members was charted out, comprises the heads of all the families that were not a part whereby Ward Members and other Standing Committees. of the women’s institutions the Mukhiya had to take up These Committees have not automatically get excluded from certain activities that have been been functional since the PRI such activities. Our SHGs were prescribed through various system has come into being in not completely inclusive and, circulars and notifications of Jharkhand. In order to activate hence, we planned to have a more the state government. Activities them, we had to find specific and micro-level picture of the work such as ward-wise camps for concrete roles for them. we were doing. For the Gram grievance collection, demand Panchayat Development Plan and job card-related applications Agriculture in the block that (GPDP), the planning was done were organized. These camps was allocated a certain amount at the tola level, led by Gram were led by Ward Members of seeds and agri-inputs did Pradhans, the traditional leaders themselves. TheMukhiya took up not reach all the villagers. There supported by SHG women and the responsibility of reviewing were middlemen and powerful field cadres. the Mates once a month. agents involved. In order to tap Other activities included the this resource and also demand In Basia, the team also began regularization of Gram Panchayat for more inputs, a VO-level engaging in the implementation Executive Committee meetings agri-planning was carried out in of the FRA in Areya village and piloting the GP help-desk Pantha and Areya panchayats. of Areya panchayat. This through PRI-CBO collaboration. The demands of thepanchayats village enjoys a forest cover of A didi from the SHG and a Ward were consolidated and presented approximately 540 acres but there Member volunteered to work on in the GS for further inputs of are some rising concerns on the the regularization of the Rozgar the villagers. Once finalized, unruly usage of and access to Diwas, once a week, which was to this resolution was forwarded to their forest land by the villagers be attended by workers, Mates, the panchayat and was further from inside and outside Areya. the gram rozgar sevak and some pushed to the block and district Some of the villagers were aware PRI members. administration through a block- of the provisions defined in level Ajeevika Mela. FRA and wanted some level of They also worked at setting up guidance in grounding it further. of a Management Information The demands received by both System (MIS) in the panchayat the panchayats were later merged After three to four consecutive for MGNREGA-related works, with the Gram Swaraj Abhiyaan GS meetings, to understand the which was earlier being operated affecting the coverage of the provisions of the Act thoroughly, from the block headquarters. allocated input distribution. the villagers initiated the claim There is no specific standing Thepanchayats also demanded process. The process was mainly committee for MGNREGA; fertilizers and trainings from the led by the women of the village, hence, a panchayat-level General Ajeevika Krishak Mitras. with the elderly describing every Administration Committee possible detail of the forest, its

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 27 The Forest Rights Committee, formed in the GS under the Act, has been working actively in collecting documents such as the khatiyan, revenue maps, filling the form and notifying government officials for physical verification of the area that they are set to claim usage, its relevance to their lives in Areya have had a snowballing Such processes are meant to and why they wanted to protect effect, leading to similar happen only through the GSs and it. Areya also faces the potential movements in nearby villages. taking the holistic view of the threat of attracting companies All forest fringe villages such as scenario can propel the sabha to because it lies near the main road, Kurdega, Sakya and Konaskeli of redefine itself, its motto and its has more plain land, has a canal the same panchayat have begun functioning. Currently, they are and a dam nearby and also has a the process of claiming CFR. One known as the yojna sabhas, which huge forest cover. more village will be joining the meet only after receiving letters list soon. A similar movement has from the block administration. Also, the recent phenomenon been seen in a far-off panchayat in The nature of the GS is being of a land bank created by the Okba, where Bataloya village has twisted and turned by vested Jharkhand state government initiated the same process. interests for their political has taken almost 800 acres of motives, to weaken it further Areya’s gairmazurwa aam (public In Basia, PRADAN is not the so that it loses control and land that has passed on to the first and the only one to initiate ownership of its resources. state after the abolition of the CFR claim processes. People who zamindari system) and forest are aware of it are going ahead Alongside, Jharkhand launched land into account. Sensing these and doing it themselves and GPDP, the sabki yojna, sabka vikas dangers and establishing the also helping others. We, through programme, asking panchayats relevance of forests into their our engagements, are trying to to make plans and demands for lives, the Areya villagers are talk about these processes as relevant schemes. It was launched eager to get a Community Forest holistically as possible. People on 2 October 2018 and was to last Rights (CFR) claim to their name. realize the potential threat to till 31 December 2018. According The Forest Rights Committee, their land, especially forest to a gazette notification, the formed in the GS under the Act, land, and wish to reinstate their panchayat was supposed to has been working actively in relationship with nature. conduct two GSs and make all collecting documents such as the possible plans. In order to make it khatiyan, revenue maps, filling the The GSs in Basia are not very more participatory and inclusive, form and notifying government cohesive because of the repeated the team along with the block and officials for physical verification disappointments in the Yojna the beacon panchayats elaborated of the area that they are set to Banao Abhiyaan, the non- on this plan. PRADAN facilitated claim. implementation of PESA, the lack the GPDP processes in five beacon of consideration of the needs and panchayats, in which the process This process is nearing priorities of the people and the was as follows: completion and, it is expected formation of unconstitutional that, in one month, the claim parallel structures such as the Three years ago, at the Yojna document will be submitted to Adivasi and Gram Vikas Samitis Banao Abhiyaan, the community the sub-divisional committee. by the state, further weakening made intensive plans for a period The discussions and processes the traditional GS structures. of three years. Important natural

28 NEWSREACH JAN_FEB 2019 The discussions and processes in Areya have had a snowballing effect, leading to similar movements in nearby villages

GS meeting on FRA at Konaskeli village, Areya.

Social mapping and resource mapping through a GPDP exercise at Gopalpur village, Areya

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 29 The planning process was mainly aimed at ensuring that no needy or vulnerable families were left out and that their plans were prioritized by the GS

resource management plans were Block-level orientation meeting of all departments, PRIs and made during the Abhiyaan but community. Other working groups worked on collecting the status the state government approved of the aanganwadi, PDS, pension and other services and rolled out only the five per cent model (water harvesting pond) locally known as the dobha. Panchayat-level orientation: This time, plans that are located The formation of thepanchayat planning team in the panchayats’ plausible area of implementation are to be considered first. These plans were made according to the Reconstituion of Standing Committees and the formation of the Fourteenth Finance Commission respective working groups (FFC) and MGNREGA budgeting for one year only because the needs are dynamic in nature. The planning process was mainly aimed at ensuring that no needy Finalization of dates for tola-level planning or vulnerable families were left out and that their plans were prioritized by the GS.

Impact of our Intervention Awareness campaign about the process at the village level — This initiative has lessened the gap between the panchayat and the citizens. The villagers have Re-opening of plans made during the Yojna Banao Abhiyaan for started to show some faith in the reconsideration panchayats, which they did not have initially. There have been times when the panchayat has shown lot of interest in people’s issues. This year (2018), Gumla Social mapping, transect walk, resource mapping district in Basia faced severe drought conditions. In the beacon panchayats, the GSs made an application for drought sighting the situation and demanding relief and submitted it to the

30 NEWSREACH JAN_FEB 2019 This year (2018), Gumla district in Basia faced severe drought conditions. In the beacon panchayats, the GSs made an application for drought sighting the situation and demanding relief and submitted it to the panchayats. The Mukhiyas made sure that the MLA received these applications and the villagers got the necessary compensation

panchayats. TheMukhiyas made MGNREGA and FFC-related planning sure that the MLA received these applications and the villagers got the necessary compensation. This intervention has created a The other working group will work on collecting the status of the healthy relationship between the aanganwadi, PDS, pension and other services panchayat and the villagers. The panchayat office started opening on a regular basis for the Rozgar Diwas and the villagers began Detailed household survey visiting the panchayat, demanding work in MGNREGA and listing their grievances.

Consolidation of plans at the tola level When the GPDP was to be implemented in the panchayats, the panchayat invited CBO members and Gram Pradhans Consolidation at the GS level for implementing the planning process. During this meeting, the Gram Pradhans decided the date for the GS, and the planning Plan priortization and approval at the GS process started accordingly. And during the GPDP processes, the GS made sure that more schemes related to solving the water issues of the village were planned Reviewing and approval by the GPEC and the PRIs supported these decisions.

Uploading of plans at the respective portals Challenges — In the last one-and-a-half years (since 2017) in Basia, because of the low remuneration, there have been major challenges to the active participation in the PRI. Moreover, PRIs are seen to

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 31 The Panchayati Raj system is new to Jharkhand and the devolution of power to the third tier of democracy is challenging. The lack of clarity on its role has de-motivated PRIs and prevented them from functioning to their fullest capacity.

Mukhiyas, submitting applications, relate drought conditions in Basia to Mr. Dinesh Oraon (MLA). be lacking in awareness about democracy is challenging. The Panchayat Mukhiyas and Panchayat their roles and responsibilities lack of clarity on its role has de- secretaries to execute the orders), because of which they failed motivated PRIs and prevented formed these Committees at the to exercise their rights. This them from functioning to their GS level. Nine-member Gram has given power to the state to fullest capacity. Vikas Samitis and eleven-member intervene in panchayat matters Adivasi Vikas Samitis were and put forward its views of how In last six months, there have formed in June 2018 throughout the panchayat should function. been burning discussions in Jharkhand. The Committees Clearly, this shows that the power GSs on the formation of Adivasi have the power to spend up to still lies with the state and the and Gram Vikas Samitis. The Rs 5 lakhs on infrastructural centre, leading to de-motivation Jharkhand government, through development of the village. among PRI members. a gazette notification, and pushed further by the administration This move apart from being The Panchayati Raj system is new (which was very persistent about unconstitutional is ridden with to Jharkhand and the devolution forming these committees, and vested interests of some groups of power to the third tier of put immense pressure on the and jeopardizes the roles and

32 NEWSREACH JAN_FEB 2019 Discussions also led to pertinent questions such as why the money was not being given directly to the GS and its Committees. What was the panchayat’s role now?

powers of both the GP and the by the Jharkhand Panchayati Raj traditional heads of the GSs, GS. Neither the Jharkhand Act were at stake due to these would be reduced to being just Panchayati Raj Act nor PESA talk committees. nominal heads. about any of these committees. The women were approached by Moreover, these Committees Scope were formed only for a period of the panchayat Swayam Sevaks two years, with financial powers to get the work done. The rising — that could have been diverted disturbances within tribal and This process defines the roles of to the Gram Kosh (GS account), non-tribal groups across the all the possible stakeholders, and empowering the already existing block was a matter of concern where all the interventions are GS Standing Committees. Such for us and the Collectives as well. also inter-connected. Prioritizing parallel formations have not been While these discussions were the GS’s decisions and pushing set up by any other state and fresh, during our meetings in the the GP to ensure the execution the move is now being contested village, we initiated discussions of these decisions was a plausible in the Ranchi High Court by around these Committees way of setting systems in place. renowned lawyers. discussing and analysing the pros We are currently engaged in and cons of these formations with processes to activate various The gazette notification nowhere the community. Evidently, the stakeholders to carry out their mentions the decision-making community did not have clarity roles. This discourse is gradual processes to be taken up by as to why these Committees were and needs continuous effort the committee. It overlooks formed so urgently by the state. at all levels, ranging from the the provisions of PESA, in individual to the state. The GS, which the GS is supposed to Discussions also led to pertinent being the main focus, cannot play a pivotal role in decision- questions such as why the money activate itself in a vacuum. If it making. The formation of these was not being given directly to takes up issues concerning its committees has caused fights the GS and its Committees. What members strongly, it will reaffirm and disturbances within tribal was the panchayat’s role now? people’s belief in its power as an and non-tribal communities, The community did sense the institution. both of which believed that the lingering threat that selected Committees were formed to serve members might overlook the The GP, on the other hand, certain groups only. Moreover, GS and dominate the decisions can begin experiencing a soft the District Magistrate issued because they would have the devolution of power through an order against those Mukhiyas, financial power. This was related the continuous activities of who would not extend their to the already overarching various groups in the community, support to the formation and the concerns of the GS not being catering to their needs. In opening of bank accounts of these active anyway in the region and the project, we have been committees. Mukhiyas, across middlemen acquiring larger able to connect the GSs and the state, realized very well that decision-making spaces. The the panchayats through some the powers guaranteed to them Gram Pradhans, who were the initiatives. CBOs are also taking

CASE STUDY STRENGTHENING LOCAL GOVERNANCE: A DEVELOPMENT PARADIGM 33 Such interventions can create a huge pressure group of aware masses and simultaneously ensure that the roles and responsibilities of such institutions are actively rooted in the ground and are monitoring the state of governance continuously

charge and helping GPs as well relevance of interventions in the and the respective organizations. as government departments to area. Scaling-up of such actions Establishing systems and implement plans. Cadres such can lead to accountability of the processes by strengthening the as the cohorts have an active panchayats for the people and local governance and each of role in connecting these three the people’s responsibilities as its institutions with its clear institutions, initiating questions citizens. Such interventions roles and accountability is the and generating discussions. can create a huge pressure way forward. In this way, after a The process is gradual, and group of aware masses and point of time, these local systems the relevant exposure and simultaneously ensure that the will not have to depend on an opportunities can propel these roles and responsibilities of such external organization for their institutions to design a way institutions are actively rooted functioning. These processes, too, forward for themselves. in the ground and continuously will further evolve over time with monitoring the state of respect to the needs and demands Such engagements, like the one governance. of the communities. in Basia, cannot have an external validity. These steps with the This approach is dynamic and — Neha Joshi and Nidhi Trivedi work with GPs and the GS can be taken evolves with the experiences of PRADAN as Executives. They are based in with respect to the context and the panchayats, the community Palkot block, Jharkhand.

34 NEWSREACH JAN_FEB 2019 JOURNEY

DEBMALAYA NANDI

ACTIVATING PANCHAYATS THROUGH MGNREGA

Implementing MGNREGA in Introduction its fullness is a movement — to establish local HE MAHATMA GANDHI NATIONAL RURAL democracy and instruments Employment Guarantee Act (MGNREGA) is of local governance, considered to be the foundation for establishing local democracy. The Act itself is empowering for local honour local wisdom governance and the provisions of the Act strongly and knowledge, promote promote power decentralization to panchayats and power decentralization to villages. The Act honours local knowledge and wisdom, panchayats and encourage and its operational structure is based on the principles of decentralized and participatory decision-making. participatory decision-making. T Jharkhand’s experience The provisions of decentralized planning and implementation processes warrants telling. embedded in MGNREGA have great power to establish the instruments of local governance and activate gram sabhas (GSs) and Panchayati Raj Institutions (PRIs).

35 The true potential of decentralized operations in MGNREGA is yet to be realized in Jharkhand. The gram panchayats (GPs) in Jharkhand are relatively new but are gradually maturing. PRIs are also at a nascent stage

MGNREGA’s operations at decentralization, wherein people’s control and people’s pro-active the grass roots are supposed participation in planning, participation in the programme. to strengthen the local decision-making and monitoring accountability structures has to be fully established. Whereas MGNREGA has several and ensure transparent provisions that can be used to implementation on the ground. MGNREGA has given the GS the strengthen the processes of Whereas the Act itself is amply ultimate right to make their own democratic decentralization and equipped with provisions for plans, which no other institution establish good local governance decentralized operations, this can interfere or tamper with. It through people’s participation, potential is yet to be fully has given the panchayats the right the CFT programme has enriched realized. to implement at least 50 per cent the state with many more of the schemes under MGNREGS. provisions. These include circulars and detailed specific roles for The Vision of Decentralized In Jharkhand, the panchayats each stakeholder, in the form Governance have been made fully responsible of guidelines and office orders, for 100 per cent implementation — which can further establish a of MGNREGS. The Cluster Facilitation Team system of people-centric planning and implementation. This also (CFT) experience in Jharkhand The idea of employment encourages strong accountability can be seen as a practice and guarantee completely eradicates praxis-based study of the gradual and action-strategies through the concept of contractor-based realization of the envisioned the Public-PRI-Administration labour engagement in schemes, strong rural decentralization integration. which was so far the way rural and the strengthening of jobs were given out. The new the local governance. The method empowered the rural The Jharkhand Context positive experiences of the CFT — programme have shown a few unskilled, semi-skilled and skilled glimpses, which have helped us people to have jobs in their The true potential of understand how through strategic locality and, at the same time, decentralized operations in engagement with the community, strengthened the rural service MGNREGA is yet to be realized in the administration and the sector with opportunities in Jharkhand. The gram panchayats elected local representatives, local institutions. MGNREGA (GPs) in Jharkhand are relatively normative influences can be promoted a system of demand- new but are gradually maturing. ensured, which can lead to a based work allocation, which PRIs are also at a nascent stage. change in culture of the rural empowered people to choose the Most GPs are on a learning path governance eco-system. time and duration of their work. and the panchayat secretariats It has a robust monitoring and are not fully activated. There The idea of strong local grievance redress mechanism have been efforts, both by the governance is incomplete articulated in the Act. All this government and civil society, without the idea of democratic is directed to ensuring local to enhance the capacities of the

36 NEWSREACH JAN_FEB 2019 In the context of present-day situations in rural Jharkhand, democratization to the last layer is important, to enhance the state of delivery of services to the poor

representatives of the panchayats awareness and benefits do not true spirit never materialized but the idea of developing GPs reach the last person. on the ground because as an organization is very recent. implementation was mostly Slowly, it has been learned In the context of present-day target-based and controlled by that along with increasing the situations in rural Jharkhand, the block administration. Also, capacities of its members, the democratization to the last layer the contractor-based supply GP, as an organization, has to be is important, to enhance the state mechanism was established capacitated holistically so that the of delivery of services to the poor. in many areas due to the local secretariat starts functioning and Thepanchayats as local governing malpractices and the lack of bodies, the GSs as the ultimate proper systems and processes are monitoring. put in place. decision-makers for grass-roots planning and implementation Although civil societies and The local elite and influential and the strong democratic governments have run demand people have dominated the local people’s institutions and generation drives, called Kaam implementation of MGNREGA collectives as change agents and Maango Abhiyan, from time to for a long time, thereby creating monitors are the way forward. time in villages to regularize space for the middleman- Whereas physical and financial work-demand and to ensure contractor nexus to control the power devolution to the GPs a system of demand-based should be a key focus area, the show. In the absence of a strong allocation, there are hardly any integration between the local local governance and effective spontaneous work- demands. collectives and the PRIs for people’s monitoring, the poorest The workers usually wait for planning and monitoring of remained unattended and supervisors and frontline schemes and ensuring smooth exploited because there was lack functionaries to come to them and transparent service delivery of accountability in the system and ask them to work and, to the last person is also and the demand side, too, was not thereafter, create a demand for important. properly developed. Institutional work. The general notion among linkages between the GSs and Rojgar Diwas: A first step towards the workers is that work is only the GPs are not well-established activating Panchayat Secretariats allocated if the schemes are and the block office has been the sanctioned and opened. centre of all key developmental — activities. The dependence on The Ministry of Rural Rojgar Diwas was supposed to the block administration for Development (MoRD) came change this set idea of work- implementation of schemes and up with a guideline to organize demand and allocation, and supply of social welfare benefits a Rojgar Diwas in the GPs in instead create a formal space has been very high and, thus, the 2013, to improve work-demand at local levels to facilitate system of delivery has been weak generation in MGNREGS. people to demand for work and non-transparent. In such a However, MGNREGS is a as and when they require it. context, a handful of influential demand-based employment An institutionalized platform people become so powerful that guarantee programme and its for constant demand for work

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 37 In Jharkhand, the idea of Rojgar Diwas was seen as an opportunity to activate the GP secretariats through MGNREGA transactions

at the local level was the idea however, the functionaries at the It has been a long struggle to behind Rojgar Diwas. Although panchayat level are operating from regularize the weekly Rojgar the original guideline from the the Panchayat Bhawan, ensuring Diwas. The success of the Rojgar Ministry was that the Rojgar services and benefits to the Diwas is subject to participation Diwas should take place at least citizens. The infrastructure of the of the citizens in the forum. once a month, Jharkhand has GPs are also getting utilized. Thepanchayats and the local further added a lot of value to administration were not very make it a more effective platform The Rojgar Diwas has been keen on activating the forum but at the level of the GPs. designed in such a way that all through constant engagement kinds of MGNREGS transactions, with the local administration In Jharkhand, the idea of Rojgar for example, job-card application, and the Panchayati Raj Diwas was seen as an opportunity work-demand, work-sanctioning, representatives, it was ensured and preparation of documents to activate GP secretariats that Panchayat Bhawans open translation are done on that day. through MGNREGA transactions. and the functionaries attend the PRADAN has been particularly Both, the state as well as Civil event every week. The people focussed on establishing this Society Organizations (CSOs), were also reluctant to visit the forum, with a long-term goal engaged in the CFT programme, panchayat offices with their of activating the panchayat have considered this as an applications and issues because secretariat as the office of the opportunity to facilitate workers their past experiences with the local government. and PRI representatives. They administration around these have worked towards making PRADAN has been facilitating issues were not very good. the office of the GP a vibrant the women of Self Help Groups place, where citizens are assisted (SHGs) to participate in the One other important factor and supported to access critical weekly Rojgar Diwas with their that helped the Rojgar Diwas inputs and services. The state MGNREGA agenda. It has gain more fuel in the state was government has further built created a positive environment the inclusion of the grievance on the MoRD guidelines and around demand generation; in redress initiatives. Historically, ordered for a weekly Rojgar Diwas many panchayats across our CFT the system of redressal of public at the panchayat secretariat. In areas, demand-generation has grievances is lacking. Grievances Jharkhand, where Panchayat been regularized through citizen are often not heard and registered Bhawans used to always be participation in the Rojgar Diwas. and, if registered, they are not locked up, the opening of Jharkhand has, however, gone monitored or followed-up on. Panchayat Bhawans once a week beyond demand-generation Even a hasty survey in the villages for the purpose of MGNREGS and included all MGNREGS will prove that there are various transactions was a significant activities in the Rojgar Diwas. As issues and grievances, which step. Establishing the panchayat a spill-over effect, social security never come to the surface and office as a centre of local schemes and agendas other than only add to people’s grim plight. administration is still a distant MGNREGA are also addressed in We focussed on the people’s dream; through this initiative, the . issues and grievances in the CFT

38 NEWSREACH JAN_FEB 2019 Panchayats have gradually earned credibility and the offices of the GPS have gained relevance through the initiative of the Rojgar Diwas. This is a pioneering initiative, which now needs to be sustained and built upon further

programme because MGNREGA, Panchayats role in sanctioning: A the GP’s role in the process of primarily being an employment- step towards financial autonomy sanctioning. generation programme, could — not deal with unresolved and PRADAN worked very closely Whereas the Yojna Banao unattended public grievances. with the GPs to ensure that Abhiyan was hugely impactful local priorities were honoured People’s grievances needed to be in the villages and was widely and schemes were sanctioned heard, registered and constantly acclaimed, the story of the according to the needs of the GPs. followed up at all levels. The implementation of schemes Due to the effective engagement platform of the Rojgar Diwas was was not as encouraging as the of the CFT, many schemes were considered to be an ideal forum to planning. The villagers had sanctioned and opened, and attend to the citizens’ grievances planned many assets but only several assets were created. The because the representatives some of these received attention panchayat’s interactions with the from the administration would from, or were sanctioned by, the state and the political executives be present. Important it is that administration. were a lesson in how democratic local matters are registered decentralization would always So far, GPs had almost no role and resolved locally, and that be a journey full of struggle in the sanctioning process in people should not find it difficult and strategic battles. Because Jharkhand. Incorporating the to register their grievances. of CFT’s engagement, the local learning from the past, the Therefore,panchayat secretariats administration, in many cases, state came up with a revised were activated for dealing gave in to honour the GPs’ plans scheme sanctioning guidelines, with grievances, an idea which and priorities. which incorporated two major increased people’s participation in provisions to enable GPs to have Rojgar Diwas. Hatnatodang panchayat in a strong say in the matter of Chakradharpur block has shown Panchayats have gradually earned sanctioning the schemes. For a way forward and created an credibility and the offices of the first time,panchayats were example for all the GPs in the the GPs have gained relevance being empowered to prioritize state. They exercised their power through the initiative of the the schemes for sanctioning. to get their schemes sanctioned Rojgar Diwas. This is a pioneering The state ordered that individual by the block administration. initiative, which now needs to be schemes of up to Rs 1 lakh and Thepanchayat prioritized and sustained and built upon further. community benefit schemes of up submitted a proposal for animal The challenge now is to keep to Rs 1.5 lakhs would not require sheds for their panchayats Panchayat Bhawans open for the any verification from the Circle whereas the block administration rest of the days in the week and Officer and could be passed with was only sanctioning farm ponds. ensure that the secretariats are a self-declaration from the owner. It disallowed the priorities of the activated for other transactions These initiatives simplified the GPs. as well. sanctioning process and ensured

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 39 Despite being the implementing agencies of the programme, earlier GPs had no control over the implementation and monitoring, and were completely disempowered. This was, primarily, the reason panchayats were disinterested in implementation and were negligibly involved

The GP Executive Committee The detailed guidelines from the expenditure for a specified members then wrote to the state empowered GPs to allocate period of time, to all GP Principal Secretary, Rural work to workers against work- Executive Committee members Development, Jharkhand, demand and also provided it for the purpose of monitoring. referring to the revised monitoring powers. Below are • The BDO also has to sanctioning guideline. The new some of the powers given to GPs mandatorily provide a monthly guidelines stated that prioritizing under MGNREGA: progress report to the block farm ponds over the local President/Pramukh. priorities vetted by the GP was • GPs are empowered to allocate • GPs are empowered to review illegal and such decisions should work to the workers against Rojgar Sewaks and MGNREGA be reversed. The state issued work-demands. a letter to the district, asking • GPs can issue work-orders to supervisors (Mates). the administration to sanction the mates. animal sheds, as required by the • Mukhiyas have the authority Integration of community collectives GP. As a result, animal sheds were to sign Fund Transfer Orders and GPs sanctioned in Hatnatodang, and (FTOs) as second signatories; — other panchayats also got their the first signatory being the We have experienced the Yojna preferred schemes. Panchayat Sewak. Banao Abhiyan, wherein, people’s • Ward Members are supposed collectives have taken part to Panchayat’s role in Implementation to verify each and every muster ensure proper participatory and Monitoring roll in their Wards. and decentralized planning at — • GPs are supposed to issue the the grass roots. The locals had Learning from the experience of completion certificates only then, in an organized way and the CFT and taking cognizance of after which the schemes can through CBOs, partnered with ground realities, the state listed be closed in the Management PRIs to make proper plans around out guidelines with detailed roles Information System (MIS). schemes. and responsibilities for GPs in • GPs can issue supply orders to implementation and monitoring. Panchayats (being the local the vendors for procurement of implementers and frontline material. Despite being the implementing supply machinery) and GSs agencies of the programme, • GPs are to provide a (being the local decision-makers) earlier GPs had no control satisfaction certificate for the are equal stakeholders in the over the implementation material, and only then can process of planning. Thus, and monitoring, and were payment for the material be with the effective partnership completely disempowered. made to the vendor. between panchayats and This was, primarily, the reason • The Block Programme community institutions (being panchayats were disinterested Officer (BPO) is to provide institutionalized through the in implementation and were the monthly 2B report, panchayat planning teams and negligibly involved. which shows the work and the recent Ward Planning Teams

40 NEWSREACH JAN_FEB 2019 Apart from planning in 13 blocks of areas in which PRADAN is operational, we have successfully demonstrated awareness programmes through the apparatus of the women’s Federation office

(WPTs), the local knowledge, being already demonstrated GPs in a Monitoring Role: A capacities and priorities are being everywhere Transparency Initiative honoured. Civil society’s efforts • SHG involvement has been — in technical capacitating, in the made mandatory in Gram Panchayats are empowered to process, further strengthens Panchayat Development Plan monitor the schemes through the quality of the partnership (GPDP) processes several office orders and a and ensures best results on the • Active involvement of detailed guideline on their role ground. Sahayata Kendras at the GP (monitoring with 2B reports, In 2018, the proposed labour secretariat in Rojgar Diwas is power to issue work orders to budget planning was designed demonstrated in blocks such mates, power of allocation of in a way that integration as Basia, Torpa, Shikaripara, works, clearly articulated roles in between the people and the local Sonua, CKP, Peterbar, the sanctioning process, signatory government takes place all the Boarijore, Kisko and Raidih. powers, scheme completion and way to the Ward levels (through • Frequent ward-wise camps for MIS closing of schemes, material WPTs). job-demand, awareness and procurement and payment, etc.). other transactions are seen In various PRADAN and non- Apart from planning in 13 in Basia and Peterbar. Ward PRADAN locations, GPs exercise blocks of areas in which Members take the lead in their power in sanctioning and PRADAN is operational, we such processes, with the CBOs monitoring. have successfully demonstrated mainly involved in organizing Again, the Chakradharpur awareness programmes through such camps and participating example from Hatnatodang the apparatus of the women’s in the activities in the camps. Federation office. This has panchayat can be taken as an • Selection of SHG women Mates strengthened the demand inspiration when panchayat happens with an informal mechanism and also contributed representatives wrote to the understanding among the SHG to activating the GP secretariat state that their priorities were tiers, GSs and GPs in the CFT for MGNREGS transactions not being honoured by the blocks. (Rojgar Diwas). block in sanctioning schemes. • The Mate’s joint review by the Subsequently, the panchayat’s GP and the CBOs has been priorities were selected over Experiences of the CBO-PRI initiated. top-down impositions. Also, integration in Jharkhand (Formal many panchayat functionaries and Informal) • The GP help desk is part of the guidelines that is monitor MGNREGS works — supposed to be run by the GP and seek accountability from • Institutional linkages between office, in collaboration with the administration, with the the CBO and the PRI through the MGNREGA Sakhi (SHG help of local CBOs and CSOs. panchayat planning teams member). Thus, a successful partnership (PPTs) and the WPTs for opportunity between the decentralized planning, two local bodies will trigger

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 41 In Jharkhand, there have been many examples in which the panchayats, through effective monitoring, have been able to identify discrepancies in the physical implementation of work, in issues of workers accessing their rights and in payment irregularities

transparent implementation their rights and in payment Through trainings, followed on the ground and will hold the irregularities. Although dealing by constant engagement with administration accountable at the with leakages in the present members of GPEC, it has now same time. context is a tough task, the been established that the GPECs initiatives are showing a way in the CFT blocks sit at least Scheme visits, village meetings forward. once a month (in some blocks and monitoring by panchayat fortnightly) to review and representatives, with social audit Activating Gram Panchayat monitor the MGNREGS progress. reports (Report 2B and Report 3) Executive Committee (GPEC) The Department of Rural for review of work-expenditure meetings: An Organization Development in Jharkhand also and payments, have been able Development Initiative has a special monitoring focus to create a culture of monitoring on the operations of the GPEC, — in the area. Along with social which further helped establish audit initiatives, panchayats also GPECs, popularly known and activate this forum. actively verify reports through as Karyakarini Samitis, are their organization. CFTs have responsible for monitoring In the GPs of CFT blocks, the played a big part in making and reviewing the progress of importance of a GPEC meeting panchayat representatives realize developmental activities in is known; the processes are now their accountability as well as panchayats. As several panchayat practised and the powers are responsibilities about reviewing Standing Committees are exercised regularly. the works and the expenditure. supposed to deal with specific The accountability initiatives are areas, the GPEC comprising all GPEC members meet regularly to a multi-tier engagement process, the Ward Members, the Mukhiya verify job applications, allocate wherein the community, GS and and the Panchayat Sewak (being work, review the maintenance GPs are simultaneously trained the Secretary to the Committee) of seven panchayat-level and capacitated to understand are supposed to engage in the registers, prioritize schemes their roles and responsibilities. overall progress review of the for sanctioning, abhilekh The locals can, then, question developmental and social welfare preparations, discussions on and seek accountability of activities in the area. issues and grievances, etc. the representatives and the functionaries at different levels. The state’s guidelines have given GPEC, as an organization, monitoring powers to GPECs; has flourished and started In Jharkhand, there have however, it is important to work functioning only after the CFTs been many examples in which with GPs, to materialize the idea. intervened and provided hand- panchayats, through effective The CFT can facilitate the GPEC holding support to its members. monitoring, have been able to forum, through the dedicated identify discrepancies in the panchayat-level staff working In the beginning of this initiative, physical implementation of work, on streamlining of processes in it was surprising to learn that, in in issues of workers accessing MGNREGS. most panchayats, members were

42 NEWSREACH JAN_FEB 2019 In the beginning of this initiative, it was surprising to learn that in most panchayats, members were not aware of their rights and powers because the local people’s representatives, the guidelines and the office orders often did not reach the GPs

not aware of their rights and with panchayats give us great policy advocacy at the state powers because the local people’s hope and encouragement. level. representatives, the guidelines and the office orders often did not Panchayats in Jharkhand are still 2) Ensure financial power for reach the GPs. We have ensured at a nascent stage and evolving panchayats to have control that GP representatives are very slowly and are yet to be over the administrative funds educated and oriented adequately given key powers and controls. meant for GPs (at least 2 per about their powers, rights, roles Although, in MGNREGA, the cent of the contingencies). and responsibilities. powers and responsibilities of the PRIs in planning and monitoring 3) Establish complete operations It is, however, a fact that the are clearly articulated, the of MGNREGS transactions at incentives and honorariums sanctioning and financial powers the GP level by: for GP representatives are not are yet to be devolved to the ‚‚ Re-enforcing the existing very lucrative and ‘sometimes’ panchayats. guidelines that define the responsibilities become burdens. panchayat’s powers and In the present scenario, we see Most members of the panchayat, responsibilities in planning, a lot of scope in establishing however, become engaged in the implementation and control of the local self processes according to their roles monitoring because these have established governments over MGNREGA ‚ their credibility among the people through the introduction of ‚ Ensuring provisions for who elected them and also give various institutional mechanisms muster roll printing from them a sense of power when and devolution of key powers. the panchayat’s log-in id monitoring schemes and the It is an excellent opportunity (currently done from the functionaries. and a proper time to activate GP Programme Officer, PO, secretariats through MGNREGA log-in id) by advocating and, then, further work on the with the state and through Opportunities OD processes and effective demonstration of the idea in — advocacy at the legislative and some places The current experiences of bureaucratic levels to ensure ‚‚ Ensuring provisions for working with GPs have further strengthened, responsible and muster roll generation opened up several avenues to accountable panchayats in the with the Panchayat Sewak’s work for establishing governance state. signature (currently the BPO mechanisms at the GP level. signs on it). Following are some of the key These experiences have been ‚‚ Ensuring proper opportunities: enriching and, despite the fact infrastructure placements at that representatives of PRIs are 1) Ensure administrative the GP secretariat through not paid adequately and not much sanctioning powers are state-level advocacy and has happened for their capacity- devolved to GPs with effective grass-roots level monitoring. building and awareness, working

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 43 The opportunities are many. In order to tap these opportunities, the state will have to ensure that the current bottle-necks and challenges are removed. Most of the current issues are linked with the policies of the central and the state governments, which need to be addressed by the government

‚‚ Setting up a GP-level help Panchayats are yet to get financial Financial powers will also make desk for information, sanctioning powers that will make panchayats empowered to deal facilitation, support and them operate independently from with the major grievances of the grievance management the block and fulfill the needs workers. Currently, panchayats are is important, which may of the locals according to the not capacitated to resolve people’s be constituted at GP requirement of the area. This is an grievances because they have very levels, with participation important area to be looked at. little control over critical matters. from people’s collectives and PRI representatives. Panchayats have also been Stories of Inspiration Institutionalizing these demanding direct access to two collaborations will ensure per cent of the administrative — more space for collectives in cost. This will help them operate Kaliga GP PRIs and, thereby, in local as an independent organization governance. and free them from the influence As part of the Beacon of the block administration. panchayat programme, Kaliga The opportunities are many. In GP was selected for a special order to tap these opportunities, Apart from this, one important demonstration for service the state will have to ensure challenge will be to ensure muster delivery and implementation of that the current bottlenecks and roll generation and establish an schemes. The Beaconpanchayat challenges are removed. Most of MIS at the GP level, which would programme has been initiated the current issues are linked with need the state to write to the with an aim to establish and the policies of the central and the central government immediately. enable GP secretariats to extend state governments, which need to be addressed by the government.

The issue of low honorarium, financial sanctioning authority and direct access to administrative funds are major issues that need to be dealt with immediately. At present, Ward Members are not paid adequately and their payments are irregular as well. A meagre sum of Rs 200 is inadequate to fulfill the needs of Ward Members and, thus, sometimes the powers are considered a burden and are not exercised properly. A picture of MIS Operator Kajal Kumari working at the Kaliga GP Secretariat

44 NEWSREACH JAN_FEB 2019 In a state such as Jharkhand, it is important that facilitation, information, awareness, implementation, service delivery and grievance management happens at the panchayat secretariat, which is relatively closer to the people and easier to access, given the dynamics between the people and the panchayats services to the citizens. The Kaliga is the firstpanchayat that in registration-and application- critical services relating to has, to some extent, materialized related work at the GP various schemes, programmes the dream of activating the Secretariat on Rojgar Diwas. and welfare initiatives need to complete MGNREGS transactions • Regularize the GPEC meeting be channelled through the GP at the GP secretariat level. In and maintain a GPEC checklist secretariat, in order to make the the Beacon GPs and, thereby, in for measuring performance of local government active and to Kaliga, we have been constantly GPs. establish proper accountability promoting the following • Regular monitoring of Register mechanisms at the grass roots. activities: No. 3 with original documents, In Jharkhand, villages are • Ward-wise awareness and in order to ensure on-time usually located far away from transaction camps for allocation and Ward Members’ the block; due to many social MGNREGS, with respective responsibility in allocation. Ward Members leading the and local dynamics, people are Apart from this, the Mukhiya, camps. routinely hassled and troubled Alok Toppo, went one step and, sometimes, denied access • Grievance Redress Day at GPs, ahead and took the initiative to their rights and benefits. apart from the weekly Rojgar to establish the Management Therefore, in a state such as Diwas, to provide people an Information System (MIS) set- Jharkhand, it is important opportunity to register their up at the panchayat level. For that facilitation, information, grievances at the panchayat complete decentralization of awareness, implementation, level itself. MGNREGS systems, it is most service delivery and grievance • Regular planning by important that the MIS is set management happens at the panchayat representatives up at the GP level and muster panchayat secretariat, which is around monitoring and rolls generated from the local GP relatively closer to the people scheme inspections, with Secretariat. and easier to access, given the reports, and carrying out the dynamics between the people and responsibilities as planned. However, in the present-day the panchayats. system in Jharkhand, the muster • Carrying out the roles roll cannot be printed from the and responsibilities by GP The Beaconpanchayat programme GP’s log-in id and can only be members in sanctioning, aims at strengthening GPs by generated and printed from the implementation, scheme developing its organizational PO log-in id, which is the block closure, monitoring payments structure (by strengthening log-in id. Further, the muster and material procurement, Standing Committees and the rolls have to be signed by the BPO according to guidelines. GPEC), extending support in when issuing them because the awareness and capacity-building, • Appoint Sahayata Kendra BPO holds the issuing authority and meaningful advocacy at each representatives to help people of the muster rolls in Jharkhand. level.

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 45 This arrangement between the panchayats and the block can be seen as a temporary one but has given adequate insights that the state is considering having a discussion with the Ministry over a possible change in the provision of the MIS to empower the panchayats to generate, print and issue muster rolls from panchayat log-in ids for Jharkhand

Despite obstacles and technical but a scope for discussion was The story of Kaliga, however, obligations, Alok Toppo’s created, which can prove to be a is not a permanent solution indomitable spirit has brought game-changer for the question but has given us a taste of the vibrancy to our initiative in of decentralization in the coming envisioned state that we had Kaliga. The panchayat has days. dreamt of. We expect, that by appointed an operator for entries next year, Jharkhand would related to both MGNREGS Transactions such as the Entry of have completely established its and the Fourteenth Finance demands, Job-card generation, MGNREGS transactions at the GP Commission (FFC) works, and MR generation, Entry of filled Secretariat. pays the MIS operator from the MR, Wage-list generation, Fund FFC money. The operator was Transfer Order (FTO) generation Pantha Panchayat and FTO signing have been trained for a month in the block — before finally getting placed at the possible in the GP secretariat panchayat. itself and this has made Under the able leadership of implementation far easier at the the Mukhiya, Basant Guria, Further, the block has given its local level. The Rojgar Sewak’s job the Pantha GP has been the PO log-in id in good faith to the has become easier because he no most impressive in the quest panchayat operator and they longer has to shuttle between the of achieving decentralized have been generating, printing villages and the block to make governance at the grass roots. and issuing muster rolls from things happen on time and can Along with other initiatives, this the panchayat itself with the easily operate from the Panchayat panchayat has demonstrated BPO signing the muster rolls Bhawan. in bulk from time to time. This arrangement between the panchayats and the block can be seen as a temporary one but has given adequate insights that the state is considering having a discussion with the Ministry over a possible change in the provision of the MIS to empower the panchayats to generate, print and issue muster rolls from panchayat log-in ids for Jharkhand. However, there are multiple technical glitches in achieving this, including the change of issuing authority (currently the BPO in Jharkhand) The Mukhiya of PanthaPanchayat , Basant Guriya, facilitating a Mate review event

46 NEWSREACH JAN_FEB 2019 There are many obstacles in the journey of democratic decentralization and accountable governance. Many of these issues are linked to policies and some others are linked to implementation and grass-roots dynamics. Our short-lived experience has been an enriching one and has re-established that learning by doing is the best practice on the ground exemplary action at the GPs in linkage with the block for This practice of a joint mate MGNREGS, which can open up reciprocation relating to public review has been strengthening new avenues in the area of local grievances through Sahayata the CBO-PRI integration at the governance. Kendra representatives, who panchayat level. Learning from act as a bridge between the two Pantha many other panchayats Pantha panchayat has been institutions through which across blocks in Jharkhand have instrumental in organizing the follow-ups and escalations now planned to initiate the Rojgar Diwas and helping people happen with the administration. process. apply and register their various It is still unfortunate that needs at the GP level. It has panchayats have little power Conclusion reserved one Rojgar Diwas as to resolve or redress people’s Grievance Redressal Day, wherein, issues at the moment and hence — only people’s grievances are heard most issues need to be taken up There are many obstacles in and registered. In a rural set-up, with the block administration the journey of democratic where the voices of the weakest and subsequent levels in case decentralization and accountable and marginalized are hardly heard of non-redressal on time. We governance. Many of these and often lost or suppressed, this are also hoping that our little issues are linked to policies initiative has given genuine hope. demonstrations will soon change and some others are linked this and will empower panchayats to implementation and grass- As an extension to the Grievance to deal with people’s issues and roots dynamics. Our short-lived Redressal Day and Rojgar Diwas, grievances. experience has been an enriching Pantha has put in place a help one and has re-established that desk for citizens’ awareness, The most recent and most learning by doing is the best information and registration important initiative taken by practice on the ground. Action of grievances at the panchayat Pantha is the review of Mates by on the ground and the evidence- secretariat, aimed at creating a a joint team of representatives based policy advocacy seem to be front support desk for people of women’s collectives and the the way forward here. for a steady solution related to panchayat. This joint review, on information, facilitation and the one hand, helps in sustaining public grievances. the SHG Mate initiative through regular reviews and immediate — Pantha has also established a intervention, checking drop-outs Debmalaya Nandi coordinates the CFT good communication mechanism and, on the other hand, ensuring project (PRADAN). He is based in Ranchi. Debmalaya has more than 10 years of with the block regarding public that Mates’ issues surface and experience and has worked in Jharkhand and grievances. It has created a payments are made on time. Odisha.

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 47 CASE STUDY

SHAILENDRA KUMAR SINGH, SURJODOY NANDY AND DHIRAJ KUMAR MAHATO

PINDARKONE GRAM PANCHAYAT: Setting Examples of Governance

In the words of Mahatma Gandhi, “The best, the quickest and the most efficient way is to build up from the bottom...Every village has to become a self-sufficient republic. This does not require brave resolutions. It requires brave, corporate, intelligent work...”

ANCHAYATI RAJ INSTITUTIONS Following its constitution as a separate state, (PRIs) in India are a homegrown Jharkhand enacted the Panchayati Raj Act in 2001. effort to decentralize government This was done in accordance with the provisions of activities, to promote greater the 73rd Amendment to the Constitution and that participation in governance by the of the Panchayat Extension to the Scheduled Areas public. This process of democratic (PESA) Act 1996 that are applicable to this state. The decentralization was set in motion state, accordingly, brought about changes in its Act with the 73rd Amendment Act of the Constitution and announced the panchayat elections. passed by the Indian Parliament in 1992, enabling P In 2010, the firstpanchayat elections were held in decentralized governance through PRIs in rural areas. Jharkhand, and the first tenure was completed at

48 NEWSREACH JAN_FEB 2019 The lack of institutional capacity, coupled with insufficient devolution of funds, functions and functionaries have restricted the effective functioning of the panchayats

the end of 2015. However, as the of the MoU helped the panchayat households. Thepanchayat local government of the village, understand that it can act as an members made a vision statement the panchayats are still not able to independent institution. for their GP. “Hum Pindarkone make any significant contribution panchayat ke Pratinidhi evam to the overall development Subsequently, a visit was Janata panchayat me addharbhut scenario. The lack of institutional organized to Kerala to expose sanrachna, samajik vikas, mahila capacity, coupled with insufficient them to the Kudumbashree shashaktikaran, paryavaran evam devolution of funds, functions model, wherein the PRI rojgar ke liye pratibaddh hai (We and functionaries have restricted and the Community Based the representatives and the the effective functioning of the Organisations (CBO) work hand people of Pindarkone panchayat panchayats. The perception of in hand. Following this visit, a are committed towards ensuring panchayat representatives is learning-sharing meeting of the basic infrastructure, social another area of concern. They Mukhiya, the Panchayat Samiti justice, women’s empowerment, consider themselves subordinate member and the Federation environment and livelihood).” to the administration and leaders was organized at the function as its extended arm. panchayat level, to have them Furthermore, the panchayat speak about their experiences and a CBO members identified In Koderma and Hazaribagh from the Kerala exposure visit. education, agriculture and districts, women leaders of These activities steadily started women’s empowerment as the Federation promoted by helping Ward Members connect priority areas for their panchayat. PRADAN stood for panchayat with other Ward Members and elections. The Federation build a unique vision for their 1. Regularizing the panchayat supported 125 candidates, of panchayat. Later, a three-day office:The Gram Panchayat who 63 won and 14 lost by workshop was organized for Executive Committee (GPEC), very close margins. However, elected representatives, women which comprises Ward the women soon realized that Federation leaders, important Members and the Mukhiya, without institutional support, figures from the villages and started meeting on a monthly nothing would change. In this frontline workers, in which all basis. A roster was prepared in context, PRADAN, in partnership of them sat to re-imagine and which the Mukhiya and the Up- with ANODE (a Bangalore- prepare a vision plan for the mukhiya together volunteered based organization working panchayat. to keep the Panchayat Bhawan with panchayats in Karnataka), open for five days in a week. initiated a programme called Here, in this article, we focus on Pindarkone GP now has a Strengthening Panchayat Actions Pindarkone panchayat, where well-maintained and well- for Community Empowerment considerable momentum has equipped Panchayat Bhawan. (SPACE) in 2017 with 11 gram been gained in the last one year. TheMukhiya and the staff have panchayats (GPs) in Telaiya block. Pindarkone GP has 7 revenue a separate office room with An MoU was signed between the villages with a total population proper infrastructure for their GPs and PRADAN. The signing of 6,815 in approximately 1,216 functioning. The Bhawan has

CASE STUDY PINDARKONE GRAM PANCHAYAT: SETTING EXAMPLES OF GOVERNANCE 49 Today, the Pradhan Mantri Awas Yojna (PMAY) is perhaps the most attractive individual scheme in Jharkhand because, on any given day, you will come across several people who wish to build houses under the scheme. As the aspiration levels are high, so are the irregularities

Justice Prevails Today, the Pradhan Mantri Awas Yojna (PMAY) is perhaps the most attractive individual scheme in Jharkhand because, on any given day, you will come across several people who wish to build houses under the scheme. As the aspiration levels are high, so are the irregularities. Often people ineligible for the scheme get away with housing loans by bribing key personnel, and the people in need are left behind. The only possible solution to this situation would be a local government that is sensitive and transparent. This is where the Pinderkone GP is a classic example. As a general practice, the block administration sends the list of beneficiaries, based on the Socio Economic Caste Census (SECC) 2011, to the GP for validation. The GP is supposed to validate this and send back the final list to the block. Often, manypanchayats are not able to ensure due processes at their end, due to lack of institutional capacity and for many other reasons. However, when Pinderkone received the list of 165 families from the block, they conducted a visit to every door, by forming a panchayat-level committee comprising the Mukhiya, the Up-mukhiya, two Ward Members, two SHG members from the Damodar Mahila Mandal Sangh and one reputed member from each of the seven member villages. This committee conducted a study to verify the eligibility of the people and struck off 93 names because it was found that these families did not meet the eligibility criteria. However, after a few weeks, the panchayat was astonished to find that those 93 names were included in the list by the block administration again. Pinderkone decided to take up the challenge. Immediately, an Executive Committee meeting was held and it was decided that the panchayat would take the matter to district administration. Without wasting further time, the Mukhiya wrote a letter to the Deputy Development Commissioner (DDC) describing the whole incident. Thepanchayat members were a little apprehensive initially. When they received a letter from the DDC, they became more confident because in his response he clearly directed the Block Development Officer (BDO) not to supersede the decisions ofpanchayat and requested the panchayat to organize a gram sabha (GS) meeting to include some more eligible families into the waiting list. The DDC also directed the block to ensure that every individual registration was duly approved by the panchayat. Meanwhile, the panchayat organized a separate GS in every village. After getting the list from the GS, the panchayat conducted door-to-door visits by a committee (Ward Members of the village, the Mukhiya and one person nominated by the GS) and, finally, the 90 families whose names were not on the list, found a place in the PMAY waiting list. The story does not end there. The block administration again dishonoured the panchayat’s list and sent them a different list for approval. This time, the Mukhiya wrote a letter to the BDO and requested him to follow the list sent by them. Finally, the block agreed with the panchayat and accepted their list.

50 NEWSREACH JAN_FEB 2019 A regular monthly meeting is held to integrate the frontline worker functions at the panchayat and village levels.

a meeting hall equipped with Ward Members are asked to and village levels. Here, sufficient chairs and a round announce this in the village. different functionaries such conference table with the as the Aanganwadi Sevika, the names of the Ward Members However, all the seven villages Sahaika, the Jal Sahiya, the imprinted on each seat. The in Pindarkone have very unique Head Teacher of the school, GP also has well-maintained characteristics. Therefore, the Krishak Mitra, the Cluster toilets. ThePanchayat Sachiv villages such as Karar, where Resource Person (CRP) from takes care of two GPs and the Mahatos, who are larger the education department, the supports the functioning of the in number and control the Panchayat Sevak and the Rojgar GP. The other staff of the GP— economy, continue to dominate Sevak mark their presence the Rojgar Sewak, the Jal Sahiya over those belonging to the in the meeting. Other than Scheduled Castes (SCs), to hold and the cleaning staff—are also these, Federation leaders political advantage. This not very regular. and prominent personalities only affects the functioning are also invited. Discussions 2. Organizing the GS: Kamkhya of the panchayat but also revolve around various aspects, Kumar Singh, the Mukhiya of hinders noble intentions. in which each functionary Pindarkone panchayat, says, Some villages such as Bardewa presents their status, makes “Panchayat ka power logon ka and Nachanbe have been very plans for the next month and, power hai (The power of the easy for the GP to work with if needed, seeks support from because their relationship panchayat is the power of the the panchayat. Further, any with the GP have also been people)!” This would not have grievances that are raised are different. As each of the seven been realized if the power of addressed here. GSs has a different context, the GP had not been given to the GP is careful to discuss and the GS. 4. Reformulating the Standing negotiate differently in each Committee: Seven Standing The GPs circulated the notice GS. It has also been observed Committees have been and the agenda for the GSs; that whereas women Ward formed in all the GPs. The Members are now comfortable introduced the various agendas composition of each Standing to speak among GP members, during the meetings and only Committee was examined as they do not feel this same level got involved in directing the per the individual’s interest of comfort in the GSs, in which discussions when they thought and aspirations. Eventually, their relatives and members of that the meeting was moving many members shifted from their community are present. away from the agenda. The one committee to another. The following seven committees notice and the agenda are 3. Regular departmental are, at present, functioning in circulated in the respective GS review meeting: A regular Pindarkone panchayat: minutes register, the date and monthly meeting is held to timing are also painted on the integrate the frontline worker 1. Village Security Committee walls at the GS venue and the functions at the panchayat (Gram Raksha Samiti)

CASE STUDY PINDARKONE GRAM PANCHAYAT: SETTING EXAMPLES OF GOVERNANCE 51 Committee members regularly hold meetings with parents, to motivate and encourage them to send their children to schools. They request parents to discharge their duty to their children’s education

2. Committee for Health, introduced to understand the Mukhiya and the Mukhiya as its Education and Environment lived reality of children, parents, members. The issues in the Core (Shiksha, Swasthya tatha Van teachers, farmers and women. Committee range from mid-day evam Paryavaran Samiti) meals (MDM), learning outcomes 3. Committee for Agriculture, “Is se pehle Panchayat Bhawan tha to parental engagements and Industries and Co-operative hi nahin…panchayat karyakarini sanitation. (Krishi, Sahkarita, Sarvajanik ka meeting to bahut door ki baat Sampada evam Udyog Samiti) hai (Earlier, we didn’t even have Committee members regularly a panchayat building, let alone hold meetings with parents, to 4. Committee for Women, having an Executive Committee motivate and encourage them to Children and Social Welfare meeting),” says Ajit Kumar, a send their children to schools. (Mahila, Shishu evam They request parents to discharge Samajik Kalyan Samiti) Ward Member from Pindarkone village. Lukeshwar Mahto, their duty to their children’s 5. Development Committee another Ward Member from the education. Thepanchayat has also (Vikas evam Nirman Samiti) Pindarkone panchayat, nodded in invested in school infrastructure, 6. Infrastructure affirmation. arranged for sports equipment Committee (Sanchar evam and a water jal minar, mobilized Adhosanrachana Samiti) the district administration to a. Health, Education and build a water tank and a hand- 7. General Administration Environment Standing Committee Committee (Samanya wash unit in all schools by Prasasan Samiti) This Committee has discussed, selecting local vendors. articulated and collectively Once the restructuring process made a plan for education, with “Earlier, many times we would was done, two of the seven greater focus on interventions find insects in the school meal. Standing Committees of the that categorically revolve Initially, we had only one teacher panchayat prepared a thematic around the four pillars, that is, who taught us all the subjects. There was no opportunity of vision, goal and engagements children, parents, teachers and playing in school and the toilets in their particular fields. infrastructure development. were also locked. If we ever These Standing Committees Bal Sabhas have been complained about any of these were ‘Health, Education institutionalized and activities issues, we would be scolded by the and Environment Standing such as sports, story-telling and teachers and the SMC President,” Committee’ and ‘Agriculture, quiz are organized to increase said 14-year old Lalita Kumari, Cooperatives and Industry children’s participation. Measures who is the Bal Sabha President of Standing Committee’. have been taken to form and UMS Pindarkone Government Subsequently, the Standing regularize a Core Committee of School. Committee members were various stakeholders such as the given four days of training on Head Teacher, the SMC President, She further shared, “When their roles and responsibilities. President of the Education Dinesh Ram, the President of the Simulation games were also Standing Committee, the Up- Panchayat Education Committee,

52 NEWSREACH JAN_FEB 2019 This year, 400 farmers have been linked to the Pradhan Mantri Fasal Bima Yojana (Insurance) through the GSs, the GP and the village level camps. The GP has also linked 247 farmers to the Kisan Credit Card for paddy and corn crops

Emerging New Leaders and Spearheading the Change “Shiksha ki jyot jalana hi mera maksad hai (My purpose in life is to enlighten and educate),” says Dinesh Ram, President of the Standing Committee on Education from Pindarkone panchayat. Dinesh also says, “Shuru-Shuru mein to teacher log bahut virodh kiye jab hum unke saath shiksha ki baat karne gaye (Initially, the teachers refused to co-operate with the panchayat).” He also reminisces the first meeting of the Core Committee, in which all the Head Teachers and the School Management Committee (SMC) Adhyakshas were called. They refused to collaborate with the panchayat because they felt threatened by the emergence of a new monitoring body. TheMukhiya and the Standing Committee Adhyaskha took multiple initiatives to build trust. Dinesh said, “Hum log teachers ke dikkato ko sunte the, aur use dur karne ka yojna banate the, aur dhire dhire unko bhi hamre kaam se viswas hone laga (Over time, the panchayat listened to the teachers and tried to help them overcome their difficulties and managed to build enough trust).”

“Abhi har mahine Core Committee ka meeting karte hai, Mata-pita ke saath baithak karte hai aur bacchon ke saath bhi meeting karte hai.” Dinesh told us that they now hold regular meetings with the Core Committees members, the parents and with the children. Dinesh emphasized that significant bonding has developed among Ward Members, which motivates all of them. Dinesh also shared their vision of strengthening the children’s and the parents’ voices by creating a Bal Sabha. Furthermore, Dinesh proudly shared that now the Head Teacher applies for leave from him and even the teacher’s salary approval needs his signature. Dinesh admitted “Ye saab karke panchayat me ek accha shiksha ke liye mahoul ban paya hai (By doing all this, we have been able to create a good environment for education).”

Lukeswar Mahto, the President of the Agriculture Standing Committee, talks about the agricultural interventions introduced by the panchayat. He excitedly shared, “Pehle agriculture department jo bhi karta tha hamein pata nahi chalta tha aur na hi hum ek accha yojna banake kisaano ke saath jud pate the (Earlier, we had no idea what the agriculture department was doing and we could not get together as farmers and plan for our crops).”

Now, the panchayat organized an exposure visit to Gola for the farmers and the panchayat representatives. Subsequently, they prepared a vision and an immediate action plan around agriculture and allied activities. This year, 400 farmers have been linked to the Pradhan Mantri Fasal Bima Yojana (Insurance) through the GSs, the GP and the village level camps. The GP has also linked 247 farmers to the (Kisan Credit Card (KCC) for paddy and corn crops. In Nachanbe GS, 29 SC families were selected for cow-rearing and linked with the Animal Husbandry department for subsidy and training. Additionally, the panchayat mobilized a seven-crore-rupee project from the Minor Irrigation department. Lukeshwar Mahto can hardly contain his excitement as he adds, “Bahut badlav hua hai (A lot has changed).”

CASE STUDY PINDARKONE GRAM PANCHAYAT: SETTING EXAMPLES OF GOVERNANCE 53 Lalita enthusiastically remembered the day the panchayat began to listen to their concerns and how happy and hopeful it had made her about the situation.

started visiting our school, b. Agriculture, Co-operatives, Subsequently, one ambitious things began to change.” Lalita Industry and Public Estate Standing programme—Pradhan Mantri enthusiastically remembered Committee Krishi Sichai Yojana (PMKSY)— the day the panchayat began to which aims to provide 24-hour The members of this committee listen to their concerns and how electricity for farmers along have discussed, articulated happy and hopeful it had made with installing lifts, has been and collectively made a plan her about the situation. In the mobilized by the panchayat. This for agriculture and allied following months, the panchayat opportunity was available for activities. They have focussed President along with the Mukhiya only three sites in each district. on agriculture, improving the held many meetings with all Even in this case, crucial pitching water facility, increasing the the Head Teachers and the SMC helped the panchayat mobilize dairy base and designing several Presidents. These meetings, the project. Currently, the interventions for the landless and although turbulent initially, site selection and the process the marginal farmers. They have started showing good results after of inviting tenders have been organized many trainings for the some time.” completed for this scheme by the farmers, linked them with credit approval of the panchayat. and insurance programmes, etc. She added that there was Thepanchayat has further significant improvement in MDM The PRADAN team helped build built linkages with the Animal and in class-room facilities. linkages of Pindarkone panchayat Husbandry department and has An inter-school girls’ sports with the Minor Irrigation come across schemes of one lakh competition was organized by the department. Thereafter, the rupees for cattle-rearing, wherein Pindarkone panchayat, which was meetings at the GS were held the subsidy was on 90 per cent of the first of its kind. She was very in collaboration with the SHG the amount. Here, the panchayat happy to share that the panchayat leader and a plan was formulated. has identified 29 vulnerable had also started forming Bal The whole initiative helped farmers through the GS and Sabhas at the village level; and the panchayat finalize a project linked them to cow-rearing also had village representation, worth seven crore rupees, which training and quality procurement. on a monthly basis, to interact was mobilized from the Minor They are linked to the Sudha dairy with the panchayat, whereby she Irrigation department. This route to supply milk. would be able to influence some project included the building of of the panchayat’s decisions. She five check dams, four ponds and 5. Co-working with the only wished that her school would one lift irrigation. Some of the have a boundary wall so they CBOs: The GP has been having work for the check dam and the regular meetings with SHG could grow vegetables and plants; water pond was initiated through She wants her school to become members, moving toward 100 due GS proceedings and work per cent saturation. Through the best performing school in worth Rs 2 crores has already Hazaribagh district. the National Rural Livelihoods been completed. Mission (NRLM), they have been

54 NEWSREACH JAN_FEB 2019 “Earlier, during the monsoon, it was literally impossible to walk on this road due to water logging and garbage. Last year, therefore, we sat together and jointly decided to build this culvert,” Sanjay said proudly

Towards Transparency and Accountability “Bhaiya pehle khali Yadav ji hi block mein baat karte the, hamein aake batate the ki kahan road banega aur hum logon se sign karwa ke kaam karwate the (Earlier only Yadav ji used to talk in the block meetings and used to come back and tell us where the road would be built. He would get the papers signed by us and get the work done),” Sanjay describes the situation in Gotea village eight years ago when there was no role of the panchayat.

Gotea is a small village in Pinderkone GP of Padma block with just 631 people as per the Census of 2011. Home of mostly small and marginal farmers, this village is situated around 20 km away from the block headquarters.

Sanjay Kumar, a charming man in his mid-thirties, is a Krishi Mitra of Gotea village. He told us about how Gotea village has changed in the last 15 years. There was no school in the village; the nearest one was in Kewla village, where he used to go. The condition of the roads was very poor and there were very few pucca houses in the village, usually a sign of wealth or of caste-based privilege of a few families. Agriculture was the primary source of income; however, apart from paddy and a small amount of potato, mainly for self-consumption, agriculture know-how in Gotea was low. Add to it, the irrigation water scarcity, income from agriculture was very low. Many of the farmers, including Sanjay’s father and uncle, used to go outside as daily labourers during the lean period.

“Much has changed today,” Sanjay said, pointing to a nearby culvert. “Earlier, during the monsoon, it was literally impossible to walk on this road due to water logging and garbage. Last year, therefore, we sat together and jointly decided to build this culvert,” Sanjay said proudly. But this was not the practice earlier. There were a few influential people in village, who used to maintain close contact with the block officials. They were the people, who decided and acted as contractors too. However, the scene has changed after Kamakhya bhaiyya was elected Mukhiya. Unlike the previous Mukhiya, Kamakhya bhaiyya motivates us to come to the GS. He sends information of the GS in advance so it becomes easier for me to participate. “Aur kyun na jayen? Jahan hamara suna jata hai wahan to jana hi hain. Main aaj janta hun ki panchayat kahan kitna kharcha kar raha hai. Pehle to puchne ka kabhi himmat nahin hota tha (Why shouldn’t we go? Where we are heard, we should go. Now, I know how much the panchayat is spending and where. Earlier, we did not dare to ask such questions),” says Sanjay, as the last rays of the late afternoon sun fell slanting onto his moist eyes.

CASE STUDY PINDARKONE GRAM PANCHAYAT: SETTING EXAMPLES OF GOVERNANCE 55 All the people participate in the planning from the village level to the panchayat level. Members of the panchayat and Federation members make collective efforts to connect to the rest of the women in the group.

discussing the issues put forward level. Members of the panchayat brave resolutions. It requires by SHGs; the GP has been sharing and Federation members make brave, corporate, intelligent their issues and motivating collective efforts to connect to the work...” women Ward Members to rest of the women in the group. attend the meetings. Some of “Ab hum to panchayat karyakarini Our two-and-a-half years them have been attending the ki baithak me amantrit sadasya ke of brave, corporate and monthly GPEC meetings. This roop me bhag lete hain (We are now intelligent work revolves has increased the interaction invited to panchayat meetings).” around conceptualization to between SHG groups and the Munni Devi said expressing her implementation of some of GP. During the vision workshop happiness at how things had the ideas. As is clearly visible, and organization mapping, SHG changed. this engagement has shown members also participated and significant positive outcome. played a key role in motivating 6. Sharing financial and However, if we wish to see local women Ward Members to non-financial information self-governance effectively and articulate their views. The GP has Pro-active disclosure is a new way efficiently performing for its also managed to conduct separate of life in the panchayat. Various people, the people’s quest to meetings between SHG groups kinds of information are available collaborate and challenge the and Ward Members/Mukhiya to now on the panchayat walls panchayat needs to come to discuss issues more openly with and project sites. These include the forefront. Furthermore, the GP. disclosures of the Karyakarini the panchayat’s ability to forge group name, number, meeting linkages would be the keys to Munni Devi (an SHG member) dates of the various committees, success. These would require a explains, “Mahila Mandal aur PMAY house list and waiting significant investment in people’s panchayat mil kar kai kam kar rahe list, funds used, expenditure of capacity and the panchayat’s hai (The SHGs and thepanchayat projects, amount used from the institutional capacity. It also are doing many things together).” 14th Finance Commission, name requires changes in the mind-set She said that now the GS or of the contractor, etc. and attitude of the larger policy the General Assembly, gives its makers and bureaucrats. information in writing at least Territory yet to traverse seven days earlier through the — panchayat to all the citizens. — Additionally, in planning, In the words of Mahatma Gandhi, Shailendra Kumar Singh works with operations and supervision, “The best, the quickest and the PRADAN as an Executive and is based in women SHG members are most efficient way is to build up Koderma district. from the bottom...Every village Surjodoy Nandy and Dhiraj Kumar Mahto involved. All the people work as block co-ordinators and directly engage participate in the planning from has to become a self-sufficient with the 11 panchayats in Hazaribagh and the village level to the panchayat republic. This does not require Koderma districts

56 NEWSREACH JAN_FEB 2019 Gram Sabha meeting on CFR (pg.28)