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February 2014  Volume: 1  Book: 2 

Department of Local Self Government Government of KERALA LOCAL GOVERNMENT SERVICE DELIVERY PROJECT (KLGSDP) www.klgsdp.org           

The Annual Performance Assessment (APA) process of Local Self Government Institutions (LSGIs) in Kerala has been completed. Of the 978 Grama Panchayats and 60 Municipalities in the State, 503 Grama Panchayats and 11 Municipalities were declared eligible for the share of Performance Grant during the year 2013-14. The pioneering process of Annual Performance Assessment of LSGIs under the aegis of Kerala Local Government Service Delivery Project (KLGSDP), which is mandatory for accessing Performance Grant Dr M K Muneer, Minister for Panchayats and Social Justice, speaking at the workshop on APA provided by KLGSDP in 2013-14 and 2014-15, evaluates the the LSGIs that ensuring process is intended to ensure that apart from the representatives of performance of the Grama improvement in service delivery institutionalisation of Performance Assessment firms Panchayats and Municipalities in was one of the key challenges decentralisation is taking place. and the World Bank team. Both the State. faced by the local self Though some LSGIs may not be the sessions were addressed by The KLGSDP conducted two governments in the State. eligible for the Performance Mithra T, Project Director workshops in connection with the Speaking about the recent Grant, they also should strive hard KLGSDP and Abdu Muwonge, publishing of results of APA at government initiative to obtain to achieve the desired target Task Team Leader, World Bank. Municipal House, Thiruvanantha- ISO certification of Grama levels. He said the Government Performance Grant is provided as puram on 30 January and Hotel Panchayats, he said that more was mulling over many schemes in untied funds to Grama Panchayats Mascot on 31 January. The than getting mere ISO consultation with the World Bank and Municipalities in the State as session at Municipal House was certification, the larger target is to that would benefit the LSGIs in part of KLGSDP to enhance their inaugurated by Dr M K Muneer, ensure the necessary procedures the State. The meeting was development spending in areas of Minister for Panchayats and Social are in place in the LSGIs. Likewise, attended by Secretaries of Grama public services including Justice. The Minister reminded the performance assessment Panchayats and Municipalities maintenance of assets. The release of the Grant requires the LSGIs to follow certain basic fiduciary and procedural norms. From 2013-14 onwards, LSGIs are expected to meet a set of Mandatory Minimum Conditions (MMC) assessed annually through a set of performance criteria. The Performance Assessment has two components - the first component assesses compliance with MMC and the second component assesses a broader set of weighted performance criteria, related to key performance focus areas in  $ $ % &&&  N     est with 100.81% followed by with 97.56%. The low- est percentage is at Alappuzha with 71.73%. The overall percent- age of participation is 88%. PA and Training Manuals Based on the approved framework, detailed PA Manual and Training Manual were prepared by the Sutra Consulting, the lead consultant. The training manual contained details regarding trainings to PA firms, Performance audit wing and LSGD officials and software trainings. The Handbook has two Mithra T, Project Director, KLGSDP, speaking at the workshop on APA parts – first part in English and the second part in Malayalam. The the programme, on which LSGIs Following are the broad activities district-level one-day orientation manuals were vetted by the World are scored each year. undertaken for preparation of the training programmes were carried Bank and approved by the Only those Grama Panchayats and framework. out. The target group of the government. Municipalities which meet the Deliberations were held between training programme consisted of APA Software MMCs and the minimum score the World Bank team, the Govern- five representatives from each Based on the approved framework will receive the Performance ment officials, and the PMU. The LSGI – Panchayat President / and manual, software is developed Grant allocation. draft framework was prepared and Municipal Chairperson, Secretary, by the lead consultants. The Assistant Engineer, Accountant, The assessment for the year 2013- was vetted by the World Bank. software is web-based and is being and Plan clerk. 14 was carried out in the following Conduct of pilot field assessment hosted at State Data Centre. areas. was carried out in 15 Grama The programme started on 16 Training to assessors (i) planning and budgeting; Three-day training programme (ii) project execution and Table was conducted for the field service delivery; Assessment areas No. of Scores for assessors. The in-house training MMCs Benchmarks (iii) accounting, financial programme was arranged by reporting and audit; and Planning and budgeting 2 10 PMU. Classroom training, mock exercises, and field-level trainings (iv) participation, transparency Project execution and service delivery 3 40 were provided to them. The and accountability. Accounting, financial reporting and audit 2 25 sessions were handled by PMU Under each area there are few Participation, transparency and Specialists and Lead consultant. Minimum Mandatory Conditions accountability 2 25 Assessment process (MMC) and Performance Bench- Total 100 A mid-assessment review was con- marks which are scored. The de- ducted by the PMU to take stock tails are shown in the Table. of the progress in assessment and The consortium of M/s Sutra Panchayats and 3 Municipalities August, 2013 at district to re-orient the assessors on key Consulting, Bhubaneswar and across the State. A workshop of and concluded on 8 October, 2013 issues. Results of the first round Rajagiri School of Social Science, the stakeholders for finalising the at Kozhikode. of Quality Assessment by the lead is the lead consultant of the framework was conducted. The Participation consultant were discussed and framework was then submitted to APA and the field assessment is Analysis of training details midway corrections were pro- the Government for approval. The conducted by the following firms. revealed that of the 1038 LSGIs, posed during the review. framework was revised incorpo- except two all were represented in Software training  Ms/ Mott McDonald Pvt. rating the suggestions of the Gov- the training programmes. The Ltd. – Southern region ernment. The Government ap- Two-day training on the APA absentee LSGIs are Sholayur  software was arranged by the M/s STEM, Bangalore - proved the final framework to be Grama Panchayat in Middle region followed for Annual Performance PMU. The first day was for the district and Pathanamthitta training of PMU staff and make  Assessment and issued it as a Gov- M/s JPS Associates - Municipality in Pathanamthitta alterations in the software. On the Northern region ernment Order [G.O.(Rt) district. Thus the representation No.1943/2013/LSGD dated second day, assessment firms APA Process of LSGIs in the APA training is were given training. 23.07.2013]. 99.81%. Preparation of Framework Field assessment Training to LSGI officials Altogether 4394 participants from Based on the discussions with the Project Management Unit 1036 LSGIs have attended in 14 Due to the constant follow-up and World Bank and the Government, undertook the task of training programmes. Malap- the co-operation extended by the the lead consultant developed the familiarising the LSGI puram district witnessed the high- firms and the LSGIs, the field-level framework. The MMCs were kept functionaries with the APA est representation with 463 par- Performance Assessment process as it was defined in the Project process. With the aim of ticipants followed by Palakkad dis- could be completed within the Implementation Manual (PIM). equipping the LSGI functionaries trict with 407. The percentage of time frame. LSGI officials Performance Benchmarks were with the APA process and participation level showed that extended their wholehearted co- modified as per the discussions. Performance indicators, 14 is the high- operation during the assessment.

2   February 2014  N       

The two-and-a-half year old Kerala Local District-wise Status of KLGSDP Projects Government Service District No. of Projects Fund Allocation (Total) () Figure 1: KLGSDP Projects 2012-13 Delivery Project     Toal No: of Projects: 11,448 (KLGSDP) was Trivandrum 655 835 formulated with the aim of Kollam 494 643 institutionalising Pathanamthitta 392 606 the decentralisation 625 713 process in the State. Idukki 339 549 The Project, supported by the Alappuzha 625 991 World Bank, Ernakulam 672 1019 1,39,72,79,000 2,83,21,80,000 provides Thrissur 577 861 performance-linked, Malappuram 986 1515 additional discretionary funds Kozhikode 594 878 to the Local Self Kannur 563 823 Government Kasaragod 291 485 Institutions (LSGIs) in the State. Wayanad 166 413 Palakkad 769 1117 During the financial year of 2011-12, Total 7709 11,448 Grama Panchayats were given Rs Figure 2: KLGSDP 2012-13 Figure 3: KLGSDP 2012-13 Project 121.73 crore and Project status – Number status - Fund utilisation Municipalities were given Rs 18 crore. The allocation to Grama Panchayats and Municipalities for the financial year 2012-13 was Rs 246.98 crore and 36.24 crore respectively. A sector-wise break- up of the projects implemented by the LSGIs utilising the Performance Grant is listed here.

A World Bank team led by Task Team Leader !  " #   $  ##  Abdu Muwonge visited Pallikkal Grama Panchayat in Malappuram district in January 2014. Pallikkal is the first Grama Panchayat in Kerala to obtain ISO certification. The team visited Quality Management system, Panchayat Information system, drinking water schemes at Salamath Nagar and Pallikkal, streetlights, conference hall, and computerisation of the grama panchayat office. The team was impressed with the achievements of the Grama Panchayat. K P Musthafa Thangal, Grama Panchayat President and A C Ashokan, Grama Panchayat Secretary welcomed the team and explained the initiatives of the Panchayat.

February 2014   3 %  

Office for Grama Panchayat, Mudakkuzha GP, Ernakulam

Renovated front office of the Koothattukulam GP, Ernakulam

Renovated BUDS School, Cherukavu GP, Malappuram

Drinking Water Project, GP, Thiruvananthapuram

Renovated Municipal Office, Municipality, Malappuram

Open market stall, Pothenkode GP, Thiruvananthapuram

Anganvadi building, Ramamangalam GP, Ernakulam

New Front Office, Vijayapuram GP, Kottayam 4   February 2014 Record Room, Feroke GP, Kozhikode

Agricultural Office, Choornikkara GP, Ernakulam

Office Modernisation and Furniture, Neendakara GP, Kollam

Women’s Canteen, Kayanna GP, Kozhikode Solid Waste Treatment Plant, Women Cultural Piravom GP, Centre, Alagappa Ernakulam Nagar GP, Thrissur

Renovated BUDS School, Ayanchery GP, Kozhikode

February 2014   5 led by Dr M K Muneer, the issues raised at the Gramayathra  %  Minister for Panchayats and Social programme and handed over the Justice, was conducted in three other petitions to officials with % &   Grama Panchayats in the the instruction for quick action. Attappady area – Agali, Puthur, As part of the special Gramayathra and Sholayoor. The programme programme at Attappady, many Gramayathra programme, the The tribal areas in the State face was conducted during September welfare measures were initiated. signature communication unique issues and the solutions 2013 in the following venues: The community kitchen at campaign of the Kerala Local cannot be ordinary. Though Bhoothuvazhi Ooru in Agali Nallasinka Anganvadi was one Government Service Delivery Kerala boasts of a truly evolved Grama Panchayat, Premises of such novel effort. Dr M K Muneer Project (KLGSDP), has been decentralised local governance Muthumariyamman Temple near reminded that the kitchen should spreading its wings to more and system in place, which is hailed Cheerakadavu Ooru in Puthur be treated only as a temporary more Grama Panchayats in the as a role model for the other Grama Panchayat, and Nallasinka arrangement and LSGIs in the State. The latest edition of States, the plight of tribal people in Sholayoor Grama Panchayat. All area should, together with the Gramayathra treaded a different in Attappady area is a pointer to the sessions were marked by support of the State government, path. The programme was the challenges facing the enthusiastic participation by strive for permanent solutions to conducted in the tribal-dominated democratic decentralisation tribal people and other the acute problems facing the Grama Panchayats in the Attappady process. communities. tribal communities. area of the . The Gramayathra programme The Minister took action on many He also stressed that collective ' (      

The Koratty Grama Panchayat in Thrissur district has completed construction of the modern crematorium. The Grama Panchayat with a population of 50,000 was finding it difficult to meet the requirements of the local populace in this regard. Interestingly, the new )  !#  gas cemetery is surrounded by cemeteries of the nearby church and mosque.    ' &  The Minister for Cooperation C N Balakrishnan A workshop was organised at Kerala In- functional areas. He summed up the basic inaugurated the crematorium. The key of the stitute for Local Administration (KILA) on characteristics of a manual: simple and crematorium was handed over by Dr V P 28 October 2013 for national level vetting detailed. It should be simple to understand Sukumaran, Deputy Project Director, KLGSDP of the draft Manual on Procurement, pre- at a glance, but detailed to provide the to the Secretary of Koratty Grama Panchayat. pared as part of the initiative by KLGSDP. rationale. Hence the mandatory provisions The project incurred total expenditure of Rs It was attended by among others national and main steps shall form part of the 33,00,000. Of this, Performance Grant share of experts and representatives of stakehold- content, while detailing can be appended or the Project is Rs 20,00,000, whereas State ers. S M Vijayanand, Additional Secretary, given as separate toolkit. Sanitation Mission contributed Rs 10,00,000 Ministry of Rural Development, Govern- Dr J B Rajan briefed the drafting process of and Own fund share was Rs 3,00,000. The ment of , chaired the workshop and Procurement Manual. Kalesh Kumar, crematorium charges Rs 2,500 for each Dr P P Balan, Director of KILA welcomed Procurement Specialist, WB has made a brief cremation to sustain the project. It is manned the session. presentation on how Manuals can be made by a single staff. As a preparatory step, the English version simple and showed samples from Tamil The surroundings of the crematorium were of the Manual was circulated to the Nadu. T R Raghunandan brought different beautified by planting trees according to the national experts in advance for critical manuals on transparency related topics from birth stars (astrological stars) of the individuals. reading - Kalesh Kumar and Shine Joseph, Karnataka, Vienna, for discussion. Procurement Specialists, World Bank, The session concluded that the drafting team S M Vijayanand, M N Roy, and T R should take into consideration the views Raghunandan. expressed during the workshop. A review of At the outset, S M Vijayanand has the best procurement manuals of other reminded that the decentralised countries (e.g., Philippines) and procurement governance is in a transition stage in manuals, Acts, Rules, of other States Kerala. It is high time the process of (Karnataka, Rajasthan, , and decentralised governance needs to be Tamil Nadu) may be carried out. A scientific institutionalised to deliver better service study of procurement of LSGIs should be to the citizens. He pointed out that held. Following this, the procurement significant need exists for various manuals manual needs to be revisited and redrafted at LGSIs for institutionalising different by KILA.

6   February 2014 efforts should be made from all Sholayoor Grama Panchayat and quarters to make woes of the addressed the elected Attappady area a thing of the past representatives and officials. and make Attappady synonymous The sessions were attended by N with model for tribal development Shamsudeen MLA, S Subbaiyya, in the country. Nodal Officer, Attappady Package, The Minister in the meantime V N Jithendran, Director, Social convened the meeting of official Justice Department, K B Valsala panels constituted specifically for Kumari, Executive Director, finding solutions to the tribal Kudumbashree Mission, issues. He reviewed the progress Ramachandran, District Collector, of the functioning of the K K Usha, President, Block committees. Panchayat, E J Antony, President, He visited Tribal Speciality Agali Grama Panchayat, Maruthi Hospital at Kottathara and Suresh, President, Puthur Grama Dr M K Muneer Nutrition Rehabilitation Centre at Panchayat, Murugan, President, inaugurating the Community Kitchen the Community Health Centre at Sholayoor Grama Panchayat, and in Sholayoor Grama Agali. The Minister also found other officials from various Panchayat time to visit the office of the related departments.

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The Tanur Grama Panchayat of drainage and side protection wall. A three-day international foundation provided by the Malappuram district has The width of the double lane road conference titled International Panchayati Raj system and the completed the construction of the is 7.5m, which has been cambered Conference on Deepening economic foundation provided by 150-metre Tanur-Tirur bypass from centre to sides having a bell Democracy (ICODD) was the SHG movement could come road. The landmark project, mouth entrance of around 8.5m. organised by Local Self together to strengthen democracy implemented during 2012-13, is The drainage for the project is Government Department, and inclusive growth. funded entirely by Performance constructed with depth of 1.50m at Hotel Minister for Panchayats and Social Grant share of KLGSDP. The total and provided with cover slab of Samudra, Kovalam in Justice Dr M K Muneer who cost of the project is Rs 31,00,000. 1m. The cover slab is provided for Thiruvananthapuram from 19 welcomed the gathering said The road starts from Tanur Bus the entire length of the drainage to 21 January 2014. Sixteen Kerala leads in decentralisation, stand and ends at Tanur-Tirur and this will double up as a technical sessions under the and financial freedom to local road. Apart from increasing road footpath for the pedestrian. The conference on various themes bodies has become a boon for poor connectivity, the project aims at drainage is constructed with drain witnessed coming together of and marginalised sections of reducing traffic congestion and holes at every 3m span which take experts on decentralised society. planning and local governance overcrowding caused by the ever care of the water to be drained Planning Board vice-chairman K from across the globe. The increasing traffic. It ensures away from the surrounding areas M Chandrasekhar said that one of representatives of local self saving of half a kilometre distance of the road. the major challenges in government institutions in when compared to the direct road The proposed second phase of the decentralised governance was the Kerala participated actively in access from Tanur main junction project in 2013-14 will connect multiplicity of programmes and the deliberations. to Tanur Bus stand. the road to the new bus stand. The schemes caused by the lack of The road is constructed with cost estimate is Rs 30,20,000. ICODD was inaugurated by Dr convergence of many programmes Mihir Shah, Member, Planning implemented by Central and State Commission on 19 January governments. 2014. He said deepening of Kerala is facing the second democracy and inclusive generation challenges in growth should go hand in hand decentralised governance, Dr M K to achieve quality in delivery of Muneer said while chairing the services at the grassroots level. plenary session. Waste He pointed out that the Kerala management, quality of service experience of women’s self-help delivery, health sector, issues of groups (SHGs) such as the aged, and house construction Kudumbashree can emerge as are key challenges facing the local powerful economic entities governance system in the State, he capable of resisting the market said. forces unleashed by foreign direct investment in the retail He said the Grama Panchayats sector. He said the political should attain self-sufficiency

February 2014   7   February 2014

through effective resource mobilisation. The functional efficiency of panchayats could be increased through empowerment of Gramasabhas, he stated. Prof. M A Oommen, who introduced the theme at the plenary session said Kerala’s decentralised planning is different from the rest of India. Kerala initiated institutional reforms and moved ahead early to devolve powers, responsibilities, and funds to local governments, he added. Dr Mihir Shah, Member, Planning Commission inaugurating ICODD K C Sivaramakrishnan, Dr T M inequality is the biggest problem Delivering the valedictory address taking democracy forward. Thomas Isaac, MLA, Prof. Patrick faced by India. Dr George Mathew of the International Conference, Some of the best minds on the Heller and S M Vijayanand spoke chaired the session. Prof. M A Jairam Ramesh, Union Minister decentralisation sector attended on the occasion. Oommen also spoke. for Rural Development, said that the three-day deliberations. They The session on Transparency and The valedictory session of the Kerala’s record of women’s include: Prof. Patrick Heller Accountability was attended by Conference was inaugurated by representation in the political (Brown University, USA), Say- Aruna Roy, former member, Chief Minister Oommen Chandy. framework has been poor in spite eedul Huq (Director, NILG, Bang- National Advisory Council, John He said that Kerala had become of the achievements in women’s ladesh), Collin Pillai (Programme Samuel, Global Advisor, UNDP the focal point of experiments in empowerment and gender Manager, MILE, South Africa), KC Governance Centre and Nikhil deepening democracy owing to its equality. He stressed that periodic Sivaramakrishnan (Professor, Dey, activist from Rajasthan. egalitarian society. The devolution review and rejuvenation of Centre for Policy Research, New democratic institutions in the Delhi), Dr Joseph Tharaman- Mani Shankar Aiyar, former of funds has helped Panchayati raj galam (Professor Emeritus, Union Minister for Panchayati institutions become more self country was a must. The Central Minister concluded by stating that Mount St. Vincent University, Raj, delivered the special address sufficient. He said that decentralised and centralised democracy can never be taken for Halifax, Canada), Prof. Vinod at the session on Upliftment of Vyasalu (Centre for Budget Stud- planning is required to ensure that granted and the answer to our the Marginalised and Planning. It ies, Bangalore), Prof. S S Meenak- duplication and wastage of weakness is more democracy. is time that people’s involvement shi Sundaram (Honorary Visiting resources are avoided. Minister for Panchayats M K in district level planning needs to Professor, Institute for Social and Muneer, who presided over the be widened for deepening The Chief Minister pointed out Economic Change, Bangalore), session, said that all steps would democracy, said Aiyar. He lauded that e-governance is the future of Michael Haney (Operations Advi- the Kerala model of District fostering local governance in the be taken to increase the autonomy sor, World Bank), Lise Grande Planning and said the Kerala State. He emphasised that efforts of local self governments by (Resident Coordinator, United Model District Planning later should be made to devise innova- strengthening grama sabhas and Nations), Prof. Jeemol Unni (Di- turned out to be a textbook model tive tools to ensure people- to ensure that actual decision rector, IRMA), Prof. K P Kannan, for the Planning Commission. friendly governance. Strengthen- making was done by the people. Dr George Mathew, Kutty Aha- P Sainath, the Rural Affairs Editor ing democracy required increased Minister of Rural Development K med Kutty, C P John, Santosh of said that public participation and Kerala C Joseph said that Kerala was not Mathew, Dr K N Harilal, Dr Jose neoliberalism can undermine had been a pioneer in this, he satisfied with its progress though Chathukulam, and Dr Joy Elam- democracy severely. Growing pointed out. it had taken up the mission of on.

Kerala Local Government Service Delivery Project (KLGSDP) prepared 11,000 copies of the tabletop calendars of 2014. Each page of the Calendar features successful projects completed under KLGSDP. The calendars were distributed to the Grama Panchayats, Municipalities, and other Photo Panels of KLGSDP Projects displayed at the Government stakeholders. Secretariat Annexe in Thiruvananthapuram

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