Need Assessment Study of Urban Local Bodies and Panchayati Raj Institutions, Rajasthan Conducted by Shiv Charan Mathur

Need Assessment Study of Urban Local Bodies and Panchayati Raj Institutions, Rajasthan conducted by Shiv Charan Mathur

Social Policy Research Institute, Jaipur

Dear Sir/Madam

The Fourth State Finance Commission entrusted the responsibility of conducting a study on “Need Assessment of Urban Local Bodies and Panchayati Raj Institutions” to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. The objective of the study is to ensure that devolution is made in accordance with the ground realities and the funds so devolved are efficiently utilized by the Local Bodies for core functions in their respective area.

The Fourth State Finance Commission is expected to present it’s final report to Her Excellency, the Governor of Rajasthan latest by30th September, 2013. Before finalization of the report, Commission invites your valuable views/suggestions on the recommendations/findings contained in the Study Report.

The Study Report is as follows:

Need Assessment of U LBs & Panchayati Raj Institutions

Contents

Foreword iii Preface & Acknowledgements iv List of Acronyms v-vi

1. Introduction 1-26

2. Research Methodology 27-35

3. The Status of Panchayati Raj Institutions (PRIs) 36-65

4. The Status of Urban Local Bodies (ULBs) 66-112

5. Norms for the Core Functions for the PRIs 113-136

6. Norms for the Core Functions for the Urban Local Bodies 137-157

7. Human Resource and Staffing in Urban Local Bodies 158-171

8. Success Stories 172-189

9. Summary & Suggestions 190-204

Annexures 205-263

1. Tools for PRIs 205-229

2. Tools for ULBs 230-263

Need Assessment of U LBs & Panchayati Raj Institutions

Foreword

Under the 73rd and 74th amendments of the Constitution, a mandatory provision was made for constituting a Finance Commission by the State Government to review the financial position of the Local Bodies - both urban and rural. It is praiseworthy that the Fourth State Finance Commission of Rajasthan under the Chairmanship of Dr. B.D. Kalla, took the initiative of conducting an in-depth enquiry into the physical and financial needs of the local bodies in major sectors and the funds required for each sector thereof. The Commission delegated the study on the Need Assessment of Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. This included assessment of the financial needs, examination of the efficacy and gaps in implementation of the core functions and suggesting physical and financial norms for these functions.

The present report is the first of its kind in the State of Rajasthan and I am sure that this would immensely help the Finance Commission in evolving a formula for equitable distribution of the grants to be given to the third tier of governance. Further, the report also comes up with suggestions to enhance the efficiency of the local bodies so that the benefits really accrue to the common people as desired by the Constitution of India.

(Dr. Sudhir Varma) Director, SCM SPRI

iii

Need Assessment of U LBs & Panchayati Raj Institutions

Preface & Acknowledgments

Needs assessment is practically ubiquitous today among planners and designers, often identified as the first step in any planning or design process. The discrepancy between the present condition and desired condition is measured to appropriately identify the need. The need assessment is a process undertaken with an aim to enhance the efficiency of a system. The Fourth State Finance Commission entrusted the responsibility of Need Assessment of Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. The aim is to evolve formulae for an equitable allocation of grants to these decentralized development units - panchayats and urban local bodies. The task was a huge challenge keeping in view the large scope as well as a number of sectors that needed to be consulted during the process of the study.

Keeping in view, the objectives and research questions, detailed tools were designed, field tested and adopted to the local settings. A two day intensive training programme was conducted at the Institute for the investigators. The investigators were then put on observed field work. Data was collected according to the prescribed methodology for the study. Data thus collected, were carefully entered, cleaned and analyzed. The findings have been tabulated and suitably documented. We believe the findings would be useful for the State Finance Commission for ensuring that the devolution is made in accordance with the ground realities and assure that they are efficiently utilized.

On behalf of the institute, I express our deep sense of gratitude to Hon‘ble Dr BD Kalla, Chairperson, Fourth State Finance Commission for trusting our abilities and supporting us throughout the study. The support of the SFC Members, Shri Raj Pal Singh Shekhawat and Dr JP Chandelia are gratefully acknowledged. A special mention of Dr PL Agarwal, Member- Secretary, SFC whose interest and involvement in the Study was a source of inspiration for us. Thanks are also due to Shri SS Rajawat and SL Jain for their valuable support. The study would not have been competed without the support of the elected representatives at all levels, CEOs, BDOs, EOs and officials of the PRIs and ULBs who continuously supported us by providing the required information despite their busy and demanding schedules.

At the Institute, we are indebted to Shri Pradeep Mathur, Chairman for his support. Wirds fail me to express the gratitude to Dr. Sudhir Varma, Director, SCM SPRI for his constant guidance, supervision and contribution in writing the report. Thanks are due to the team membersespecially Ms Sonu Pareek, Ms. Neha,Shri Pradeep Sharma, Shri Yogeshwar Singh, Shri Ranveer Singh, Shri Yogesh Chhipa, Shri Ramakant and Shri Vinod Kewalramani.

(Manish Tiwari) Joint-Director, SCM SPRI

Need Assessment of U LBs & Panchayati Raj Institutions

List of Acronyms

BOT Build Operate and Transfer BPL Below Poverty Line BSR Basic Scheduled Rate CC Road Cement Concrete Road CEO Chief Executive Officer CFC Central Finance Commission CFL Compact Fluorescent Lamp DDP Desert Development Programme DLB Department of Local Bodies DPAP Drought Prone Area Program DRDA District Rural Development Authority EFC Eleventh Finance Commission EO Executive Officer FGD Focus Group Discussion GOI Government of India GOR Government of Rajasthan GPF General Provident Fund JDA Jaipur Development Authority JMC Jaipur Municipal Corporation LED Light Emitting Diode MNRE Ministry of New and Renewable Energy MNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme NIUA National Institute for Urban Affairs NTR Net Tax Revenue O&M Operations and Maintenance PHED Public Health and Engineering Department PPP Public-Private Partnership PRI Panchayati Raj Institutions PSP Single Phase Pump

Need Assessment of U LBs & Panchayati Raj Institutions

PWD Public Works Department RIICO Rajasthan State Industrial Development and Investment Corporation RIUA Rajasthan Institute for Urban Development RUIDP Rajasthan Urban Infrastructure Development Project RLB Rural Local Bodies RPSC Rajasthan Public Service Commission RSEB Rajasthan State Electricity Board RVVNL Rajya Vidyut Vitran Nigam Limited SFC State Finance Commission SGSY Swarn Jayanti Gramin Swarozgar Yojana SHG Self Help Group SPV Solar Photovoltaic SWM Solid Waste Management TAD Tribal Area Development TFC Thirteenth Finance Commission UDT Urban Development Tax UIT Urban Improvement Trust ULB Urban Local Bodies

Need Assessment of U LBs & Panchayati Raj Institutions

Introduction 

Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) have acquired Constitutional status after the enactment of the Constitution (Seventy-third and Seventy Fourth) Amendment Act. The Amendment Act' 92 in Part IX and IXA has made mandatory provisions in Article 243-I for constituting a Finance Commission by the Government of the State to review the financial position of the panchayats and to make recommendations to the Governor. The principles which should govern the review are as follows:

A (i) Distribution between the State and the panchayats of the net proceeds of the taxes, duties, tolls and fees leviable by the State which may be divided between them under this Part and the allocation between the panchayats at all levels of their respective shares of such proceeds

(ii) Determination of the taxes, duties, tolls and fees which may be assigned to, or appropriated by, the panchayats.

(iii) Grants-in-aid to the panchayats from the Consolidated Fund of the State.

B Suggest measures needed to improve the financial position of panchayats.

C Any other matter referred to the Finance Commission by the Governor in the interests of sound finance of the panchayats.

Need Assessment of U LBs & Panchayati Raj Institutions

Article 243 (y) also makes similar provisions analogous to Article 243-I for constituting a Finance Commission to review the financial position of the municipalities and to make recommendations to the Governor as in the case of panchayats.

The present Fourth State Finance Commission under the esteemed leadership of Hon‘ble Dr. BD Kalla has desired to conduct a scientific inquiry into the present minimum physical and financial needs of these bodies, funds required and the financial gaps that need to be filled with the support of the grants by the Commission. The aim is to evolve formulae for an equitable allocation of grants to these decentralized development units- panchayats and urban local bodies.

The Commission had asked the Shiv Charan Mathur Social Policy Research Institute, Jaipur vide their letter dated 29th February 2012 to take up a Need Assessment Study of core functions of both the Urban Local Bodies as well as Panchayati Raj Institutions. The following are the functions to be studied:-

(i) To take up a need assessment study of the core functions of the urban local bodies and the panchayati raj institutions of the State. The core functions, which the Institute has been asked to study, are the following:-

(a) Cleaning of waste water drainage in public places (including public conveniences). (b) Disposal of solid waste (c) Public lighting (d) Sewerage (e) Maintenance of roads, public properties, public parks and community centres. (f) Maintenance of cremation and burial grounds (g) Providing drinking water (h) Public health and sanitation

Need Assessment of U LBs & Panchayati Raj Institutions

The Institute was expected to

i. Make an in-depth assessment of financial needs for implementing these core functions

ii. Examine the efficacy and gaps in the implementation of these functions &identify the problems faced by the PRIs and ULBs

iii. Suggest physical and financial norms for fulfilling the core functions

iv. Suggest norms for allocation of funds by the State Finance Commission

v. Suggest a staffing pattern for the ULBs and thePRIs to enable them to perform the core functions regularly and effectively.

The present chapter details the present scenario of socio-economic development of the State with a focus on the identified core issues, a general summary of the recommendations of the earlier state commissions and a review of literature.

About the State

Rajasthan, the largest State in the country in terms of geographical area, is located in the north-western part of the country. It has a geographical area of 3,42,239 sq.km, which constitutes 10.41 per cent area of the country and 5.67 per cent of national population (Census, 2011 : Provisional Population Tables).Physiographically, the State can be divided into major four regions, namely the western desert; and sandy plains, the Aravalli hills: running south-west to north- east starting from Gujarat and ending in Delhi, the eastern plains: with rich alluvial soils and the south-eastern plateau. Mahi, Chambal and Banas are the three major rivers of the State. The State has varied climatic conditions ranging from the semi- arid to the arid. It is administratively divided into 7 divisions and 33 districts.

Need Assessment of U LBs & Panchayati Raj Institutions

State Profile

Rajasthan has 33 districts that are divided into 244 tehsils, 248 panchayat samities, 9,177 village panchayats and 184 municipalities (Statistical Abstract, 2011 DES, GoR). The salient features of the State vis-a-vis India are given in the table below:

Table 1.1

Indicator Source Rajasthan India

Total population Census 2011 6,86,21,012 1,21,01,93,422 Density (Per Sq. Km.) Census 2011 201 382 Decadal Growth (%) Rate Census 2011 21.44 17.64 Rural Decadal Growth Rate Census 2011 19.05 12.18 Urban Decadal Growth Rate Census 2011 29.26 31.80 Crude Birth Rate SRS 2011 26.7 22.1 Crude Death Rate SRS 2011 6.7 7.2 Total Fertility Rate SRS 2011 3.1 2.5 Infant Mortality Rate SRS 2011 55 47 Rural 61 Rural 51 Urban 31 Urban 31 Maternal Mortality Ratio SRS 2007 – 09 388 212 Sex Ratio Census 2011 926 940 Child Sex Ratio (0-6 Years) Census 2011 883 914 BPL Population (%) BPL Census-02 22.66 % NA Scheduled Caste population Census 2001 9.69 million 166.64 million Scheduled Tribe population Census 2001 7.10 million 84.33 million Literacy Rate Census 2011 67.06 74.04 Female Literacy Rate Census 2011 52.7 65.5 Rural Female Literacy Rate Census 2011 46.3 58.8 The above table reveals that the socio-econmic indicators of the State still lag behind thenational averages. Sex ratio of Rajasthan has shown an increasing trend from 921 in 2001 to 926 in 2011. Yet it is significantly less than the sex ratio of India i.e. 940 in 2001. The Child sex rate is worse at 883. The rural women the literacy rate is any which becoming a major hurdle in conveying health information. The state has a literacy rate of 61.03 in 2001, which is also lower than national average of 65.38 recorded

Need Assessment of U LBs & Panchayati Raj Institutions in 2001. The literacy rate for females is only 52.7 for rural women the literacy rate is only 46.3 which is becoming a major hurdle in conveying health information.

Three primary demographic indicators elicited in recent nationwide survey have revealed maternal mortality ratio of 388 per lakh live births, (SRS 2004-06) infant mortality rate of 55 per thousand live births, and a total Fertility Rate of 3.1 (SRS 2011).

Growing Needs of the Urban Population

As per details from the Census 2011, Rajasthan has a population of 6.86 crores, an increase from 5.65 crores in 2001. The population growth in this decade was 21.44 percent while in the previous decade it was 28.33 percent. The pace of growth has slowed down, but isstill higher than the all India level. The population of Rajasthan formed 5.67 percent of the Indian population in 2011. In 2001, the figure was 5.49 percent. Out of a total population of Rajasthan, 24.89% people live in urban towns, population of which, in the last 10 years has increased by 29.26 percent. The rural population growth rate recorded for the decade (2001-2011) was 19.05%. The rate of growth in the urban area (29.3) is far more than the rural area.

Districts having the highest urban growth rates in 2011 are Kota (60.30), Jaipur (52.51), Ajmer (40.09), Jodhpur (34.30), Bikaner (33.95), Churu (28.24) and Ganganagar (27.20). The districts which experienced the largest migration from rural areas to urban were Kota, Baran, Alwar, Jaipur, Sikar and Rajsamand. Looking to the fast growing minimum needs of the urban areas in the core sectors these fast growing districts may need special provision from the State Finance Commission.

Panchayati Raj Institutions

Though the Panchayati Raj Institutions have been in existence in India since times immemorial, they have not yet achieved the dignity of empowered bodies at the village level owing to several reasons. Perhaps they were more powerful before

Need Assessment of U LBs & Panchayati Raj Institutions the formal Panchayati Raj system came into existence on 2nd October, 1959 which was followed by the 73rd Constitutional amendment in 1992. The period between 1959 and 1992 was merely symbolic with the idea of community development at its peak – may be to fulfill Mahatma Gandhi‘s dream of village governance. The so called elected bodies during this period suffered from prolonged supersessions resulting in irregular elections as the Parliament and the Legislative Assemblies feared erosion of their own political and administrative powers. The elected Panchayati Raj bodies had extremely insufficient representation of weaker sections like scheduled castes and scheduled tribes and women. Women perhaps were present only as ornaments and were co-opted because hardly any was ever given a ticket to fight elections. There was inadequate devolution of powers and almost no financial resources. This was totally contrary to the Directive Principles of State Policy which stated that the State shall take steps to organize village panchayats and shall endow them with such powers and authority as may be necessary to enable them to function as units of self-governance.

Keeping in view the historical blunders committed in the earlier experiments and the the growing demand for decentralized governance system in a globalised era, the Central Government in 1992 introduced the 73rd and 74th Amendments to the Constitution. Many provisions were incorporated under the Amendments with the intention of making panchayats and urban local bodies as self-governing institutions.

However, we would like to emphasize that self-governance in the spirit of the Constitution is missing even after 20 years of the amendments. The only feature distinguish is regular elections to these bodies. The State Finance Commissions have also come into existence and are devolving funds to the third tier every five years.

Another important reason for the Constitutional amendments was the reservation for women in the third tier of local governance. This was a provision brought about specially for bringing women as major policy planners at that level so that they may benefit directly from the development process. It meant that a

Need Assessment of U LBs & Panchayati Raj Institutions proportionate grant from the State Finance Commissions should be spent for improving their status.

It has been proved that the concept of core functions for women is different from that of men. It may be pointed out that rural women might give the topmost priority to drinking water followed by naalis flowing through the internal village roads and men to public lighting and improving internal roads on which they ply their animal or motor driven vehicles. Similarly, the urban women may prioritise solid waste management and sanitation compared to men again preferring road lights followed by public parks.

The funds flowing from the state or central level, not linked with any programme or scheme, are very meagre and lack any devolution design. The transfers are made at the convenience and mercy of State governments, sometimes as when a financial year is ending.

A look at the financial position of Panchayati Raj districts in Rajasthan

The following tales indicate the financial status of PRIs in Rajasthan and the poor efforts made to generate sources of own income. However, we cannot blame only the PRIs for poor local tax efforts. They hardly have any fiscal autonomy.

Table 1.2 Receipts from the State Government/DRDA

S.No. Year Zila Parishad Panchayat Samiti Receipts from Own Revenue Receipts Own the State from the Revenue State 1 2005-06 28222.00 166.81 50078.23 995.24 2 2006-07 30515.83 229.47 52627.28 996.57 3 2007-08 41406.97 234.19 45016.24 846.76 4 2008-09 57219.91 389.24 46095.24 992.01

Need Assessment of U LBs & Panchayati Raj Institutions

5 2009-10 79012.90 205.35 44478.41 1233.98 Total 236377.61 1225.06 238295.40 5064.56

(` in lakh)

Source:Memorandum for IVth SFC, on the basis of information from 32 Zilla Parishad & 22 Panchayat samities The above table proves the near total depending on the State Government for funds. The own revenue of the Zila Parishad was mere 0.5 percent of the total Receipts from the State while it was about 2 percent at the panchayat samiti level.

Table 1.3 Grant Received by the PRIs during 2005-06 to 2009-10 (` in lakh) 2005-06 2006-07 2007-08 2008-09 2009-10 Total Salary and Allowances 13495.92 13064.32 17462.58 24089.00 29950.08 98061.90 SFC - III 15757.00 18000.04 18010.00 18010.00 49079.00 118856.04 TFC 24600.00 22293.75 14606.25 36900.00 24600.00 123000.00 Other Schemes 78300.23 83143.11 86423.21 103315.15 123491.31 474673.01 Octroi Reimbursement 476.00 476.00 476.00 476.00 476.00 2380.00 Total 132629.00 136977.22 136978.04 182790.15 227596.39 816970.95 Source:Memorandum for IVth SFC, on the basis of information from 32 Zilla Parishad & 22 Panchayat samities

The above table reveals that the grants received by the PRIs show an increasing trend from 2005-06 to 2009-10. The major heads include scheme grants (58.1%), SFC and TFC Grant (29.6%) and salary component (12%). It indicates that the capacity of the PRIs must be enhanced to effectively utilize increasing funds being allotted to the PRIs. The Finanace Commission Grants are also an important source of of grants to the PRIs and it must be ensured that they are untilized efficiently so as to become a source of development in the rural areas.

It is also a worry that the expenditure incurred by these bodies is far less than the meagre funds provided. The following statement for the years 2005-06 to 2009-10 reflects it:-

Need Assessment of U LBs & Panchayati Raj Institutions

Table 1.4 Income-Expenditure statement in Panchayati Raj Institution in Rajasthan

(` in lakh) SN Head Zila Panchayat Parishads Samitis 1. Income in Last Five Years 1. Tax Revenue 467.06 939.91 2. Non Tax Revenue 758.00 4124.65 Total (A) 1225.06 5064.56 2. Receipts from the State Government/DRDA (B) 236377.61 238295.40 Total Receipts (A+B) 237602.67 243359.96 3. Expenditure in Last Five Years 1. Salary and Allowances 13043.36 75459.56 2. Expenditure Development Works 144960.35 150821.47 3. Expenditure on Maintenance 709.14 2676.19 Total 158712.85 228957.22 Source: Department of Rural Development & Panchayati Raj, GoR

It is, obviously, a reflection in the efficiencies in execution of projects by these bodies. It is indicated that a review of the capacity of the staff available to these bodies needs to be carried out.

Urban Local Bodies

The Local self- government institutions have always existed in India in one form or another. The present form of urban local government owes its genesis to the British rule. The first such body called a Municipal Corporation was set up in Madras in 1688 and was followed by the establishment of similar corporations in Bombay and Calcutta in 1762. The tradition of local service delivery being the

Need Assessment of U LBs & Panchayati Raj Institutions explicit mandate for local government began with Samuel Laing, member of the Viceroy‘s Council, in the Budget Speech (1861-62) proposing that local services should be based on local resources. Lord Mayo‘s Resolution of 1870 introduced the concept of elected representatives in the municipalities. Lord Ripon is considered to be the founding father of urban local government as he devised the concept of municipal authorities as units of self-government. His resolution of 18 May 1882 on local self-government dealt with the constitution of local bodies, their functions, finances and powers and laid the foundation of local self-government in modern India. Since then the structure of municipal bodies has remained by and large the same even though the number of urban areas has increased and their problems have become more and more complex.

After independence, the Constitution of India was framed on federal principles. Indian Constitution divided the government functions in three lists: centre, state and concurrent. Local government bodies are covered in the State List. Initially the extent of a municipality‘s power as well as the extent of government control over a municipality/ municipal council depended on the statute enacted for its creation. Presently, the statutes confer wider regulatory and supervisory powers on the state government. This is due to two reasons: firstly, the Constitution does not demarcate the power and the duties of the municipal authorities and secondly in the absence of any clear-cut demarcation, it is obvious that state governments will tend to control municipal authorities.

The Rural-Urban Relationship Committee set up by the Government of India in 1963, pointed out that the local governments should not merely remain instruments of political education and civic conscience but should play a role in the promotion of social and economic development of local communities as well as be an integral part of the Central Government. Entry 5 of the State list in the Seventh Schedule of the Constitution of India gives legislative powers to the State with regards to municipal laws, establishments, constitution, and powers of local governments.

Need Assessment of U LBs & Panchayati Raj Institutions

The functions of municipalities even during the British raj included public work, maintenance of roads, provision of lighting, medical facilities and education, etc. Today, sanitation is the biggest core function of urban local bodies. In Rajasthan, health, education and drinking water are not in their domain.

As mentioned above, the financial position of local bodies has been very poor in relation to the services and duties required of them ever since they came into existence during the British Raj. In the opinion of the Simon Commission the main causes of failure of local self government were lack of trained staff, inadequate efforts of elected representatives in tapping resources through local taxes, and lack of consistency between amount of grant-in-aid and financial responsibilities. All these drawbacks still persist. With growing urbanisation, the concerns for governance in the urban areas have assumed greater importance. Rajasthan ranks twenty first in India in terms of urbanization. Rapid urbanisation has led to an alarming deterioration in the quality of life of urban dwellers, who have to cope with poor sanitation and disposal of solid waste, water shortage, pollution, poor transport system, frequent epidemics, inadequate health facilities etc. Sewerage, sanitation, waste water disposal and management of solid waste in the cities are dismal.

Table 1.5 Municipalities in Rajasthan

SN Level Numbers 1. Municipal Corporations 5 2. Municipal Councils 30 3. Municipal Board Grade II 19 4. Municipal Board Grade III 58 5. Municipal Board Grade IV 72 Total 184 Source:Annual Report, LSG Department, Government of Rajasthan, 2012

Presently, there are five Corporations, namely; Jaipur, Jodhpur, Kota, Ajmer and Bikaner. The other categories are: - First class Municipal Councils (30) having a population between one and five lakh. In his budget speech 2012 the Hon‘ble CM announced all the Municipalities of District Headquarters were to be treated as Municipal Councils thus raising the number of Municipal Council from 13 to 30. Municipal Boards having a population below one lakh are further sub-divided into

Need Assessment of U LBs & Panchayati Raj Institutions

(a) Second category (19) with population between 50000 to 99999 or Municipalities at the District Headquarters (b) Third category (58) with population between 25000 and 49999 (c) Fourth category (72) with less than 25000 people.

Financial Condition of Urban Local Bodies

While the expenditure responsibilities of municipalities are increasing day by day, their own efforts for revenue generation have more or less remained stagnant. There is a complete mismatch between the expenditure responsibilities of urban local bodies and their revenue augmentation efforts. Even after the 74th Constitutional Amendment, the financial position of the municipal institutions in Rajasthan has not improved commensurate with their functions and responsibilities.

Further, the position of the smaller municipalities is much worse, and at times, they find it difficult to even meet their establishment costs. Their performance has been dismal with regard to augmentation of resources to carry out these functions. Even the statutory avenues of raising resources remained either unexploited or under exploited, due to complete apathy of the public representatives to resort to revenue augmentation measures. The ULBs with inadequate taxation efforts, coupled with inefficient financial management, render the municipal services far from a satisfactory level. One major hurdle faced by the ULBs is that they do not have anything worth to tell the people on the quality of services provided by them to ask for fresh user charges.

In spite of this indifferent attitude of the local bodies, the government is continuously pouring money into the ULBs without suitable returns from them in areas like sanitation, collection and disposal of waste, street lighting, sewerage disposal, maintenance of municipal roads, etc. The poor performance of the ULBs is in clear violation of the 74th Amendment which had required suitable action on all

Need Assessment of U LBs & Panchayati Raj Institutions these functions. SFC may like to decide to uphold the Constitutional obligation and link its grants to a certain level of satisfactory work done by the recipients.

Today, with constantly bickering elected members in local bodies, it has become extremely difficult to achieve even the minimum level of satisfaction in the urban areas like manual scavenging, municipal roads, sanitation, sewerage, street lighting, parking and public conveniences. In-fighting among the elected representatives has led to most of the funds allocated remaining unutilized as may be seen from figures below:

Table 1.6

(` in lakh)

SN Type of Body Income Expenditure % Utilisation (2011-12) (2011-12) 1 Municipal Councils 14811.93 7773.37 52.48 2 Municipality Grade II 4907.38 4681.76 95.4 3 Municipality Grade III 2006.45 1273.65 63.5 4 Municipality Grade IV 1108.06 930.31 83.9 Source: Department ofUrban Local Bodies, GoR

Efforts to generate own income have also been pathetic. The following figures show it:

Table 1.7 Position of own Income in total Budget of the ULBs in Rajasthan

(` in crore)

Year Budgeted Actual Amount including Own income Percentage Amount Tax Advances 2008-09 2908.11 1730.35 93.14 5.38 2009-10 3497.72 1751.22 112.00 6.4 2010-11 3334.73 1990.00 317.00 1.6 Source: Department ofUrban Local Bodies, GoR

The Earlier State Finance Commissions

The Zakaria Committee report identified the essential function to be discharged by ULBs and the requirement of financial resources for discharging these

Need Assessment of U LBs & Panchayati Raj Institutions functions. Since these estimates related to the year 1956-57, the National Institute of Urban Affairs, in their report on Urban Development Strategy for the State of Gujarat Volume-I, revised the cost of these core functions to 1990-91 prices. This report also provided the low and high norms of thePlanning Commission These are as under:-

Table 1.8 Norms of the Earlier State Finance Commissions

S.No. Core Services Norms of Zakaria Rs. /Capita Planning Committee as per Commission Norms Class of ULBs Low High A 556 464 696 B 642 1 Sewerage C 385 D 291 E 240 A 249 114 232 B 223 2 Storm Water Drains C 189 D 171 E 146 3 Solid Waste Disposal NA 58 93 A 600 464 696 B 351 4 Roads C 249 D 180 E 137 A 214 139 139 B 189 5 Street Lighting C 171 D 163 E 124 Source: Urban Development strategy for the state of Gujarat Vol.I, NIUA, 1995 A. Cities with population of 5 to 20 lakh. B. Cities with the population of 1 to 5 lakh C. Towns with the population of 50000 to 1 lakh D. Towns with the population of 20000 to 50000 E. Towns with the population below 20,000

Need Assessment of U LBs & Panchayati Raj Institutions

The First State Finance Commission

The First State Finance Commission adopted the norms of the Zakaria Committee as indexed in the report of Urban Development Strategy for Gujarat except for Solid Waste Management where higher norms of the Planning Commission were adopted.

The First State Finance Commission worked out a total resource requirement for all kinds of ULB‘s (treating Jaipur in B Class) at Rs.2874 (per capita) and after deducting the income, reached the resource gap of Rs.1706.01 as follows:

Table 1.9 Resource Requirement as per the First SFC

Type of ULB Roads Street Solid Drains Total in ` Lighting Waste Disposal Corporations 351 189 93 223 856 Councils 249 171 98 189 667 Class II 180 163 58 171 572 Class III 137 124 58 146 465 Class IV 104 87 58 125 374 Source: First State Finance Commission, Govt. of Rajasthan, Jaipur

The Commission recommended that these bodies should exploit their own resource base and fixed targets for additional resource mobilization also and worked out a per capita total deficit of Rs.995/-. Based on the gap assessment, a total deficit of 349.18 crores was calculated for the first year.

The First State Finance Commission also recommended a 2.18% share in the net tax proceeds of the state taxes to be devolved on the PRIs and ULBs. The amount so devolved was to constitute a divisible pool from where distribution between PRIs and ULBs was to be made as per their population ratio 3.4:1. In all, an amount of Rs.305.60 crores to PRIs and Rs.89.890 crores to ULBs were recommended to be devolved over the period from 1995-96 to 1999-2000.

Basic objective underlying funding pattern:

Need Assessment of U LBs & Panchayati Raj Institutions

(i) To incentivize acceleration of local efforts in mobilizing resources. (ii) Judicious employment of funds to bring about balanced growth. (iii) To recognize good work done by some ULBs to promote excellence.

The First State Finance Commission further recommended some incentive grant by way of cash awards for Best Performance at State and Divisional levels for ULBs. At the State Level one award for Corporations of Rs five lakh and three for Councils (Rs.five lakh, three lakh and one lakh) were proposed. Similarly at the Divisional Level for Class II Municipalities six awards (one in each division) of Rs. Five lakh, 12 for Class III First and Second in each division for Rs. five lakh and second for Rs. three lakh, and Class IV Awards (3 in each division), first of Rs.5 lakh, second for Rs.3lakh and third for Rs. two lakh were proposed. This was not an additional grant but was from the divisible pool for the ULBs. The cash award was to be utilized for development works only. It was to be performance linked in revenue earnings and services rendered to the people in terms of quality and quantity.

The criteria for assessment of performance were –

(i) The ULB to achieve targets fixed for additional resource mobilization.

(ii) Establishment expenditure not to exceed 10% of total expenditure in case of corporations, 15%, in case of councils and 20% in case of Boards.

(iii) Norms in respect of sanitation, street lighting and urban roads were to be fixed for earning the award.

(iv) The state was to issue strict instructions to ensure utilization of the amount of cash awards only on development works.

The Second Finance Commission

The Second State Finance Commission fixed norms and worked out requirement of funds of PRIs as under:

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Table 1.10 Second SFC Norms for Gram Panchayat

(` in crore) SN Name of Activity Norms / Criteria Adopted Funds required For five for one year years 1. Street Lighting No. of electrified villages 18.78 93.90 36677. 10 poles per village. 40 watt bulb per pole. 10 hours lighting per night. Rs.3.30 Unit Cost 146 Units consumption per pole per year Rs.3.30 x 146 = Rs.482 per pole x 10x36677 =17.68 crore per year + life of a bulb 4 months, 3 bulbs per pole per year.Cost of bulb Rs.10/-. Total requirement Rs.1.10 crore. 2. Sanitation Two labour per day @ Rs. 37200x9189 = 170.90 60/- per day per panchayat 34.18 for 300 days in a year + 120 for material = Rs.37200/- per g.p. 3. Maintenance of Roads 11500 km @ Rs24000 perkm 27.60 138 4. Local Maintenance and Rs.30,000/- per g.p. annually 9180x30,000=2 137.85 Office Administration 7.57 charges 5. Maintenance of Public Rs.50,000/- per g.p. 9189x50,0= 329.75 properties, Burial, 45.95 Cremation grounds, Maintenance of

Need Assessment of U LBs & Panchayati Raj Institutions

schoolsetc. 6. Infrastructure Rs.2.20 lac one time 9189x2.20 2.216 provision for construction of public utilities – toilets, bus sheds, water huts 7. Maintenance of Rs.4000/- per g.p. per annum 9189 x 400 = 18.40 accounts as per EFC 3.68 8. Data base development 7.35 as per EFC Total 998.31

Table 1.11 Second SFC Norms for Panchayat Samitis

(` in crore)

SN Name of Activity Norms / Criteria Adopted Funds required For five for one year years 1. Maintenance of Assets Rs.5000/- per panchayat samiti 1.19 5.95 - Buildings and other Assets 2. Data base 0.16 development as per EFC 3. Maintenance of Rs.4000/- per p.s. per annum 0.09 0.45 Accounts as per CFC 4. Establishment 65.00 Total 71.56

Table 1.12 Second SFC Norms for Zila Parishads

(` in crore)

SN Name of Activity Norms / Criteria Adopted Funds required For five for one year years 1. Maintenance of Assets - Rs.50,000/- per z.p. per 0.16 0.80 Zila Parishad Buildings annum 2. Data base Development 0.03 (EFC)

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3. Training of Public Rs.50,000/- per panchayat 1.19 5.93 Representatives samiti per annum 4. Incentive to g.p. for 12.57 Training 5. POL Rs.1 lac per z.p. per annum 0.32 1.60 Total Zila Parishad 29.25 Grand total of all PRIs 1099.12 Less Grant recommended by EFC 490.95 Net requirement 608.17

The norms determined for PRI institutional for various services were based on estimates which were fairly old and need to be re-determined keeping the present cost for labour etc., Maintenance cost for buildings has to be determined as per norms of maintenance fixed by PWD.Norms for street lighting would vary as per size of the village and population.

For Urban Local Bodies

The Second State Finance Commission also worked out the requirement of funds for core civic services as per norms set up by Zakaria Committee and the Planning Commission.The requirement of funds so worked out were reduced by the own income of ULB‘s.The gap in resources was worked out accordingly. It was Rs.406.08 crores for the year 1999-2000.

The Second Finance Commission did not recommend the entire gap to be bridged through devolution from State net tax revenue. It observed that since the requirement of funds for discharging core civic services is quite large, it ought to be met from plan funds including centrally sponsored and externally funded projects. The devolution recommended was 2.25% of net tax revenue.

I & II SFC’s

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For distribution of divisible funds among districts PRIs, the first SFC recommended the criteria of incidence of poverty of the district, total rural population and population in non-DDP /non DPAP/non TAD blocks for distribution of development grant and for other grants, the criteria was mainly population.

The second SFC enlarged the scope and recommended the following parameters and their weights for distribution of entire additional transfers of funds to PRI institutional at all the three tiers.

Table 1.13 Parameters for Devolution by the Second SFC

S.No. Parameters Weight

1. Population 80%

2. Geographical area 10%

3. Poverty – number of BPL families 5%

4. Level of Literacy 5%

Source: First & Second State Finance Commission, Govt. of Rajasthan, Jaipur

The Third State Finance Commission

The Third State Finance Commission adopted the following parameters for district-wise distribution of funds for onward devolution to PRIs:

Table 1.14 Parameters for Devolution by the Third SFC

S.No. Parameters Weight 1. Population 60% 2. Geographical Area 20% 3. Poverty represented by number of BPL families 5% 4. Level of literacy 5% 5. SC Population 5% 6. ST Population 5%

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Source:Third State Finance Commission, Govt. of Rajasthan, Jaipur

Further distribution amongst the three tiers (gram panchayats., panchayat samitis and zila parishads was recommended to be made as 85% to gram panchayats, 12% to panchayat samities and 3% to zila parishads.

The Third State Finance Commission found the criteria of distribution based on geographical area, BPL families and literacy rate not feasible in respect of urban local bodies. It, therefore, recommended distribution of 80% amount from the share in tax revenue among all the urban local bodies based on population. In order to help financially poor local bodies namely Municipalities Class –II, III and IV to perform their basic civil functions effectively, it recommended an additional amount from out of the balance 20%, to be distributed to such II, III & IV class municipalities. The entire devolved amount was to be passed on as untied funds.

The First State Finance Commission recommended 2.18% of the net proceeds of State taxes to be devolved on the local bodies, whereas the Second State Finance Commission recommended 2.25% share of Net Tax Returns of the State. It recommended only a marginal increase of 0.7% over the recommendation of the First Commission. The Third State Finance Commission recommended a total devolution of 3.50% of the net tax revenue of the State which is 1.25% higher than the one recommended by the Second State Finance Commission. It further recommended that out of the total devolved amount of 3.50%, 0.50% should be earmarked for incentivizing the performing local bodies who levy additional or new taxes or augment their revenue thereby earning are equal amount of their additional revenue by way of an incentive.

The comparative position of the amounts devolved by all the three State Finance Commissions is given below:-

Table 1.5 Statement of the amounts devolved by the three SFCs

Name of Percentage of Amount Further Distribution Commission Devolution Devolved PRIs Urban Bodies First State 2.18% of Net Rs. 55.40 crores Rs. 42.81 crore for Rs. 12.59 crore for Finance Tax Revenue for 95 1995-96 1995 Commission Total 1995-2000 Total 1995-2000 Total 1995-2000 Rs. 395.49 crore Rs. 305.60 crore Rs. 89.89 crore 27

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Second State 2.25% of Net Rs. 738.60 crores Rs. 553.20 crore + Rs. 168.99 crore + Finance Tax Revenue excluding Rs. 12.57(0.05% Rs. 3.84 crore Commission entertainment tax Incentive) Total (0.05%) Incentive & 1% royalty on Rs. 565.77 crore Total Rs. 172.83 minerals crore. Third State 3.50% of net Rs. 2230.97 crores 75.7% Rs. 1395.27 24.3% Rs. 447.88 Finance tax revenue Inclusive of crore (3%) + Rs. crore Commission (State Net Tax entertain tax of 232.55 (.50%) 3% share + Rs. (population revenue) Rs. 34.40 crore Total Rs. 1627.82 74.65 crore from figures of 61438.43 crore and royalty from 0.50 2004-05) (2150 crore) minerals Rs. 46.22 Total Rs. 522.53 crores (2005-2010)

Basis & Formula for Sharing the Assigned Taxes

The following table shows the criteria being followed by the various SFCs for devolution of funds to the PRIs and ULBs:

Table 1.16 Norms for Devolution by other States

State Norms for Devolution

Kerala Efficiency in own revenue collection Punjab Stamp duty Derivative principles between PRIs and ULBs MVT on the basis of road length Electricity duty on the basis of collection Entertainment Tax 80% for ULBs and 20% for PRI‘s West Bengal Population, level of non-literacy, % of SC, ST population and population density. Tamil Nadu Population (45%), SC, ST Population (20%), Per capita own revenue (15%), Per capita expenditure on core services (20%) Karnataka Population (33.3%), Area (33.33%), Illiteracy (11.11%), Hospital Bed per Persons in per (11.11%), Road length per km. (11.12%) Uttar Pradesh Population (80%), Area 20% Madhya Urban population (40%), Sales Tax Contribution (35 %), backward and Pradesh SC/ST population (15%), level of infrastructure (10%) Maharashtra On the basis of city size determined by population Delhi Population (70%), Area (30%)

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Source:Reports of various third SFCs

The Central Finance Commissions

It is also pertinent to briefly review the main recommendations of various Central Commissions for the devolution of funds. These are:

The Tenth Finance Commission:

(i) Though the NIUA indicated an estimated gap between revenue and expenditure for Operation & Maintenance of core municipal services at Rs5987 crore in 1995 which was likely to go upto Rs12980 crore in 2000; the Tenth Finance Commission passed on the onus for the estimation of the gap and the measures that the State and the ULBs can adopt to bridge the gap to the State Finance Commission.

(ii) Rs. 1000/- crores recommended for 5 years period (1995-2000) enabling the ULBs to meet their primary obligations.

(iii) The inter State distribution of this sum was based on the inter-State ratio of the slum population derived from the slum population figures as per 1971 census.

(iv) These grants were additionality over and above the grants flowing to the local bodies from the State Governments.

(v) Local bodies were asked to provide at least matching contribution. Grant were not to be spent on salaries and wages.

The Eleventh Finance Commission :

(i) With a view to augmenting the Consolidated Fund of the State for supplementing the resources of local bodies, the Commission recommended assignment of Land Tax, Profession Tax and surcharge/ cess on State taxes to Local bodies for improving the basic civic services.

(ii) Reforms in respect of property tax/ house tax and user charges.

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(iii) These grants were purpose specific and were to be utilized for maintenance of accounts, development of data base and maintenance of core civic services.

(iv) The recommended grants were untied except that these were not to be used for payment of salaries and wages.

(v) Inter-se share of states in the grants provided for municipalities was based on the following formula –

 Urban population of the State - 40%.  Index of decentralization - 20%  Distance from the highest per capita income - 20%  Revenue effort of the local bodies - 10%  Geographical area - 10% The Twelfth Finance Commission

The Twelfth Finance Commission‘s main emphasis was on Solid Waste Management. It observed that about 42 million tons of municipal Solid Waste was produced in urban India with a per capita income generation varying between 0.2 to 0.6 kg. per day. This waste generation was expected to grow at the rate of 5% per annum. Presently ULB‘s spent on an average 60%-70% of their budget on this function.

(i) A sum of Rs.2000 crore was recommended for the panchayats and Rs.5000crore for Municipalities as grant –in-aid for the period 2005-2010.

(ii) Inter-se share of the states in the grants provided for the municipalities was based on the following formula –

 Population of the State - 40%  Geographical area - 10%  Distance from the highest per capita income municipality - 20%  Index of deprivation - 10%  Revenue effort - 20%

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While the 11th Finance Commission earmarked 10% grant –in-aid for revenue efforts, the 12th Finance Commission increased it to 20%. Instead of Index of decentralization adopted as one of the norms for devolution by the 11th Finance Commission, the 12th Finance Commission also adopted Index of deprivation as a norm for devolution with a 10% weightage.

(i) At least 50% of the grants- in-aid provided to each state for the ULB‘s had to be earmarked for the scheme of solid waste management through P.P.P. Municipalities were required to concentrate on collection, segregation and transportation of solid waste. The cost of these activities whether carried out in house or outsourced was also permitted to be spent out of this grant-in-aid.

(ii) States were required to earmark funds for building database and maintenance of accounts of local bodies.

(iii) Apart from these grants the T.F.C. had recommended separate grants for maintenance of roads and bridges. Rs.1,50,000 crore had been recommended for maintenance of roads and bridges and Rs.5000 crore for maintenance of public buildings.

Determining the adequacy of the level of expenditure holds the key to reviewing the finances of municipalities. It is a common knowledge that spending levels are far below the norms considered necessary for delivering services at acceptable levels. Assessing the level of under spending or deficit on municipal services should be arrived at after comparing actual municipal expenditures with expenditure norms or standards.Which norms should be used is a critical factor in estimating the financial requirements of municipalities. Options in respect of expenditure norms were :-

 Zakaria Committee norms (Indexed to 2012)  Task forces on Housing and Urban Development (Planning Commission Norms).  Average expenditure of better off municipalities  Average expenditure of municipalities.  State – specific norms, if any.

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While assessing the resource potential, the composition, coverage and nature of the municipal tax base e.g. the relevance, elasticity and buoyancy of taxes assigned to municipalities, limits imposed on their use by placing limits on tax rates or taxing down tax exemption policies should be taken into consideration. The poor quality of services rendered by the ULBs is due to not only the constraint of resources but also due to poor staffing -lack of required skill- and poor quality of management especially financial management. The Zakaria Committee norms are, in the present context, considered to be excessive and unaffordable. A recent county wide survey showed that only ten out of the 249 municipalities met the expenditure norms established by the Zakaria Committee. The basis of norms suggested by other committees and their country wide relevance and application has been questioned on other grounds.

We find that most of the National and State Finance Commissions have groped to find an ultimate solution to fulfill the objectives of the Constitutional amendments. They have juggled with percent based devolution and suggested different permutations and combinations to meet the requirement of various core functions of the third tier of governance. However, our state wide surveys have clearly brought out the fact that the population is not yearning for more but is still looking for a minimum standard of living. We do not want to suggest a formula or a set of formulae to the Fourth State Finance Commission for devolution for providing a minimum standard of living to the people as mathematical jugglery in allocating funds has failed miserably in the past but feel that by the end of five years, the people should reach closer to it. The present ills are primarily because of bad governance and an indifferent attitude of elected representatives. As nothing much can be done for the latter, the emphasis needs to be on improving governance. With ample funds available through various Central and State government schemes, improved governance may lead to better utilization of funds which is a sore point at the moment. The State Finance Commission may like to fix a minimum level of achievement in various core sectors – both rural and urban – and devise a set of formulae accordingly. With women having reservation, yet not having a voice in decision-making, their needs for safe and easily accessible drinking water and

Need Assessment of U LBs & Panchayati Raj Institutions sanitation, which will help in improving mortality rates need an over-riding priority in rural areas whereas solid waste management which has made life unbearable in urban areas- all kinds of ULBs included, need to be over-emphasized. Corruption has become a cancer in ULBs. It is, therefore, suggested that enough funds should be devolved for replacing human beings with machines, both for carrying out core functions as well as keeping an eye on employees. We do not believe in divisions like urban and rural population because it is an aggregate of individual human beings and a human being should be the only target. No doubt, it is a difficult task !

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Research Methodology 

Under the 73rd and 74th Amendments of the Constitution the State Finance Commissions have been set up for devising norms for grants to the PRIs and ULBs. Most of the earlier grants were based on population and had failed to ensure that they were channeled into fulfilling the basic needs of villages and the smallest unit of ULBs.

The Fourth State Finance Commission felt an urgent need to look into the present needs, available funds and the gaps that need to be filled during the course of next five years. The basic premise is to evolve formulae for an equitable allocation of the grants to be distributed to the local bodies.

The present study has been designed to identify the needs in terms of physical and financial norms, for each tier, especially in crucial areas of drinking water, sanitation, sewerage, cleanliness of inner roads in the villages or small urban local bodies, street lighting, etc..

Objectives

Within the broad framework of research, this study attempts to conduct an in depth analysis on the following concerns associated with physical and financial needs of the PRIs and ULBs:

. Conduct an in-depth assessment of the financial needs for implementing the core functions of the PRIs and ULBs, hitherto under-funded and whether the PRIs and ULBs need strengthening physically and financially to achieve them.

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. Examine the efficacy and gaps in implementation and implications of these functions as well as record the perceptions and problems faced by them in fulfilling these functions. The physical and financial norms prevalent in these bodies presently were to be examined and suggestions were to be made to fulfill the gaps, if any.

. Design standard norms of distribution of funds by the Finance Commission to these bodies on the basis of the analysis and findings of the core functions.

. Suggest suitable measures for simplification and empowering the devolved structures, if any.

Methodology and Strategy

The initial stages of the research project dealt with collection of relevant data, which included information from secondary sources and key informants to develop an insight into the present situation. This was used to identify research questions and preparation of tools for collection of the primary data. These prioritised issues/questions were taken up for an in-depth study during the collection of primary data. Primary data was collected in accordance with the proposed methodology. The data collected was analysed using qualitative and quantitative techniques.

Need and Source of Data

Secondary Data

For macro level investigations, secondary level information/data was collected from all the available sources. Broadly these included; official records, and research reports of various governmental and non-governmental agencies of the State. This included data on the activities taken up by the PRIs and ULBs to meet the basic requirements of a model gram panchayat or an urban local body and the budgetary provisions along with the requirement for these activities. This facilitated the identification of gaps as well as the physical and financial norms for these

Need Assessment of U LBs & Panchayati Raj Institutions activities. This information helped in assessing the scenario. The data collected was essential to sampling for collection of primary data.

Primary Data

Data was collected from secondary sources to select gram panchayats and ULBs. The districts were selected on the basis of a composite index prepared on the basis of area, location and Human Development Index. Similarly, the blocks were identified on the basis of an index on area, SC, ST, OBC population and location. Each development unit was visited to collect data on their present funds, functions and to identify their needs, priorities and unit cost for each function.

Primary Data was collected through schedules. Purposive Quota Stratified sampling was used for this purpose. The gram panchayats were chosen on the following basis

Table 2.1

Districts Blocks Gram Panchayats

One district from each of From each of the sampled Four gram panchayats the seven administrative district, two blocks were were chosen from each divisions chosen (three in Barmer due block to special conditions) Criteria : Composite Index Criteria : Composite Index Criteria : Composite Indicator Indicator Index Indicator Area Area Area Location SC/ST/OBC population Sarpanch (m/f) HDI Location Population Number of households (their present status) Total 7 Total 7*2+1=15 Total 7*8=56

A total of 56 gram panchayats were selected in the seven districts (eight in each district). In the selected blocks Gram Panchayat were chosen basis of area population number of household and the gender of the Sarpanchas. Interview method was chosen for in-depth analysis and was suitably supplemented with the

Need Assessment of U LBs & Panchayati Raj Institutions findings of informal and expert interviews. Sample villages under the samplegram panchayats were also visited as a part of the study.

For The urban local bodiesalso, the Purposive Quota Stratified sampling was used. The ULBs from each category were chosen on thebasis a composite index developed on indicators viz. area, population and human development index. In all 15 ULBs were chosen for collecting primary level information.

Table 2.2

S.No. Category of Municipal Bodies Number of ULBs in Sample ULBs Rajasthan 1 Municipal Corporation 05 02 2 Municipal Council 13 02 3 Municipality Class two 36 03 4 Municipality Class Three 58 03 5 Municipality Class Four 72 05 Total 184 15

Interviews during the Field Visits

A schedule was developed for the presiding officers of the development units and the data for last three years was collected along with the other information and their views were recorded. This exercisewas expected to indicate the gaps and the physical and financial norms.

For the data collection work, teams of research officers were trained. An intensive training was imparted to the field teams on the issues being addressed in the study, methods of data collection, interview procedures, etc. Duration of training was three days. It also involved field training. One data collection team consisted of two ROs supervised by one Project Officer. Strict monitoring of fieldwork was ensured. The information thus collected through intense fieldwork was evaluated using data analysis techniques and suitable software packages. This has been documented in the form of a report card.

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The sample districts, blocks and villages for the PRIs and Corporation, Councils and Municipal Boards for the ULBs were selected in consultation with the State Finance Commission. The following are the lists:

Table 2.3 List of Sample Districts and Blocks

Jodhpur Region Barmer Second Largest Area Barmer Strategic Location Refinery Strategic Location (Refinery) Chohtan High SC/ST Population Poor HDI Baytu Large Area Bharatpur Region Karauli Largest Area Hindaun Highest SC Population Largest SC&ST Population Sapotra Largest Area Highest ST Population Jaipur Region Jaipur Largest Population Phagi Best Indicators High HDI Economic Prosperity

Jamwaramgarh Highest ST Population Udaipur Region Dungarpur Largest Area Sagwara Largest SC&ST Population High HDI Aspur Largest Area Strategic Location (State Border) Bikaner Region Ganganagar Highest HDI Raisinghnagar Highest SC&ST population Largest Area Suratgarh Largest Area Large SC&ST Population Ajmer Region Bhilwara Strategic Location Shahpura Largest Area (Mining Area) Jahajpur Lowest HDI Highest ST Population Strategic Location (Mining) Kota Region Kota Best HDI Ladpura Largest Area Growing Urban Area Highest ST Population

RamganjMandi Large Area Large SC&ST Population

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Table 2.4 List of Sample Blocks and Gram Panchayats

District Block Original Reason for selection Gram Panchayats Reason for Change, Sampled GP Visited ifany Ganganagar Raisingh 22PS Rural Large area & 22PS Rural - Nagar minimum population 5-NP Large area 1MK-B (Udsar) Post of Secretary population and vacant highest no. of households

15PTDA Lowest area and high 15PTDA (Sameja) - (Sameja) population 17-TK Comparative high 12 NRD Post of Secretary population vacant

Suratgarh Thukrana Maximum area Thukrana - household Kardoo Highest population Dei das pura Kardoo is not Grampanchayat 15-LKS (Dhaba Large area. 15-LKS(Dhaba jhalar) jhalar)

Rayanawali Smallest area but Peprein Rayanawali is not large population and Grampanchayat no. of households. Barmer Barmer Mahabar Largest area. Mahabar -

Barmer (Rural) Largest Barmer (Agor) - population and

households Utarlai Less area but Dhoondha (Kawas) Special Reason - households and Cairns Energy population are (Refinery) Bayetu comparatively high. Rawatsar Large population. Chitar ka par Special Reason - Cairns Energy (Refinery) Chohtan Chohtan Highest population, Chohtan - area and no. of households Bakhasar Lowest population. Bakhasar - Konra No. of households is Konra - good. Alamsar Less area but high Alamsar - population and households.

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District Block Gram Panchayats Reasons Bhilwara Shahpura Khamor Gidriya Large population. Repeat of GP Dheekola Dheekola Higest population and Khamnor Khamnor households. Phooliyan Phooliyan kalan Highest area. kalan Minimum area. Jahazpur Luhari Kalan Etunda Large area. Post of Secretary vacant Pander Pander Largest area. - Ropan Ropan Highest no. of Post of Secretary vacant households and population. Sarsiya Amerwasi Less area but population is high. Karauli Hindaun Dhindhora Dhindhora Population is high. - Largest area. - Jagar Jagar Large area. - Mothiyapur Mothiyapur Lowest area but - Suroth Suroth population and no. of households is max. Sapotra Bahadarpur Bahadarpur Largest area. - Highest households and - Narauli Narauli population. - Sapotra Sapotra Lowest area but - population is large. Salempur Salempur Large population. Kota Ladpura Ranpur Rangpur Large area. GP merge in municipal Largest area. corporation Kota Borawas Borawas Minimum area but - Rangbari Kasar households and GP merge in municipal population is corporation Kota maximum. - Mandana Mandana No. of households and

population is considerabely good. Ramganj Ghati jagir Modak station Largest area. Ghati jagir is not GP. Mandi Area is large . - Julmi Julmi Largest no. of - Khairabad Khairabad households and - population. Askali Sahrwada Lowest area but population is good. Askali is not GP Dungarpur Sagwara Jethana Jethana Large area. - Large population. - Obri Obri Lowest area but highest - Khargada Khargada no. of households and - population. Bheeloora Bheeloora Largest area. Aaspur Punjpur Punjpur Largest area. - Largest no. of - Munger Munger households and

population. Sabala Nithauwa

Lowest area but no. of Secretory was Not

households is working due to retired

considerably high. - Reenchha Reenchha Large area.

Need Assessment of U LBs & Panchayati Raj Institutions

Jaipur Phagi Chauru Chauru Large area. - Largest area, no. of Phagi Phagi households and -

population. Renwal Manji Renwal Manji No. of households and -

population is good. Madhorajpura Madhorajpura Lowest area but - population is large. Jamwa Dhoola Raoji Dhoola Raoji Largest area. - Ramgarh Large population. Tala Tala Lowest area but no. of - Jamwa Ramgarh Jamwa Ramgarh households and population is -

maximum. Andhi Andhi Large no. of - households.

Need Assessment of U LBs & Panchayati Raj Institutions

Table 2.5 List of Municipal Bodies

ULBs Sampled ULBs Studied ULBs Reason for ULBs selection replaced if any, Municipal corporation Jaipur Jaipur Largest - Population High urban area Ajmer Ajmer Weak - Municipal council Udaipur Udaipur Financially - sound Problem town Churu Churu Financially - poor Agricultural Area Municipal board Chittoregarh Chittoregarh Management - grade 2 Issues Sawaimadhopur Sawaimadhopur - Deoli Deoli Developing - town Municipal board 3 Bandikui Bandikui Prosperous - Kuchaman Kuchaman - Suratgarh Peelibanga Suratgarh is already selected as rural Block Municipal board 4 Nawan Nawan - Kapren Kapren Problem town - Jahajpur Soorajgarh Staff Issues Jahajpur is already selected as rural Block Uniara Uniara Philanthropic, - Participation Jobner Jobner Weak -

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The Status of Panchayati Raj  Institutions (PRIs)

In order to assess the needs of the rural local bodies a survey of 56 gram panchayats was conducted. The panchayats were selected on the basis of the prescribed methodology. The present chapter deals with the findings of the survey of the gram panchayats. In each panchayat, the Sarpanch, Gram Secretary and the community were interviewed with the help of a pre-designed questionnaire. A team of two investigators visited each panchayat. One of the investigators interviewed the Gram Secretary and the Sarpanch while the other conducted the community interview andobservations.

Demographic Profile of the Sample Panchayats

This study covered 56 gram panchayats across the seven divisions of Rajasthan selecting one district from each division. In each district two blocks were identified on the basis of composite index, and from each block, four Gram panchayats have been selected. The total population, according to the census 2001 is 366443.The population for 2011 has been estimated on the basis of the 2011 district decadel growth rate comes to 436667 with a cumulative calculated decadel growth of 19.16.

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Table 3.1 Demographic Details of the Sample Gram Panchayats

District Population of Estimated Decadal Number of Number of selected GP Population Growth Households* BPL (Census 2001) (2011)** 2001-2011 families* Kota 52166 55322 6.05 13400 893 Barmer 67804 90261 33.12 21456 4917 Bhilwara 42984 50777 18.13 11425 5253 Dungarpur 42255 53503 26.62 11160 3041 Ganganagar 47710 51202 7.32 9887 1363 Karauli 54600 65471 19.91 14521 3355 Jaipur 58924 70131 19.02 18900 1351 Total 366443 436667 19.16 100749 20173

* Field Survey (Primary data) **Extrapolated on the basis of district decadal growth rate 2011

Thus, the average population per GP comes out to be 7797 and the average number of households in a GP is 1799.These figures have been used for calculation of norms for each core sector in the later part of the report. The total area (in bighas) of the 56 gram panchayats is 24302.4. The ratio of the BPL families to the total population per GP was found to be 20 per cent.

Income and Expenditure

Table 3.2Income and Expenditure of the sample GPs (2010-11 & 2011-12)

SN Source of Income Expenditure Income Expenditure income&Expendit 2010-11 % 2010-11 % Per 2011-12 % 2011-12 % Per ure capita capita 1 SFC 256.44 13.34 193.34 11.77 44.28 407.39 15.17 261.74 12.67 59.94 2 TFC 242.83 12.64 180.67 11.00 41.37 287.53 10.71 240.15 11.62 55.00 3 Untied fund 29.27 1.52 24.33 1.48 5.57 387.45 14.43 111.31 5.39 25.49 4 BRGF 186.15 9.69 179.91 10.95 41.20 183.24 6.82 142.96 6.92 32.74 5 MA LAD 45.32 2.36 38.11 2.32 8.73 68.44 2.55 50.61 2.45 11.59 6 MP LAD 25.69 1.34 19.85 1.21 4.55 37.58 1.40 28.75 1.39 6.58 7 Own Resources 48.73 2.54 33.22 2.02 7.61 39.2 1.46 20.93 1.01 4.79 8 NREGA 1011.2 52.62 915.8 55.74 209.73 1164.78 43.37 1168.2 56.55 267.53 9 BADP 10.51 0.55 0 0.00 0.00 8.45 0.31 0 0.00 0.00 10 Social Justice 0.26 0.01 0.26 0.02 0.06 0.48 0.02 0.06 0.00 0.01 11 PHED 3.88 0.20 4.63 0.28 1.06 1.3 0.05 1.75 0.08 0.40 12 Schemes/Flagship 44.3 2.31 36.32 2.21 8.32 84.87 3.16 39.42 1.91 9.03 Programme 13 Other 17.12 0.89 4.52 0.28 1.04 15.02 0.56 0 0.00 0.00 Total 1921.72 100 1643.06 100 376.27 2685.73 100 2065.89 100 473.10

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Position of Income of GPs Social Justice PHED, 0.05 , 0.02 Other, 0.56 BADP, 0.31 SFC, 15.17

TFC, 10.71

NREGA, 43.37 Schemes/Flagship Schemes/Flagship Programme ,3.16

Untied fund , 14.43

BRGF, 6.82

Own Resources, Resources, Own 1.46

MA LAD LAD 2.55 MA , MP LAD,1.4 MP

Table 3.3Headwise Expenditure of the PRIs (2011-12 & 2012-13)

S N Budget head Expenditure % of Per capita Estimated Per capita in year Total Expenditure budget for Expenditure 2011-12 Expenditu year 2011-12 year 2012- year 2012-13 re in year 13(as per 2011-12 annual plan) (in Lakh Rs) (in Rs) (in Lakh Rs) (in Rs)

1 Solid waste 46.41 2.21 10.63 142.5 32.63 management 2 Waste water 77.05 3.66 17.65 245.63 56.25 drainage 3 Street lighting 15.01 0.71 3.44 148.56 34.02 4 Construction of 701.71 33.36 160.70 1936.205 443.41 roads/pulia/rapat 5 Burials and burial 44.8 2.13 10.26 251.32 57.55 ground 6 Community halls 25.52 1.21 5.84 224.69 51.46 7 Public toilets 0.12 0.01 0.03 57.813 13.24 8 Public health 0 0.00 0.00 5.825 1.33 9 Public parks 13.37 0.64 3.06 89.45 20.48 10 Drinking water 321.68 15.29 73.67 478.68 109.6 2 11 NREGA/OTHER 858.03 40.79 196.50 0 0.00 Total 2103.7 100.00 481.76 3591.673 822.5 2

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Per capita Expenditure in GPs year 2011-12 (Rs) 196.50 160.70

73.67

10.63 17.65 10.26

3.44 5.84 0.03 0.00 3.06

drainage

Public parksPublic

Solid waste waste Solid

ground

Waste water water Waste

Public toilets Public

Public health Public

management

Street lighting

NREGA/OTHER

Drinking water water Drinking

Construction of

Communityhalls

Burials and Burials burial roads/pulia/rapat

Government’s Reluctance in Providing Fiscal Autonomy to PRIs

During this study it was found that the panchayats have very little fiscal autonomy. For this pathetic condition of PRIs and ULBs, the State Government has to take the blame. They have done it at their own cost. They are forced to provide much larger funds to meet the expenditure of these bodies from their own kitty or through the State Finance Commission grants, which cuts into their own needs for the state‘s infrastructural and core sector requirements.

An important point on which the 73rd and 74th amendments were based was the devolution by the State Legislature, powers and responsibilities for the preparation of plans for economic development of the third tier as well as securing a sound financial base for it. A fair degree of financial autonomy (in the true spirit of decentralisation of power) is a sine qua non for local governments to function more effectively as self-governing institutions. By financial autonomy we mean that they should have their own taxation and borrowing powers in addition to a share in the state‘s taxes and duties and grants-in-aid. The local governments should not only have the power to raise revenues but their own sources of revenues should constitute a very significant share in the total revenues. Many states have done it. We would further propose that the state or the SFC should provide only 66%-70% of the

Need Assessment of U LBs & Panchayati Raj Institutions total fund requirement of PRIs so that they are motivated to enhance their own income in order to meet the remaining needs.

Even in the Act this was provided. Areas were specifically prescribed in which the 3rd tier of governance was to be autonomous. The State Legislature was also mandated to provide grants to it from the Consolidated Fund of the State and also assigning of the revenues of designated taxes, duties, tolls and fees. It was envisaged that with sufficient funds coming from the State Government as well as the 3rd tier generating its own resources, the dream of Mahatma Gandhi about self- sufficiency at the grass-root level would be realized. This power of both planning and acquiring finances to meet the prepared plan was not to be interfered by the 1st and 2nd tiers of governance. On the other hand, it was to be insisted upon. The government of India and the State governments were obliged to assist the 3rd tier to prepare their plans as well as to provide them funds to meet their plan expenditure either from their own sources or to allow them to generate their own sources of tax and non-tax revenues. The State government was also expected to assign funds from taxes, duties, tolls and fees levied and collected by State government. However, it is found that the general environment of not levying any taxes at the State level on the baseless fear of losing elections has pervaded to the 3rd tier also, a tendency which has harmed the third tier much more than the second. The result is that not only development but establishment requirements are being met, that also only partly, by the State government. This has led to wide gaps in funds required and available for even basic infrastructural requirements of panchayats and urban local bodies. Minimum needs of the people are being put on the back burner. The state governments have failed to play the role of hand holding of the third tier.

It is understood from the basic objectives of the 73rd and 74th amendments of the Constitution that it is necessary that the funds from the State Finance Commission should not only fill the gaps in the required and available levels of funds for the 3rd tier of Governance for infrastructural development and meeting their core functions but also should work as a catalyst to improve their capacity and motivate them to generate their own resources to fulfill their unmet needs. At the same time, the recipients should also be asked to provide the physical targets

Need Assessment of U LBs & Panchayati Raj Institutions they are going to meet with the help of the funds devolved. Otherwise the hard earned money of the general tax payers will be just like a dole given to irresponsible beneficiaries.

Waste Water Management Table 3.4 Physical status of Drainage (Naalis)

Requirement of nali Total length of Proposed nali in Proposed (m.) drainage nali (m.) next year (m) maintenance of nali in next year (m.) 336988 169733 70045 27505

The sampled 56 Gram Panchayats, under reference presently have facility of drainage system comprising of merely 169733 mtrs. i.e. 50.36%, whereas the requirement accounts for 336988 m. It is evident that the available drainage system is far more less than the actual need. In the year 2012-13 construction of 70045 m. i.e. 20.78% is required and maintenance of 16% existing dilapidated drainage system have been proposed.

Financial Status of Drainage Nali Table 3.5 Financial Status of Drainage (Naalis)

Expenditure Expenditure Expenditure for Expenditure for Per capita for nali for nali 2012-13 maintenance of expenditure for 2011-12 maintenance nali in year construction and of nali in year 2012-13 maintenance of nali 2011-12 in year 2012-13 54.81 22.24 216.9 28.73 56.25 The expenditure of Rs.54.81 lacs for drainage system and Rs.22.24 lacs for maintenance of the same in the year 2011-12 has been incurred by GPs. An estimated budget of Rs.216.9 lacs for construction and Rs.28.73 lacs for maintenance of existing length of drainage system in the year 2012-13 has been proposed by GPS to the concerned authorities.

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Solid Waste Management Table 3.6 Status of Sweepers

Total Regular Contractual Coverage Coverage Additional Planned Planned sweepers population household requirement coverage Coverage per sweeper population household per sweeper per sweeper

253 0 253 1726 398 322 759 175

The GPS under reference have shown an untidy, unhealthy situation. It is quite a serious matter and may be a pointer to a kind of unhygienic surroundings prevailing in GPs. Most of the GPs (52%) are afflicted with the disease of un- cleanliness Solid Waste Management is done in 48.1 GPS. At present there are 253 contractual sweepers to render services to 100749 households. It means that 398 households are being served by one sweeper covering a population of 2013 per sweeper. It is indeed regretful to note that due to paucity of sweepers or else to collect solid waste, all sampled eight GPs of Ganganagar present a worse situation with regard to solid waste management. This creates discomfort to inhabitants, therefore with 322 more required sweepers the population covered by one sweeper will come down from 1726 to 759 and households from 398 to 175 though it is still higher than the prescribed norms, yet a slight improvement will be there.

Interval of Cleaning Table 3.7 Interval of cleaning

Daily Interval of 3-4 days Weekly 2% 18% 80% There is no denying of the fact that in 80% of GPs the practice of weekly cleaning is in vogue and it is done at an interval of 3-4 days in 18% GPs. There is nothing to be satisfied with only 2% GPs, under reference, having daily cleaning practice. It is significant to quote that Dungarpur, despite being a tribal district and Kota an industrial hub, present an example in this respect to be followed by others.

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Status of Assets Table 3.8 Status of Assets

S. Assets Present Additional Estimate budget no. status no. requirement in require in next next year year(in lakh) 1 Tri Cycle 0 2 0.1 2 Push Cart with bin 0 309 9.27 3 Bins 0 1114 41.2 4 other 0 333 2.005

The perennial problem of total absence of cleaning equipment across 56 GPs remains to be sorted out. Requirement of cleaning assets such as tri cycles, push carts with Bens, Bins and some other equipments and their estimated budget of Rs.2.005 lakhs has been proposed to the concerned authorities.

Street lighting Table 3.9 Status of Street Lighting Points Equipment LED CFL Available Estimated Estimated Available Estimated Estimated in year no. for budget for in year no. for budget for 2011-12 next year next year 2011-12 next year next year(in lakh) Tube light 0 0 0 435 220 2.42 Bulb 0 0 0 950 6515 71.66 Mercury 0 0 0 0 16 0.56 Sodium light 0 0 0 0 163 5.725 High mask 0 0 0 light 0 0 0 Gen. bulb 350 0 0 315 0 0 other (Solar) 18* 10* 3.4 20 7** 0 Total point 368 10 3.4 1720 6921 80.365 *solar light considered as CFL, **Solar lights provided by water shade program.

The miniscule i.e. 26.8% of GPs having road light facility evidently manifests the poor governance at Gram Panchayat level 73.21% GPs across the sample, regrettably are lacking in street lighting facility.

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The total number of street lighting points, available presently comes to 2088 across 56 GPs i.e. 23.15%. An estimated budget proposal for additional 6921 lighting points for year 2012-13 has been presented to the authorities for acceptance. Status of Timer Table 3.10 Status of Timers

Timer Solar Automatic Manual No. of points coverage by each timer Status in year 2011-12 22 38 27 32 Estimate for year 2012-13 22 478 0 19 At present there are 49 timers to regulate 2088 street lighting points. A need of 500 more automatic timers has been has been stated by GPs for the year 2012-13.

The coverage per lighting point in terms of population comes to 209. A quantum increase of 6921 lighting points will make total number of points as 9019, making a favourable impact on coverage of population per point, i.e. 48 per point.

Expenditure for street lighting Table 3.11 Expenditure for street lighting

Particulars Year 2011-12 Estimated for Per capita (in lakh) next year(in expenditure lakh) (in Rs) Expenditure for energy 5.53 39.86 9.13 Expenditure for new purchase 6.2 84.76 19.41 Expenditure for maintenance 3.68 3.78 0.87 Expenditure for vehicle 0 0 0.00 Expenditure for establishment 0 20.16 4.62 Other expenses 0 0 0.00 Total 15.41 148.56 34.02 Citizens of 73% GPs across the sample remain dissatisfied with wherewithal of street lighting system. An estimate of Rs.148.56 lacs has been presented to the authorities to improve lighting system, which will make per capita expenditure to Rs 34.02.

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Road/ Pulia / Rapat Physical status of roads / pulias / rapats Table 3.12 Physical and Financial Status of Road/pulia/rapat Construction Total construction of construction Estimate Estimate Per KM /unit length of Road/pulia/ra of construction budget for Estimate roads pat in year Road/pulia/ra of Road/pulia/ra budget for /number in 2010-11 (in pat in year Road/pulia/ra pat in year Repairing present Km) 2011-12 (in pat in year 2012-13 Road/pulia/ra (in Km) Km) 2012-13 (in (in lakh) pat in year Km) 2012-13 (Lakh) C.C. Road 149.42 8.2 15.75 48.75 820.77 16.84 Kachchi road 456.5 112.75 102 145 334.82 2.31 Pukki road 172.5 8 7.5 82 0.00 Rapat 51 1 3 22 4.74 0.22 Pulia no. 187 40 28 105 37.55 0.35 Grawal 373.3 60 74.6 91.3 486.54 5.33 Kharanja 7.5 1 1 7.6 58.07 7.64 Total 1742.49

The roads vis-à-vis C.C. road, kacchi and pakki road, rapat, pulia, kharanja etc. has coverage of 1391.22 km. at present. The estimated budget proposals of Rs.1742.49 lacs to construct additional roads of 430.53 km. i.e. .30% length in 2012-13 has been presented to the authorities.

Repairing of Roads Table 3.13Physical and financial status for Repairing of Road/pulia/rapat

Repairing Repairing of Repairing of Estimate Estimate budget Per KM /unit Road/pulia/rapa Road/pulia/ra Repairing of for Repairing Estimate budget t in year 2010-11 pat in year Road/pulia/rapat Road/pulia/rapat for Repairing (Km.) 2011-12 (Km.) in year 2012-13 in year 2012-13 Road/pulia/rapa (Km.) (Lakh) t in year 2012-13 (Lakh) C.C. Road 0 2.5 30.05 125.545 5.34 Kachchi road 0 4 16.9 10.81 0.64 Pukki road 0 0 1 0 0.00 Rapat 0 0 1 0.1 0.10 Pulia 0 0 4 0.8 0.2 Grawal 12.1 0 43 54.21 1.26

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Kharanja 2.25 0 Total 193.715

Table 3.14 Financial status of construction and maintenance of road/pulia/rapat Expenditure for Expenditure for Expenditure for Per capita Estimate Per construction of maintenance of construction and expenditure for capita road/pulia/rapat road/pulia/rapat in maintenance of construction and expenditure for in year 2011-12 year 2011-12 road/pulia/rapat maintenance of construction and (in lakh) (in lakh) in year 2011-12 road/pulia/rapat maintenance of (in lakh) in year 2011- road/pulia/rapat 12(in Rs.) in year 2012-13 (in Rs.) 673.89 27.82 701.71 160.7 443.41

Only 6.5 km. of road has been repaired in present year. An estimation of Rs.193.715 lacs to repair 95.95 km (.068%) of roads has been proposed for the year 2012-13 construction and maintenance of roads/rapat/pulia. In 2011-12 Rs.701.71 lacs has been expended on construction and maintenance of roads. A need is felt to spend Rs.443.41 per capita to construct and maintain the roads, rapat etc. in 2012-13.

Status of Burials and Burial Ground Table 3.15 Physical Statusof Burials and Burial Ground

No .of Burials and burial Area of Burials and burial Additional area require ground ground (bigha) for Burials and burial ground (in bigha) Burials burial Burials burial Burials burial ground ground ground 278 61 620.9 172 70 18

Table 3.16 Financial Statusof Burials and Burial Ground

Expenditure for Estimated Estimated Budget Per capita Estimate Burials and burial budget for for Maintenance expenditure Per capita ground in year 2011- Burials and in next year for Burials expenditure 12 burial ground and burial for Burials

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(in lakh) in next year (in lakh) ground in and burial (in lakh) year 2011-12 ground in (in Rs.) year 2012-13 (in Rs) 44.8 212.25 39.07 10.26 57.55

Presently there are 278 cremation grounds and 61 graveyards across 56 GPS covering 620.9 and 172 bigha area respectively. It is estimated that an additional area of 70 bigha for cremation ground and 18 bigha for grave yard is required. An estimated budget of 39.07 Lakh Rsfor maintenance in addition to 212.25 Lakh Rs for construction of burials and burial ground in 2012-13 has been presented to the concerned authorities for acceptance.

Status of Public Parks Table 3.17 Physical Status

Status of Public No. of Area of Public Additional Additional area parks Public parks (Sq. ft) Public parks require for Public parks require parks(Sq. ft) Public parks run by 11 196900 20 233600 ULBs Public parks run by 1 27000 0 0 Agency/committee. Public parks run by 0 0 0 0 Trust/community

Table 3.18 Financial Status

Expenditure for Public Per capita Estimated budget for Estimate Per capita parks in year 2011-12 expenditure for Public parks in next expenditure for (in lakh) Public parks in year(in lakh) Public parks in next year 2011-12(in Rs) year(in Rs) 13.37 3.06 89.45 20.48

There are 12 public parks across 56 GPs with area of 196900 sq. ft. The need of 20 more public parks is being expressed. The proposal for the earlier covering an area of 233600 sq. ft. has been submitted. Out of present 12 public parks,

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11 are run by GPs and one is taken care of by committee. An estimated budget of Rs.89.45 for public parks in next year has been presented.

Community halls Table 3.19 Physical status of Community halls Status of Community halls No .of Area of Additional Additional Community Community Community area require halls halls (sq.ft) halls require for Community halls (sq.ft) Community halls run by GP 186 140738 83 112453 Community halls run by 2 1500 0 0 Trust/community Table 3.20 Financial Status

Expenditure for Per capita Estimated budget for Estimate Per Community halls in expenditure for Community halls in capita expenditure year 2011-12(in lakh) Community next year for Community halls in year (in lakh) halls in next year 2011-12(in Rs) (in Rs) 25.52 5.84 224.69 51.46

56 Gram Panchayats have 188 community halls covering area of 142238 sq. ft. Two community halls are run by the community and rest are taken care of by GPs themselves. There is need for 83 more community halls in the next year and an estimated budget for the same of Rs.224.69 has been submitted.

Drinking water Presently there are following sources of drinking water across 56 GPs. – Table 3.21 Status of drinking water resources

Resources Expendi Per Additional Estimate budget for year Per capita ture in capita requirement 2012-13(in lakh) expenditure for 2011-12 expendit Recurring Nonrecurring year 2012-13(in (in lakh) ure in Rs.) 2011- 12(in Rs) Janta Jal 13.13 2.58 1 10.66 0 2.44 PPP 0 0.00 0 6.5 0 1.49

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Hand pump 100.28 19.69 261 0 139.65 31.98 Tube well 14.52 2.85 18 0.2 48.81 11.22 Wells 14.08 2.76 2 0 3.0 0.69 Bawri 0 0.00 0 0 0 0.00 Pond 0 0.00 1 6.0 0 1.37 Tank 74 14.53 193 108.2 24.78 Kund 0.8 0.16 0 0 1.0 0.23 Tape water 0 0.00 0 0 0 0.00 Rain water 57.34 11.26 15 0 50 11.45 harvesting Maintenance 11.74 2.31 32 40.18 0 9.20 of water resources Tanker 0.55 0.11 0 0 0 0.00 supply Pipe line 16.21 3.18 32829 0 42.48 9.73 Other 18.82 3.70 10 0 22 5.04 Total 321.47 63.13 63.54 415.14 109.62

Javata Jal, PPP, Hand Pump, Tube well, Wells, Pond, Tank, Kund, Rain water harvesting, water pipe lines and tanker supplies. Gram Panchayats have incurred Rs.321.44 as expenditure on above drinking water resources in 2011-12. Due to additional requirement of augmentation of above water resources an estimated budget of Rs.478.68 (63.54 recurring + 415.14 nonrecurring) has been presented to the concerned authorities. The availability of drinking water in villages was found in 64.28% GPs i.e. in 36 GPs and out of these 36 GPs the availability of water was adequate in 86% GPs. Proper drinking water was available at the public places in 57% GPs.

Public Health Table 3.22Physical and financial status of Public health activities Material Utilize Expenditure Requirement in Budget Per capita amount in 2011-12 year 2012-13 require in expenditure 2011-12 year for year 2012- 2012- 13(in Rs) 13(in lakh) Insecticide/DDT 0 0 10075 kg 1.87 0.43 Equipments 0 0 56 0.56 0.13 Labour 0 0 2519 3.40 0.78 Total 0 0 0 5.83 1.34

It is a matter of dismay and worry that not a single penny has been spent in 2011-12 on crucially important part of public service i.e. public health activities.

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However, in wake of need to eradicate epidemics and seasonal diseases the Gram Panchayats have submitted an estimated budget of Rs.5.83 to concerned authorities.

Public Toilets Status of Public Toilets Table 3.23 Status of public toilets Status of toilets No. of public Expenditure for Additional Budget for toilets (2011-12) public toilets in requirement of public public toilets (2011-12) toilets in(2012-13) in(2012-13) (in lakh) Public toilets 47 2.5 149 47.243 Sulabh toilets 0 0 1 5.0 Urinals 0 0 0 0 *Toilets for women 12 0 87 20.58 Total 0 52.243 *Expenditure on toilets for women included in public toilets. *Figure of women toilets is also included in public toilets. Table 3.24Assets of toilets cleaning Assets Expenditure in 2011-12 Estimate budget for 2012- 13 Labour charges 0 3.78 Acid/ toilet cleaner 0 0.588 Material require for cleaning toilets(brush,bucket, jhadu) 0 0.56 Total 0 4.928

Table 3.25Status of cleaning of toilets Present Additional Expenditure Per capita Estimated Per capita status of requirement for expenditure budget of Estimated sweepers for of sweepers maintenance for maintenance budget of toilets for cleaning of toilets in maintenance of toilets in maintenance of toilets year 11-12(in of toilets in year 12-13(in of toilets in lakh) year 11-12(in lakh) year 12-13(in Rs) Rs) 4 59 0.12 0.03 4.928 1.13

Presently there are 47 public toilets including a few of toilets for women. Public toilet facility available at gram Panchayat level was found only 25% GPs. The availability of separate toilet facility was found in merely 7.1 GPs. The toilets are cleaned regularly in 3 (21.42) Gram Panchayats (out of 14 GPS). A miniscule number of sweepers i.e. only 4, is of little help to keep toilets clean.

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Therefore, a need of 59 sweepers in the year 2012-13 and an estimated budget of maintenance of toilets have been presented. An additional requirement of 149 more toilets including toilets for women in 2012-13 and estimated budget of Rs.52.243 has been submitted. An amount of Rs.4.928 has also been estimated to spend on labour charges and toilet cleaning assets in 2012-13.

Status of Gram Panchayat Buildings

It is a matter of satisfaction that all the gram panchayats except one in Karauli had their own buildings.

Table 3.26

Own Building of the Gram Panchayat Number (Out of 8) % Karauli 7 87.5 Jaipur 8 100 Ganganagar 8 100 Dungarpur 8 100 Bhilwara 8 100 Barmer 8 100 Kota 8 100 Total 55 98.21

Dhindora in Hindaun PS does not have its own building. It uses the local post office for its activities and does not have to pay any rent. It implies that there is no need in terms of the building requirement for the panchayats.

Activities Being Undertaken by the Gram Panchayats

According to the Rule 33 of the PR Act, the core functions of a panchayat are sanitation, street lighting, safe drinking water, drainage, public distribution system,

Need Assessment of U LBs & Panchayati Raj Institutions maintenance of village roads and birth and death registration. During the study the Sarpanchas were enquired about the works being undertaken by the Gram Panchayat responses were multiple. It was found that the focus at the gram panchayat level was on water and rural housing. About 80 per cent of the gram panchayats reported that they were mainly busy with providing drinking water and constructing rural houses under the Indira Awas Yojana and Chief Minister Awas Yojana. It was found that most of the panchayats do not appreciate the importance of other core functions like drainage, sanitation, public lighting and other community facilities.

Table 3.27 Works being done by Gram Panchayats

Functions Number of (%) Responses (N=56) Providing Drinking Water Facility 29 51.78 Indira Awaas Yojana for BPL Families 27 48.21 Construction and Cleaning of the Drains 26 46.43 CM BPL Awaas Yojana 16 28.57 Tanka Nirman/ Johad Khudai 16 28.57 Rajeev Gandhi IT Centre 12 21.43 Kharanja Nirman 7 12.5 Construction of Boundary Walls (BRGF) 7 12.5 Construction of Roads 5 8.93 Organizing Haat Bazaar 3 5.35 Construction of Community Halls 2 3.57 Maintenance of Street lighting 2 3.57 It is obvious from the above responses that construction activities have overriding priority – for reasons well known and the PRIs do not have their roads remaining dark at night – something more dangerous for women them men.

Availability of a Drainage System

It was found that about half of the gram panchayats had drainage facilities. It was pleasant to see that all the PS in the Dungarpur district had drains in all the

Need Assessment of U LBs & Panchayati Raj Institutions gram panchayats and they were being maintained regularly. It was found that the drains were cleaned regularly by the sweepers who were contractual (appointed by the panchayat) and the community themselves. In Barmer and Ganganagar, people opined that drains were not required as water was scarce and they even made soak pits. The people during the Focussed Group Disscussions felt that the drains available were not sufficient and there was a requirement for drains. It was also suggested that more budget should be provided to accommodate additional sweepers for proper cleaning of drainages.

Present Status of Solid Waste Management

A similar proportion as seen in the area of drainage was seen for solid waste management. Less than 50 per cent of the GPs reported following the solid waste practices. Dungarpur district was found to be following the waste management in almost all the sample GPs while the situation was surprisingly unsatisfactory in Ganganagar where it was reported that in the absence of proper guidelines for budget utilization and higher market rate than the BSR this was not being done – An example of poor governance.

Table 3.28 Status of Solid Waste Management in Sample Gram Panchayats

Solid waste management Responses (%) (N=56) Karauli 4 50 Jaipur 3 37.5 Ganganagar 0 0 Dungarpur 7 87.5 Bhilwara 5 62.5 Barmer 1 12.5 Kota 7 87.5 Total 27 48.21 Dungarpur, a tribal district, is an example to be followed by others.

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From the sampled 56 gram panchayats, the system of solid waste management was working in 27 gram panchayats. Only six out of the total of 56 GPs reported to have been carrying out monthly cleaning. Solid waste management was done twice yearly in 29.62 percent of gram panchayats. It has been seen that in some gram panchayats (22.22 percent) solid waste management is not proper and done only at the time of festivals or during political gatherings. This is being done on contractual basis.

As far as the transfer and dumping practices for solid waste management is concerned the waste is collected at a common place in the gram panchayats and then dumped out of the village. The panchayats hire tractors for the purpose. 92 percent people are not satisfied with the solid waste management. It was also found that there was lack of equipments used for cleaning in one- third of the gram panchayats. It has also come to our notice that dumping is done but there are no garbage disposal plants for treatment and commercial utilization. Most of the community members felt a need for daily cleaning. This shows how people hate garbage but feel helpless.

Street Lighting

Out of 56 gram panchayats, street lighting was available in only 26.78 percent gram panchayats. Lighting facilities were seen in Kota and Dungarpur districts while there was no Panchayat with street lights in Ganganagar. The community revealed that temporary arrangements were being done by the panchayats during festivals. A point of ridicule for a prosperous district like Ganganagar. Dungarpur again shows the path.

Table 3.29 Availability and condition of Street Lighting in the Gram Panchayats

District Availability of street lights (n=56) (%) Lights in Working Condition (%) Karauli 2 25 100 Jaipur 1 12.5 100 Ganganagar 0 0 0 Dungarpur 4 50 100

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Bhilwara 2 25 100 Barmer 1 12.5 100 Kota 5 62.5 80 Total 15 26.78 93.33 Out of the 15 gram panchayats where there were street lights, except one GP in Kota, the street lights were found to be in working condition. They were being maintained by the gram panchayats themselves in most of the GPs except Pander (Jahajpur) where a local contractor had been entrusted the responsibility of maintenance. It was also revealed that there was timely maintenance of the street lights in all the districts except Karauli. The sarpanch and community, both expressed a need for covered lights (for protection from theft, breakage and rains) and a requirement of additional transformers to control fluctuations in the voltage.

Table 3.30 Distance between the Lighting Points (lights) District Distance (in meters) Karauli 30 Jaipur 85 Ganganagar 100 Dungarpur 110 Bhilwara 90 Barmer 85 Kota 175 Average distance 96 Source:Primary Data(interview with the Gram Secretary, Sarpanch and field observation)

The above table reveals the distance between the street light points. The ideal distance is 30 meters(BEE, Ministry of Power) which was seen in case of Karauli district only while the distance was far more than the norms in the other districts. The average distance was calculated at 96 meters which indicates the need for more lighting points in these areas.

During the discussions, the sarpanchs and the community members expressed the need for more resources (both financial and manpower) for improving the scenario in the rural areas. A need for introducing solar technology for street

Need Assessment of U LBs & Panchayati Raj Institutions lighting and using CFL technology for saving power was also emphatically expressed.

Internal Roads

The people expressed their satisfaction on the condition of the roads in the rural areas except the desert and canal area. They suggested that the roads, during construction should have a built-in component of drainage. The sarpanchs felt that there was lack of sufficient funds for proper maintenance of the roads. Surprisingly, Ganganagar has shows its indifference to this core function also.

Cremation and Burial Grounds

The incidences of encroachment on the Cremation and Burial Grounds were found to be all pervasive. About 80% of the community members expressed their dissatisfaction on the maintenance of the crematoria and burial grounds. A need for boundaries, drinking water and shade was felt by them. Surprisingly, only 12% of the sarpanchs and local community members felt the need for more area for cremation and burials. This implies that there is a need for only taking up the maintenance of the existing cremation and burial grounds in the rural areas.

Public Parks

There was a provision of public parks in nine out of the 56 GPs. Most of them were looked after by the gram panchayats and the rest were taken care by the committees/agencies. The condition of the public parks in Kota was appreciable while the others lacked maintenance and were in a bad shape. The main reason stated was a lack of budgetary provision for their upkeep.

Community Centres

Need Assessment of U LBs & Panchayati Raj Institutions

The community halls in a gram panchayat are for multipurpose use. There were community halls in Karauli, Ganganagar and Dungarpur districts while Jaipur and Bhilwara had minimum number of community centres. The basic facilities like sanitation, electricity, drinking water and toilets are lacking in most of the community halls and the maintenance is also unsatisfactory. The community halls are supposed to be self maintaining with the income that they are supposed to make by hiring them out. The hurdle is that presently they do not have even basic facilities like electricity and that would make them lucrative for hiring on important occasions. For lighting purposes, we would like to emphasise on solar power.

Drinking Water

Rajasthan has 1.16% of surface water and 1.70% of ground water of the total resources in the country. As the surface water is very inadequate, there is a growing reliance on ground water with not much effort being made to increase the amount of surface water to provide drinking water to one of the largest growing human and animal population in the country. Over extraction of water from deep wells without any serious effort to re-charge them has led to decreasing potability of water resulting in serious health situation in the State.

Drinking water supply in rural areas is still far below a satisfaction level. We are still finding that the access to drinking water for SC/ST people is much lesser than to the general caste people. It is anybody‘s guess as to when the State will be able to provide 70 litre of water par capita in the desert region and 40 litres the capita in the plains. The minimum requirement of water per capita,we are meeting only 10% of the demand as per norms at present.

44.65% of Rajasthan villages have the problem of fluorides, 82.4% have saline water, 28.6% nitrate compared to the total number of villages in the country. Thus the need of the day is not only to increase the quantity of water to the growing population of men and animals, but also to make whatever is available potable for drinking.

Need Assessment of U LBs & Panchayati Raj Institutions

From the 12th Plan draft document, it is found that the main thrust of the government is to somehow increase the surface water availability without making serious efforts for desalinization and de-fluoridization of the existing quantity of water so that it is also added to the total amount of drinking water. With a large number of villages/ habitations with salinity – out of a total number of 24522 villages in India with salinity, Rajasthan has 20211, the government finds it easier to bring surface water from various parts of Rajasthan for local needs by arguing that the per liter cost of desalinated water is 35 paisa per litre as compared to 30 paisa per litre from surface sources. It is not known whether the cost of so many projects for drinking water like Bisalpur, Jawai Pipe Line Project, Barmer Lift Canal, Bisalpur- Dudu-Phulera Project, Chambal- Sawai-Madhopur-Balar Water Supply Project, Ajmer-Bisalpur Project have been included or not for finding the per litre cost. Similar is the case of de-fluoridization. As has been stated above, out of 23107 villages in India with water containing dangerous levels of fluoride, 10319 are in Rajasthan only. However, the draft 12th Plan does not take it up as a serious matter and depends totally on surface water. As per the report of the PHED Department, the State spent Rs.34.67 crores in 12 districts of Rajasthan in 2643 villages/habitations between March, 2005 to February 2008 for de-fluoridization projects. In the second phase another 5056 villages/habitations were taken up. The State Government took the financial support from UNICEF and cooperation from 19 NGOs for the projects.

It is also surprising that the 12th Plan has provided only Rs.9191.81 crores for rural water supply but 5393.37 for urban water supply. This is disproportionate looking at the rural urban population divide and the presence of large number of animals in the rural areas, which are not there in urban areas. That more required funds were given to urban areas is evident from the expenditure in the 11th Plan where the rural water supply expenditure exceeded the allocation by nearly Rs.1000 crores whereas in the urban areas, the utilization was less than the outlay by Rs.200 crores.

Need Assessment of U LBs & Panchayati Raj Institutions

It is also strongly suggested that the use of chlorine and bleaching powder should be reduced and the PHED should be advised to use the latest technique which is cheaper also like electro-chlorination. Regarding de- fluoridation, the latest method which is cheaper and can be used by ordinary, illiterate villagers is the KRASS de-fluroidation process. It may be reiterated that the upper limit of fluorides in potable water is only 1.5 m.g. per litre whereas in several districts of Rajasthan, the villagers are forced to drink water with fluoride concentrations upto 44 mg. per litre.

KRASS is a new method now under serious field trials and should be looked into by the State. This process is effective for unlimited amount of fluoride concentration in the input water. It is easy and requires minimal involvement of technical personal and is harmless and cost effective. It is supposed to be a practical approach especially for rural population in Rajasthan. The SFC may like to discuss it further with the Department of PHED and provide necessary funds for it, if there is a shortage.

We feel that the earlier we get rid of salinity and fluorides in our drinking water, not only more potable water would be available but also we may not need to bring so much of surface water from long distances. This is an area where the State Finance Commission should provide its support.

We, therefore, suggest that more funds should be provided through the State Plan with augmentation by the State Finance Commission for rural water supply. If needed the State Finance Commission should also provide necessary funds for complete de- fluoridization and de-salinization in all the districts during the 12th Plan particularly in the desert districts viz Barmer, Jaisalmer, Nagaur, Jodhpur and Bikaner. The cost of a desalination plant is Rs 12 Lakhs/Unit with a useful life of 10 years for a population of 1000.

The expenditure out of the total funds provided to the PHED for rural water supply should be closely monitored by the Gram Panchayats. It is also suggested that the State Finance Commission may provide funds for repairing of pump motors for drawing water, if there is need for more than one repair.

Need Assessment of U LBs & Panchayati Raj Institutions

The table 3.7 reveals that the availability of drinking water in the nearest habitation was inmere 64.10 percent of the sampled panchayats. The water is mostly provided to the main village only. This needs for some local arrangements for supplying it to other parts of the Gram Panchayats. At a few gram panchayats in Ganganagar, there is no potable water source and they use irrigation water for drinking purposes.In a place like Barmer, habitation is scattered and it becomes difficult to provide water by conventional ways. This leaves the onus on either the gram panchayat or the individual to make thier own arrangements (tankers, rain water harvesting).

The condition of drinking water availability at public places (markets, schools, bus stands, hospitals, etc) is even more unsatisfactory. Drinking water is available at only 57.14 percent of public places. In Kota, the facility was decent because of the high number of taps under the “pach pahad”.The Ramganj Mandi Pach Pahad Water Supply Project was envisaged to provid drinking water to 220 villages of Ramganj Mandi, Pach Pahad and Bhainsroadgarh, Tehsil and four towns of Jhalawar and Chittorgarh. Total sanction cost of the project in Rs.196 crore and it is being funded NABARD under RIDF. The project has been completed and five towns and 220 villages are being benefits from the project. It was found that the taps under this project have been placed at community places and has resulted in continued water supply at the public places.

It was found that PHED provides water in 91.07 percent of gram panchayats of the sampled districts. This was being done by the ground level reservoirs, overhead tanks (with taps) and hand pumps. The maintenance and filtration are being looked after by the PHED. Mostly, the water is supplied to the main village and not to the remote villages. Even the onus of maintenance of hand pumps and electricity for boring is being borne by the panchayats. In addition, it also has the additional responsibility of maintaining the traditional water sources like tanka, pokhar and johar.

Table 3.31 Availability of Drinking Water in Habitations District (%) Karauli 75

Need Assessment of U LBs & Panchayati Raj Institutions

Jaipur 68 Ganganagar 84.11 Dungarpur 71.65 Bhilwara 59 Barmer 13 Kota 78 Total (Average) 64.10

Table 3.32 Source of Drinking Water Districts PHED Tankers Hand pumps Rain Water Others Harvesting Karauli 7 2 4 0 1 Jaipur 6 4 6 0 1 Ganganagar 8 0 0 0 0 Dungarpur 7 0 7 0 2 Bhilwara 7 1 8 0 1 Barmer 8 2 4 6 0 Kota 8 1 7 1 2 Total 51 10 36 7 7 It is obvious that rainwater harvesting has not been popularized in most of the districts. Barmer is an exception because rainwater harvesting has been a tradition for centuries.

The analysis shows that there are wide gaps in the availability of drinking water – an area of utmost priority for the State Finance Commission.

Health and Sanitation

To control epidemic diseases most of the village secretaries admitted that no activity was undertaken due to lack of coordination among PHED, health and Panchayati raj departments. There were suggestions that water storage tanks should be regularly cleaned and chlorinated. Timely and proper fogging would prevent the case of epidemics which is not being done. Insecticides should be sprayed regularly before the onset of rains which is presently not being done timely. They also suggested that there should be proper coordination between health department and panchayati raj.

Need Assessment of U LBs & Panchayati Raj Institutions

There were hardly any public toilet facilities at gram panchayats. The maximum number of public toilets was in Kota and Ganganagar while there were hardly any in the other districts. The regular maintenance, cleaning and condition of the public toilets was dismal. The Sarpanchs opined that they do not promote the idea of public toilets due to lack of maintenance and cleanliness which eventually makes them non usable. Separate toilet facility for ladies was also not available calling for an urgent requirement specifically at community places.

Own Sources of Revenue

Four gram panchayats out of 56 reported to have their own source of revenue. For the prime reason of losing votes and goodwill, the Sarpanchs were reluctant to levy any kind of local taxes to augment revenue. Out of these four panchayats one was from Kota, two from Dungarpur and one from Bhilwara. Two of these panchayats have levied taxes on haat, one as House tax and the fourth on taxes on Land Deeds. On being asked whether the Sarpanch was willing to introduce a new tax to be levied by the Gram Panchayats, two third of them expressed reluctance. This is a trend which needs to be checked with disincentives.

Table 3.33 Opinion about the acceptability of these taxes by People

District Responses Karauli 2 Jaipur 3 Ganganagar 3 Dungarpur 0 Bhilwara 2 Barmer 0 Kota 5 Total 15

Table 3.34 New Taxes which may be introduced S.No. Item Response 1 Taxes on liquor shops 11 2 Small shops,thadi 9 3 Percentage on registries 4 4 Mobile towers 3

Need Assessment of U LBs & Panchayati Raj Institutions

5 Taxes on mining 2 6 Vehicle tax 1 7 Sanitation tax 1 8 Marriage lawns,places 1 9 Road tax 1 10 Grazing lands(charagah) 1 11 Highway restaurants 1 12 Taxes on factories 1 13 Taxes on agriculture production 1 14 Taxes on fairs 1

During the study, an attempt was made to enquire about the willingness of the Sarpanchas to levy taxes by the Gram Panchayats. In addition they were also asked to identify the areas where these taxes may be levied. It was found that majority of them proposed to levy taxes on liquor shops, small shops, thadis and mobile towers. Other suggestions included percent on registry amount, mining tax,tax on marriage lawns etc.

Out of 21 gram panchayats who expressed their willingness to levy taxes in future, people in 15 gram panchayats expressed their readiness for paying the taxes whereas people from 6 gram panchayats do not favour the idea of any new taxes. In Barmer and Dungarpur, people are not ready for new taxes as they are financially not sound.

Details of Works being done by SFC/TFC Grant

Most of the grants received from the finance commissions are spent on drinking water, emoluments of the elected representatives, drainage and roads. Some of the GPs mentioned spending on sanitation, street lighting, solid waste management and public facilities but it seemed that these activities are not on the priority list of the GPs.

Formation of Development Committees

Need Assessment of U LBs & Panchayati Raj Institutions

There are development committees proposed under every scheme to plan, monitor and supervise them. The Gram Panchayat Secretary was asked about the formation and functioning committees that have been formed under the Gram Panchayat. That most of these communities still are just created for formality shake and are not functional.

The Gram Secretary were aware of the Vitt evam Karadhan Samiti, Shiksha Samiti, Prashashan evam Stapna Samiti, Jal evam Swachata Samiti, Gramin Vikas evam Samajik Ankeshen Samiti. It is primarily due to the reason that the concern development project SSA, NRHM, MNREGS, etc. These committees have been formed as the funds are chanalized through these committees however. All the GPs reported to be forming their annual plan but it was found that it was just a routine exercise which does not reflect the local needs or the community voices.

Table 3.35 Gram Panchayat Committees for Rural Development

S.No. Name of Committee Response (n-56) Functional Committees 1 Shiksha samiti 45 3 2 Vitt and karadhan 42 1 3 Prashashan aur Staphna 40 7 4 Jal aur swachata n health samiti 35 1 5 Gramin vikas samiti 23 2 6 Samajik ankekshan 19 12 7 Arthik and samajik 17 8 Satarkta samiti 10 6 9 Sthai nigrani samiti 8 10 NREGA sthai samiti 5 2 11 Nirman samiti 4 12 Goshala a charagah vikas samiti 4 1 13 Sarvjanik vitran pranali nigrani 4 samiti

Need Assessment of U LBs & Panchayati Raj Institutions

14 Mahila and vikas samiti 1 15 Kalyankari yojna samiti 1 16 Lekha avam vitt samiti 1 It was found out that there was transparency in the matter of funds received from various sources. The community members also expressed their awareness about the funds received by the GP. It was found that the expenditure and audit were transparent and available to the community. The work plan and its implementation are also communicated to the people of the community by various sources. According to the secretaries the most important source is Gram Sabha.

Table 3.36 Activities for Women Empowerment

S.No. Activities Response (n-56) Percentage 1 Formation of Self Help Groups 48 85.71 2 Skill Trainings 12 21.42 3 Campaigns for awareness 6 10.73 4 Priority in MNREGA 3 5.35

The activities performed by gram panchayats for the empowerment of women have been shown in the tableabove. SHGs seem to be the most popular vehicle for women empowerment particularly in Barmer and Dungarpur. It was found that 48 gram panchayats do not receive any budget for women empowerment. The rest of the gram panchayats receive budget from SGSY for training and literacy.

Awards/Rewards Received by the Gram Panchayats

It was found that 15 out of the 56 GPs have earned recognition by the central and state governments in the form of Nirmal Gram Award, Rs 1 lakh were given as reward to fulfil the targets for female sterilization, fulfilling targets of family welfare, etc. All the stakeholders were very positive about the reward system as they felt it promoted the zeal for development and motivated the representatives for performance.

Need Assessment of U LBs & Panchayati Raj Institutions

The Status of Urban Local Bodies  (ULBs)

A Review

Recent years have witnessed an increasing interest in and growing consciousness of the need and importance of local self-government as a provider of services to the community as well as an instrument of democratic self-government. Until recently, urban local government was manifested in municipal corporations, municipal councils, municipalities and notified area committees. However, the 74th CAA 1992 proposed to form a uniform structure of Municipal Corporations, Municipal Councils and Municipalities.

Urban local bodies are supposed to be formed as democratic institutions based on the principles of self-government and should represent people‘s desires and strengths. Due to massive urban growth during the past two decades, quality of urban life has deteriorated, creating an urgent need for vibrant and efficient ULBs that can deliver adequate services and improve living conditions. Lord governments are in the best position to improve service delivery as they allow for increasing both allocative efficiency through better matching of public services to local preference as well as productive efficiency through increased accountability of local governments to citizens, fewer levels of bureaucracy and better knowledge of local costs.

The 74th CAA 1992 has acted upon the recommendations of the Rural-Urban Relationship Committee and seeks to provide more power and authority to urban local bodies. It is the first serious attempt to ensure stabilization of democratic

Need Assessment of U LBs & Panchayati Raj Institutions municipal government through constitutional provisions. The 74th CAA seeks to introduce fundamental changes in urban local bodies. Its salient feature are :

 introduction of the Twelfth Schedule which lists the functions of the urban local bodies, covering planning, regulation and development aspects (Box 4.1);  establishment of District and Metropolitan planning responsible for the election of representatives for the preparation of development plans at district and metropolitan levels;  establishment of ward committees in areas having a population of over 300,000;  specification by law of the powers and responsibilities;entrusted to municipalities and ward committees;  holding of periodic and timely elections.If a municipality is dissolved for any reason it should be reconstituted within six months.  Specifying by law the sources of municipal finances and their periodic review by a statutorily constituted SFC and by making it obligatory on the part of the Central Finance Commission to recommend measures needed to augment state resources to assist the municipal governments;  Restrictions on the power of state governments to do away with democratically elected municipal governments;  Reservation of one-third of seats for women and weaker sections in municipal bodies;

Need Assessment of U LBs & Panchayati Raj Institutions

Box 4.1

Twelfth Schedule of the Constitution of India

1. Urban planning, including town planning. 2. Regulation of land use and construction of buildings. 3. Planning for economic and social development. 4. Roads and bridges. 5. Water supply for domestic, industrial and commercial purposes. 6. Public health, sanitation, conservancy and solid waste management.

7. Fire services. 8. Urban forestry, protection of environment and promotion of

ecological aspects. 9. Safeguarding the interests of weaker sections of society, including

the disabled and mentally retarded.

10. Slum improvement and upgrading. 11. Urban poverty alleviation.

12. Provision of urban amenities and facilities such as parks, gardens, playgrounds, etc.

13. Promotion of cultural, educational and aesthetic aspects.

14. Cremation and burial grounds with stress on electric cremation. 15. Cattle pounds; prevention of cruelty to animals.

16. Vital statistics, including registration of births and deaths. 17. Public amenities, including street lighting, parking lots, bus stops,

and public conveniences. 18. Regulation of slaughter houses and tanneries.

(This schedule was added by the Constitution (Seventy-fourth Amendment) Act, 1992, sec.4)

Need Assessment of U LBs & Panchayati Raj Institutions

In order to assess the present field situation a focused survey was done of the various categories of the Urban Local Bodies by our Institution. In each of the ULBs, interviews of the EO/CEO, two Councilors (Parshads) and twenty community members were conducted. In addition, one Focus Group Discussion (FGD) was also conducted to ascertain the public opinion. The first section of this chapter focuses on the situation on the basis of the secondary data collected from the ULBs, while the second focuses on the opinion of the CEO/Councilor/Community on the delivery of the basic services.

MUNICIPAL BOARDS

The following municipal boards were selected according to the prescribed methodology (see Chapter 2) for the study:

Table 4.1 – Sample ULBs for the Study

S.N District Name of Municipal Board GRADE II 1 Chittaurgarh Chittaurgarh 2 Sawai Madhopur Sawai Madhopur 3 Tonk Deoli GRADE III 4 Hanumangarh Peelibanga 5 Nagaur Kuchaman 6 Dausa Bandikui GRADE IV 7 Tonk Uniara 8 Bundi Kapren 9 Nagaur Nawan 10 Jhunjhunu Surajgarh 11 Jaipur Jobner

Demographic profile

The population of the municipal boards was in consonance with the prescribed norms for the categorization. The average number of wards was found to

Need Assessment of U LBs & Panchayati Raj Institutions be 18 in G-II, 27 in G-III and 34 in G-IV. The incidence of poverty as reflected in the number of BPL families at the Grade IV level was found to be high.

Table 4.2 – Population Details of the sample ULBs

Average Area Average no. Average Average Population ULBs (Sq of Number Number of Census km) households of BPL wards 2011) families under ULBs Municipal Board GRADE II 86496 28.2 21998 3170 34 Municipal Board GRADE III 48160 16.3 8905 1515 27 Municipal Board GRADE IV 18746 7.8 3733 1035 18

Roles and responsibilities of ULBs

An attempt to identify the functions that are being carried out by the ULBs vis a vis the roles and responsibilities of ULBs given under Schedule-XII by the Constitution of India. It was found that in Grade IV bodies, only building and of land use activities, construction of roads, sanitation, solid waste management and death-birth registration activities were being done. There was a total absence of investing for social and economic development. Fire management, slum rehabilitation; regulation of slaughterhouses is completely missing at this level. Other activities are being carried out only in some of the sample grade IV ULBs. The same fact were found for Grade III municipalities. In Grade II ULBs, except for the regulation of slaughter houses, almost all the other activities are being done by the ULBs. It is found that the focus of the Municipal Boards is on building and conversion of land use activities and construction of roads. Sanitation, solid waste management and death-birth registration activities.

Need Assessment of U LBs & Panchayati Raj Institutions

S Income heads Grade-2 Grade-3 Grade-4 N Income year % of Income % of Income % of 2011-12(in Total year Total year 2011- Total lakh) income 2011- income 12(in income 12(in lakh) lakh)

1 Govt grants 806.41 16.43 163.75 8.16 221.03 19.95

2 Schemes 855.85 17.44 195.51 9.74 61.55 5.55

3 Own Resource 732.19 14.92 343.29 17.11 148.78 13.43

4 Octroi 1537.18 31.32 552.64 27.54 321.77 29.04 Reimbursement

Income of the Municipal Boards

Table 4.3 Position of Income from govt. grants /schemes/own resources

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5 Sell out Of Properties 816.8 16.64 73.74 3.68 47.26 4.27

6 Income from Security 158.95 3.24 18.95 0.94 65.28 5.89

7 Pension Fund 0 0 0 0 41.7 3.76

8 Opening Balance 0 0 658.57 32.82 200.69 18.11

Total 4907.38 100 2006.45 100 1108.06 100

Position of Income for grade-3

Govt grants, 8% Schemes, 10% Opening Balance, 33% Own Resource, 17%

0% 79 4% 1% Octroi Reimbursement , 27% Sell out Of Properties Income from Security Pension Fund Need Assessment of U LBs & Panchayati Raj Institutions

Position of Income for grade-4

Opening Balance, 18% Govt grants, 20% 4% 6% 6% Own 4% Resource, 13% Octroi Reimbursement , 29%

Schemes Sell out Of Properties Income from Security Pension Fund

Table 4.4 Position of Expenditure in year 2011-12

S Expenditure head Grade-2 Grade-3 Grade-4 N Expenditure in % of Total Expenditure % of Total Expenditure % of Total year 2011- Expenditure in year Expenditure in year Expenditure 12(lakh) 2011- 2011- 12(lakh) 12(lakh) 1 Establishment 1849.19 39.50 644.32 50.59 425.53 45.74 2 Administration 273.4 5.84 38.04 2.99 39.55 4.25 3 Solid waste 123.73 2.64 105.61 8.29 174.92 18.80 4 Street lighting 141.81 3.03 50.99 4.00 28.32 3.04 5 Election &Programmes 82.5 1.76 10.38 0.81 0.19 0.02 6 Other programmes 135 2.88 15 1.18 13.53 1.45 7 Road & Over bridge 870.77 18.60 222.00 17.43 83.27 8.95 8 Drainage 41.04 0.88 101.97 8.01 50.3 5.41 10 Burials and burial 18.5 0.40 3.75 0.29 0 0.00 ground 11 Community hall 56.8 1.21 5.00 0.39 5.45 0.59 12 Garaging land 0 0.00 0 0.00 0.5 0.05 13 Garage 16 0.34 0 0.00 0 0.00

Need Assessment of U LBs & Panchayati Raj Institutions

14 Public Health 5.23 0.11 1.5 0.12 0 0.00 15 Public Toilets 5.59 0.12 5.25 0.41 2.97 0.32 16 Park 35.15 0.75 12.86 1.01 2.46 0.26 17 Water 47.09 1.01 10.3 0.81 0.72 0.08 18 Vehicle 40 0.85 39.07 3.07 23.88 2.57 19 Fire Brigade 79.96 1.71 5.11 0.40 5.68 0.61 20 Sewage 0 0.00 0 0.00 0 0.00 21 Other office expenses 860 18.37 2.5 0.20 0 0.00 22 Other 0 0 0 0 73.04 7.85 Total 4681.76 100.00 1273.65 100.00 930.31 100

Expenditure in year 2011-12 Grade-2

Other office expenses 18%

Others Establishment & 12% Administration 45% Public Health &Public Toilets 0% Road & Over bridge 19%

Street lighting Solid waste 3% 3%

Expenditure in year 2011-12 Grade-3 Other office expenses 0%

Public Health Others &Public Toilets 16% 1%

Road & Over bridge Establishment&Ad 17% ministration 54%

Solid Street lighting waste 4% 8%

Need Assessment of U LBs & Panchayati Raj Institutions

Expenditure in year 2011-12 Grade-4 Other office expenses 0%

Public Health &Public Toilets Others 1% 16%

Road & Over bridge Establishment&Ad 17% ministration 54%

Solid Street lighting waste 4% 8%

Table 4.5Estimated budget for the year 2012-13

SN Budget head Estimate % of Total Per capita Per budget for Expenditure Expenditure Household year 2012-13(` (`) Expenditure in Lakh) (`) 1 Establishment 3328.97 39.67 668.87 2988.95 2 Administration 420.48 5.01 84.48 377.53 3 Solid Waste 522.03 6.22 104.89 468.71 4 Street Lighting 274.60 3.27 55.17 246.55 5 Election 129.50 &Programmes 1.54 26.02 116.27 6 Other expenses 1602.40 19.09 321.96 1438.73 7 Road 637.07 &Overbridges 7.59 128.00 572.00 8 Drainage 462.75 5.51 92.98 415.48 9 Cremation and 28.50 burial grounds 0.34 5.73 25.59 10 Community halls 108.90 1.30 21.88 97.78 11 Garages 17.60 0.21 3.54 15.80 12 Public Health 18.73 0.22 3.76 16.82 13 Public Toilets 61.84 0.74 12.43 55.52 14 Parks 76.66 0.91 15.40 68.83 15 Drinking Water 114.10 1.36 22.93 102.45 16 Vehicles 90.18 1.07 18.12 80.97 17 Fire Brigade 204.10 2.43 41.01 183.25 18 Sewage 3.60 0.04 0.72 3.23 19 Others 290.60 3.46 58.39 260.92 Total 8392.61 100.00 1686.28 7535.39

Need Assessment of U LBs & Panchayati Raj Institutions

SOLID WASTE MANAGEMENT

The amount of solid waste for a day in 147.5 tonnes out of which only 137.2 tonnes is collected everyday and the remaining 10.3 tonnes remains uncollected raising problems of pollution for inhabitantly. In fact, the per capita output of solid waste is 0.30 kg. It is necessary to improve the process of collecting solid waste.

Across all the sampled boards, presently there are 872 sweepers, out of whom 34.8% are on contract. The requirement is for 980 more sweepers. It means that at present the number of sweepers (1 sweeper for 570 persons) is not as per laid down requirements. With the addition of 980 more sweepers the coverage in terms of persons covered will be with comes down to 268. Though it is still above the prescribed average, of one sweeper per 250 populations, there will be a quantum jump from the present status of sweepers in numbers.

Table 4.6 Requirement ofManpower forSolid Waste Management

Municipal Present Proposed Board Sweepers Jamadars Population Additional Planned Total Regular Contractual (Per sweeper) requirement coverage of sweepers population per sweeper Grade II 500 376 124 13 519 500 259 Grade III 188 123 65 2 768 305 293 Grade IV 184 69 115 3 509 175 261 Above table reveals that as the estimated population across sampled Grade-II ULBs comes to 259489. Presently there are 500 sweepers, out of whom 367 are regular and 124 are contractual. The additional requirements of 519 more sweepers will make the coverage of population per sweeper to 259, which at present is 519, much higher than the prescribed average i.e. one sweeper per 250 populations.

In III grade Municipal Boards, at present there are 188 sweepers out of whom 123 are regular and 65 are contractual. The average population of such boards is 144481. Thus 768 populations are covered by one sweeper.With the quantum increase of sweepers by 305, the coverage of population will come to 293 by one sweepers.

Need Assessment of U LBs & Panchayati Raj Institutions

Grade-IV municipal Boards has the estimated population as 93731 and 184 sweepers at present, of which 115 are regular and 03 are contractual. With additional requirement of 175 were sweepers, the coverage of population by one sweeper will come to 261, which presently is 509.

Interval of Cleaning

Though as per prescribed norms, the clearing of garbage and cleaning of roads and lanes should be done twice a day, the practice of cleaning once a day is in vogue. There is no need to change it.

Status of Equipment for cleaning and clearing garbage

Various kinds of equipments are used for cleaning and collection of garbage. There is need to further augment the capacity of these equipments for which a budget estimate of Rs.202.82 lakhs has been proposed by the respective Municipal Board. These estimates in physical and financial terms have been taken from the Annual Plan of the concerned Municipal Boards.

Table 4.7 Status and needs of Equipments for Solid Waste Management in Sample Municipal Board SN Assets Present Additional Estimate budget status requirement required in next year in next year ` in lakh 1 1cubic m. Dustbins 334 48 2.424 2 3 cubic m. Dustbins 212 65 12.58 3 7.5cubic m. Dustbins 5 20 15 4 Tri cycles 4 0 0 5 Rehedi (with dustbins) 55 25 1.25 6 Tractors 31 16 85.62 7 Mini trucks 10 0 0 8 Trucks 0 1 9.8 9 Tippers 1 3 30 10 Compactors 1 0 0 11 Dumper Placers 4 4 21.61 12 Loaders 7 2 19.8 13 Container lifting devices 3 1 1.74 14 Auto placers 0 0 0 15 Others (JCB) 4 0 0 16 Tempo loaders 4 2 3

Need Assessment of U LBs & Panchayati Raj Institutions

Total 202.824 Solid Waste Production

On the basis of the data obtained from the EOs of the respective ULBs it was found that average production of solid waste per capita was 300gm per capita per day. This has been taken as the norm for solid waste production while calculating the costs in the later chapters.

Table 4.8 Production of solid waste per day Production Solid waste Gap in Production Production of of solid pick up per solid waste of solid solid waste per waste per day waste per household day capita (in tonnes) (in tonnes) (in tonnes) (in kg) (in kg) Total 147.5 137.2 10 0.30 1.32 Status of Street Lights

In the year 2011-12, there were 31610 street light points. It is proposed to increase the number to 34216, thus bringing the per capita light points to 15.52 in the year 2012-13 from 17.35 in the year 2011-12.

It may be stated that the situation in this regard is better in small towns (with municipal boards) than in cities.On the other hand, however, the small towns have only 152 timers for regulating the street lights. In fact, there should be 1 timer for 50 lights. Presently,one timer regulates 208 street light points. This situation is liable to have adverse impact on the functioning of street lights. Danger of the collapse of street light system is inherent in such situations.

Table 4.9 Status of street lighting points

LED CFL Available Estimated Estimated Available Estimate Estimated Equipment in year no. for next budget in year d no. for budget for 2011-12 year for next 2011-12 next year next year year (` Lakh) (`Lakh) Tube lights 18084 1200 12.21 6266 496 4.376 Bulbs 2131 535 1.87 337 70 0.56 Mercurys 200 0 0 0 0 0 Sodium lights 3980 285 9.975 472 4 0 High mask 26 6 10.8 14 0 0

Need Assessment of U LBs & Panchayati Raj Institutions lights Gen. bulbs 0 0 0 0 10 360 Others 0 0 0 100 0 0 Total Points 24421 2026 34.855 7189 580 364.936

Table 4.10 Status of timers

Status of Timer Solar Automatic Manual Coverage Coverage points per population per timer timer 2011-12 0 139 13 207.96 3274.35

Table 4.11 Status of street light points

Number of Coverage Number of points Coverage points in population in 2012-13 population per 2011-12 per point point Grade II 18920 13.71 19619 13.22 Grade III 8142 17.75 9379 15.40 Grade IV 4548 20.60 5218 17.96

FIRE FIGHTING EQUIPMENT

Table 4.12 Status of equipments

Equipments Status in Estimated Estimated budget year 2011-12 Requirement for for 2012-13 2012-13 (` inLakh) Snorkel/hydraulic platform 0 0 0 Water blazers 5 3 28.5 Foam tenders 1 3 37 Water tenders 5 4 32 Jeeps 0 0 0 Others 0 0 0

Need Assessment of U LBs & Panchayati Raj Institutions

The equipment for fire fighting is not adequately available in the small towns. There is need to augment the capacity of equipment available for fire fighting. Three more water blazers, three foam tenders and four water tenders are required for which an estimated expenditure of 243.3 lakhs is needed in addition to the exsisting setup.

Waste water drainage

There is need to have drainage outfits for 722 kms.. Presently, the drainage system accounts for 119.2 km which is much less than the requirement. 54 km of drainage system have been proposed for the year 2012-13. Repair is needed for 17.3 kms. of the existing length of the drainage system.

Table 4.13 Physical Status of drainage (Nalis)

Requirement Total length Proposed nali in Proposed of nali (km) of drainage next year (km) maintenance of nali nali (km) in next year(km) Grade II 81.2. 485 27 10 Grade III 12.5 51.5 10.5 2.6 Grade IV 25.5 66.5 16.5 4.7 Total 119.2 603 54 17.3 In Grade-II Municipal Boards across the sample the present length of drainage is 485 km. and requirement of 81.2 km. of nail is proposed, out of which 27 km. of nail is required to be constructed in 2012-13 and 10 km. nali‘s maintenance is proposed in 2012-13.

Grade-III sampled Municipal Boards have 51.5 km. of nail, with the proposal of requirement of 12.5 km. nail, 10.5 km. will be constructed and 2.6 km. will be maintained in the year 2012-13.

At present 66.5 of drainage is there in Grade-IV sampled Municipal Boards. It has been proposed that 25.5 km. of nail is required, out of which 16.5 km. nail is proposed for construction and 4.7 km. for maintenance in the year 2012-13.

Table 4.14 Financial Status of drainage (Nalis) 87

Need Assessment of U LBs & Panchayati Raj Institutions

Expenditure Expenditure for Estimate budget for Estimate budget for for nali maintenance of nali(2012-13) maintenance of (2011-12) nali (2011-12) nali(2012-13) Lakh Lakh Lakh Lakh Grade II 36.82 4.22 86.40 4.6 Grade III 82.97 19.00 184.00 50.0 Grade IV 35.00 15.30 80.00 57.75 Total 154.79 38.52 350.40 112.35 Grade-II sampled Municipal Boards have incurred the expenditure of Rs.36.82 lakh on construction of nail and Rs.4.22 on maintenance of nail in 2011-12. There is a proposed estimated expenditure of Rs.86.40 lakh for construction of nail and Rs.4.6 lakh for maintenance in the year 2012-13.

In Grade-III sampled Municipal Board the expenditure of Rs.35.00 lakh on construction of nail and Rs.15.30 lakh on maintenance of the same has been done in 2011-12. Rs. 80.00 lakh for construction of nail and Rs.57.75 lakh for maintenance are proposed for the year 2012-13.

Across the sampled Municipal Boards of Grade-IV, Rs.182.97 lakh has been incurred as expenditure on construction of nail and Rs.19.00 lakh on maintenance in 2011-12. The estimated expenditure for 2012-13 of Rs.184.00 lakh on construction and Rs.50.00 lakh on maintenance is proposed.

Status of Public Toilets Presently, there are 166 public toilets, eight sulabh toilets and six urinals. There is need to have 86 public toilets and fivesulabh toilets for which proposal has been made at appropriate level. An estimated budget of Rs.61.7 lakh has been proposed and submitted for acceptance to the concerned authorities by the municipalities.

Cremation and Burial Grounds Presently there are 57 cremation grounds and 21 grave yards, with 162.5bigha and 73.5bigha of land respectively. There is need to have 5bigha more for cremation grounds.

Table 4.15 Physical status 88

Need Assessment of U LBs & Panchayati Raj Institutions

No .of cremation and Area of cremation and Additional area burial grounds burial grounds require for cremation (in bighas) and burial ground (in bighas) Cremation Burial Cremation Burial Cremation Burial grounds grounds ground

Grade II 19 8 21.5 13 .0 0 0 Grade III 9 5 42.5 38.5 0 0 Grade IV 29 8 98.5 25 5 - Total 57 21 162.5 73.5 5 0

Public Parks There are 86 public parks managed by the ULB‘s, covering 1955 sq. meters each. 16 more public parks are needed for which proposals have been submitted. Presently, there are 97 gardeners for the maintenance of these parks, which is satisfactory.

Table 4.16 Physical status of Public Parks

Status of Public No .of Area of Additional Additional area parks Public Public parks Public parks require for parks (sq.meter) require Public parks(sq.meter)

Public parks run by 86 168140 16 37442 ULBs

Table 4.17

Total no. of workers in Regular Contractual public parks 97 9 88

Community Halls There are 56 community halls and 39 more have been proposed for the year 2012-13. Presently, there is one community hall for around 9000 people.

Table 4.18 Physical status of Community halls

Status of No. of Area of Additional Additional area Community halls Community Community Community required for

Need Assessment of U LBs & Panchayati Raj Institutions

halls halls(in Sq. halls Community ft.) required halls(in Sq.ft.) Community halls run 56 24865 39 24075 by ULBs

Roads The total length of roads etc. in the sampled ULBs comes to 713 kms. It is proposed to construct 21.6 kms. of roads during the year 2012-13.

Table 4.19

Construction Total Constructio construction Estimate Estimate Per Km length of n of of construction budget for expenditure roads Road/pulia/ Road/pulia/r of Road/puli 12-13(`in /number rapat in apat in year Road/pulia/ a/rapat in lakh) in year 2011-12 2012-13 (KM) rapat in year 2012- present (KM) year 2012-13 13 (KM) (`in lakh) C.C. Roads 262.8 19.63 21.86 13.8 287.23 20.79 Kachchi 39 0 3 1 2 2.0 Roads Pukki Roads 434.3 3 20.6 6.4 96.8 15.12 Rapats 35 10 16 13 91 7.0 Gravel Roads 16 3 2 1.4 10 7.14 Total 487.03

Repair of Roads

Out of 713.1 km of roads, etc. 36.2 kms. of roads need repairs for which proposals have been submitted with estimated budgetary requirements.

Table 4.20 Physical and financial status for Repairing of Road/pulia/rapat

Repairing Repairing Repairing of Estimate Estimate budget Per KM Per capita of Road/pulia/r Repairing of for Repairing expenditure expenditure Road/puli apat in year Road/pulia/r Road/pulia/rapat 2012-13 2012-13 a/rapat in 2012-13(KM) apat in year in year 2012-13 (`in lakh) (`in Rs) year 2011- 2012-13(KM) in Lakh 12 C.C. Roads 28.4 13 21.2 97.04 4.58 19.50

Need Assessment of U LBs & Panchayati Raj Institutions

Kachchi 0 0 0 0 0 0.00 Roads Pukki Roads 2 3.4 0 0 0 0.00 Gravel Roads 25.5 2.3 15 53 3.54 10.65 Rapats 0 0 0 0 0 0.00 Pulias 0 0 0 0 0 0.00 Total 30.15

Public Health System For material for the maintenance of public health, Rs.9.7 lakhs were spent during the year 2011-12. It is proposed to spend Rs.18.7 lakhs during the year 2012-13.

Table 4.21 Physical and financial status of Public health activities

Material Utilized Expenditure Requirement Budget Per amount in 2011-12 in year 2012- require in capita 2011- 2013(Kg\ltr) year 2012-13 (ìn lakh) (ìn Rs) 2012(Kg\ltr) (ìn lakh) Insecticide/D.D.T. 13800.0 4.2 18600.0 5.4 1.09 Fogging 500.0 0.3 100.0 0.8 0.16 Lime 150.0 0.0 150.0 0.0 0.00 Nuvan 0.0 0.0 0.0 0.0 0.00 Phenyl 7365.0 4.1 18600.0 11.2 2.24 Crude oil 870.0 0.4 1070.0 0.7 0.14 Acid(Salt) 3600.0 0.4 5000.0 0.5 0.10 Equipments 3.0 0.3 1.0 0.1 0.02 Total 9.7 18.7 3.76

MUNICIPAL COUNCILS

The Municipal Councils, two were selected on the basis of the composite index. They were Churu and Udaipur.

Municipal Councils were enquired about the activities being undertaken to ascertain their focus. It was reported that almost all the roles and responsibilities of

Need Assessment of U LBs & Panchayati Raj Institutions

ULBs given under Schedule-XII of theConstitution of India are being undertaken by the Municipal Councils.

SOLID WASTE MANAGEMENT

Status of Sweepers

At present the total number of sweepers is 1884 out of whom 55% are on contract. The average of population per sweeper comes to 319. There is need to improve the situation in this regard. It is proposed to have 500 more sweepers in order to have a better average of population per sweeper. In that situation the average will be 252 persons per sweeper.

There are 26 Jamadars to supervise the work of 1884 sweepers. It is indeed a tall order as presently there are 72 sweepers working under one Jamadar. With the increase in the number of Sweepers, the number of Jamadar should also be increased. Hence it is proposed to have 69 more Jamadars in order to have 25 sweepers under one Jamadar on an average. This will also be in accordance with prescribed norms.

Table 4.22 Status of sweepers

Present Proposed Sweepers Sweepers Total Regular Contractual Jamadars Coverage Additional Planned population requirement coverage population (Per sweeper) (per sweeper) 1884 849 1035 26 319 500 252 As per rules, the cleaning of roads and removal of garbage should be done twice in a day. But presently this is being done only once in a day. There is need to adhere to the norm and it may be possible with the addition of 500 more sweepers as proposed above.

Status of Equipments

Need Assessment of U LBs & Panchayati Raj Institutions

There are 13 kinds of equipment for cleaning and removal of garbage etc. There is need to augment the equipments with additional inputs. An estimated budget for this purpose has been prepared amounting to 272.8 lakhs.

Table 4.23 Status of assets

S N Assets Present Additional Estimate budget status requirement require in next in next year year(Lakh) 1 1cubic m. 80 10 0.35450 2 3 cubic m. 35 20 3.0 3 7.5cubic m. 6 - - 4 Tri cycle - - - 5 Rehedi(with dustbins) - - - 6 Tractor 16 4 20.14 7 Mini truck 1 1 10.0 8 Truck 1 3 58.00 9 Tippers 11 1 3.9 10 Compactors 1 3 12.35 11 DumperPlacer macro/mini 10 3 79.9 12 Loader 8 3 35.25 13 Container lifting device 3 1 5.00 14 Auto placer 2 0 0 15 Other (JCB) 2 1 45.00 16 Tempo loader 0 0 0

Need Assessment of U LBs & Panchayati Raj Institutions

Total 272.8945

Daily output of Solid waste

270 tonnes of garbage (solid waste) in the daily output in the two towns of Churu and Udaipur. But only 207 tonnes of solid waste is collected everyday. This leaving streets and lanes littered with garbage. It is stated that the per capita output of solid waste is 449 grams. It is proposed that there should be improved mechanism of the management of solid waste. The additional force of sweepers may contribute in improving the situation.

Table 4.24 Solid Waste

Production of Pick up solid Gap in solid Production Production of solid waste per waste per day waste (Tones) of solid solid waste per day (Tones) (Tones) waste per household capita 270 207 63 0.449 kg 2.55kg

Table 4.25 Budget for solid waste

Expenditure for Per capita Per HH Budget for Per capita Per HH solid waste in expenditure for expenditure for solid waste in Budget for expenditure year 2011-12 solid waste in solid waste in year 2012-13 solid waste for solid year 2011-12 year 2011-12 in year waste in

2012-13 year 2012-13

2872.36lakh `478 ` 2719.56 ` 3415.09 ` 568 ` 3233 lakh *722.67 with recurring cost ,new purchase+ 2126.68 salary allowances + GPF 23.00 ** 748.00 with recurring cost+

STREET LIGHTING

Table 4.26 Status of street lighting points

Need Assessment of U LBs & Panchayati Raj Institutions

LED CFL Available Estimated Estimated Available Estimated Estimated Equipment in year no. for budget in year no. for budget 2011-12 next year for next 2011-12 next year for next year(in year(in lakh) lakh) Tube light 55 150 1.65 21789 1200 13.20 Bulb 0 0 0 1985 0 0 Mercury 0 0 0 0 0 0 Sodium 5155 0 0 400 0 0 light High mask 12 5 25.0 0 0 0 light Gen. bulb 0 0 0 0 0 0 Other 1 10 3.40 0 0 0 Total 5223 165 30.05 24174 1200 13.20 Table 4.27 Status of maintenance and expansion of points

Particulars Year 2011-12(in Estimated for next lakh) year(in lakh) Expenditure for expansion of points 82.75 55.50 Expenditure for transformers 0 0 Expansion of new points 4970 1365  80 % equipments in dead situation in 2011-12  Avg. distance between street lights – 20 mtr.

Table 4.28 Status of timers

Timer Solar Automatic Manual Coverage Coverage point per population timer per timer Status in year 2011-12 22 13 0 848 17171

Status of Street Light Points

Presently the total points of street lights are 29697 covering 20.33 persons per point. IT is proposed to have 31062 more points in order to bring the coverage to 19.35 persons per point.

Need Assessment of U LBs & Panchayati Raj Institutions

Table 4.29 Status of street light points

Number of points Coverage population Number of points Coverage in 2011-12 per point in 2012-13 population per point 29697 20.23 31062 19.35

Fire Extinguishers : Status of Equipments

There is only one fire station in each of the sampled towns viz. Churu and Udaipur. The equipment for extinguishing the fire is inadequate as only 4 Water Blazers. 2 Foam lenders and 7 water lenders are available for firefighting situations. The fire stations have only a few trained persons. In fact contract labour is mostly used and most of contract labours are untrained. It is proposed by the councils to have 2 hydraulic platforms and 2 more water blazers, for which budget estimates have been submitted.

Table 4.30 Status of equipments

Equipments Status in Estimated for Estimated budget year 2011-12 next year for next year (in lakh) Snorkel/hydraulic platform 0 2 22 Water blazer 4 2 28 Foam tender 2 0 0 Water tender 7 0 0 Jeep 1 0 0 Fire station 2 2 27.00 Other 0 1 8.95

Physical status of Drainage system

Drainage outfits of 1255.5 kms length are available in the two towns. It is proposed that drainage outfits of 710 kms. more should be constructed. Out of this, the councils propose to construct 56 kms. of length drainage in the year 2012-13. 13 kms. of existing drainage outfits will also be repaired.

Status of Public Toilets

Need Assessment of U LBs & Panchayati Raj Institutions

Presently there are 331 public toilets and 35 sulabh toilets in the two towns. 17 more public toilets are needed for which budget estimates have also been submitted.

Table 4.31 Status of public toilets

Status of No. of Expenditure Additional Budget for Per capita toilets public for public requirement maintenance Budget for toilets toilets of public of public public (2011-12) in(2011-12) toilets toilets toilets in(2012-13) in(2012-13) Public toilets 331 19.05 17 13.8 2.29 Sulabh toilets 35 16.63 - 65.0 10.81 Urinals - - - - Total 35.68 lakh 78.8 lakh 13.11

Cremation and Burial Grounds

There are 30 cremation grounds and 14 grave yards and there is no need to have more of them. It is, however, necessary to maintain them, and to make them more suitable to meet the necessary needs of concerned people.

Public Parks

There are 165 public parks managed by Municipal councils and 28 parks under the supervision of public committees. There is need to have 15 more public parks under the ULP system. It is however, necessary to have proper maintenance of these parks. Presently the staff for this purpose is extremely inadequate. There are only 67 persons to maintain 193 parks, which indeed is a tall order.

Table 4.32 Physical status of Public parks Status of Public parks No .of Area of Additional Additional area Public parks Public parks Public require for (in sq.m) parks Public parks require (in sq.m)

Public parks run by ULBs 165 161400 15 11500 Public parks run by 28 22000 0 0

Need Assessment of U LBs & Panchayati Raj Institutions

Agency/committee. Public parks run by 0 0 0 0 Trust/community

Community Halls

67 Community Halls exist in two cities under the sample. Some of them need repairs. It is proposed to have 15 more community halls to meet the needs and requirements of growing population.

Table 4.33 Physical status of Community halls

Status of No .of Area of Additional Additional area Community halls Community Community Community require for halls halls halls equire Community halls Community halls run 67 36200 15 6000 sq.yard. by ULBs sq.yard. Public parks run by 0 0 0 0 Trust/community Physical Status of Roads

The road and lane system in the cities has coverage of 1863 kms. in terms of length. It is proposed to have 37.2 kms. of additional coverage under roads and lanes. A budget estimate of Rs.604/- lakhs has been proposed.

Table 4.34 Physical and Financial status of Roads

Construction Total Construction Construction of Estimate Estimate length of of Road/pulia/rapat construction of budget for roads Road/pulia/ra in year 2012-13 Road/pulia/rapat Road/pulia/ra /number pat in year in year 2012-13 pat in year in 2011-12 2012-13 present

Km Km Km Km Lakh C.C. Road 1235 11 9.5 16.2 397.0 Kachchi road 0 0 0 0 0 Puckki road 608 20 14 13 187 Gravel road 20 1.5 1 8 20 Total 604

Need Assessment of U LBs & Panchayati Raj Institutions

Maintenance of Roads

It is proposed to repair 36.5 kms. of roads during the year 2012-13. Rs.395 lakhs have been sanctioned for this purpose.

Table 4.35 Physical and financial status for Repairing of Road/pulia/rapat

Repairing Repairing of Repairing of Estimate Estimate budget Road/pulia/ Road/pulia/rapat Repairing of for Repairing rapat in in year 2012-13 Road/pulia/rapat Road/pulia/rapat year 2011-12 in year 2012-13 in year 2012-13 Km Km Km Lakh C.C. Road 12 15.5 23.5 289 Kachchi road 0 0 0 0 Gravel road 0 0 0 0 Pukki road 16.5 11 13 106 Total 395

Public Health Activities

Different kinds of material are used for maintaining the health of the people. The Department of Public Health is supposed to use insecticides, DDT, Phenyle, limeetc for keeping the environment conducive for good health. In the year 2011-12, 4.29 lakhs were spent on public health. It is now proposed to spend Rs.4.79 lakhs on the maintenance and further improvement of public health system.

Table 4.36 Physical and financial status of public health activities

Utilize Expenditure Requirement in Budget Per capita Material amount in 2011-12(in year 2012-13 require in expenditure(i 2011-12 Rs) year n Rs.) 2012-13(in Rs) Insecticide/D.D.T. 750 kg 28125 1050kg 39375 0.066 Pyrathine 215 ltr 186921 250 Lt. 217500 0.362 Fogging - - - - 0.000 Lime 2800 105000 3000kg 112500 0.187 Nuvan 0 0 0 0 0.000 Phenyl 1400 Lt 91104 1400 Lt. 91000 0.151 Crude oil 100 3450 110 lt 3800 0.006

Need Assessment of U LBs & Panchayati Raj Institutions

Acid(Salt) 2000 lt. 15000 2000 lt. 15000 0.025 Equipments 0 0 0 0 0.000 Total 429600 479175 0.797

INCOME AND EXPENDITURE

Table 4.37 Position of Income from govt. grants /schemes/own resources/taxes

Position of Income from govt. grants /schemes /own resources/taxes in councils

Govt grants 10.53

Opening Balance 28.57

Own Resource 19.35 Income For Security 0.2

Octroi 37.45

Table 4.38 Position of Expenditure in year 2011-12

S. No. Expenditure head Expenditure in year % of Total Per capita(Rs) 2011-12(lakh) Expenditure S.No. Income heads Counsil Income year 2011-12(lakh) % of Total income 1 Govt grants 1558.96 10.53 2 Schemes 219.02 1.48 3 Own Resource 2865.55 19.35 4 Octroi/ 5547.23 37.45 5 Sell out Of Properties 358.94 2.42 6 Income For Security 30.05 0.20 7 Pension Fund 0 0 8 Opening Balance 4232.18 28.57 Total 14811.93 100

100

Need Assessment of U LBs & Panchayati Raj Institutions

1 Establishment 4245.47 54.62 706.40 2 Administration 347.10 4.47 57.75 3 Solid waste 722.67 9.30 120.24 4 street lighting 349.33 4.49 58.12 5 Election &Programmes 4.50 0.06 0.75 6 Other programmes 86.39 1.11 14.37 7 Road & Over bridge 705.95 9.08 117.46 8 Drainage 227.44 2.93 37.84 9 Other Development work 303.38 3.90 50.48 10 Burials and burial ground 15.25 0.20 2.54 11 Community hall 9.21 0.12 1.53 12 Garaging land 30.74 0.40 5.11 13 Garage 43.71 0.56 7.27 14 Public Health 4.29 0.06 0.71 15 Public Toilets 35.68 0.46 5.94 16 Park 194.58 2.50 32.38 17 Water 0 0.00 0.00 18 Vehicle 237.33 3.05 39.49 19 Fire Brigade 195.24 2.51 32.49 20 Sewage 11.92 0.15 1.98 21 Other office expenses 3.19 0.04 0.53 Total 7773.37 100.00 1293.40

706.40 Position of Per Capita Expenditure

in year 2011-12 - Municipal Council

120.24

117.46

58.12

57.75

50.48

39.49

37.84

32.38 32.49

14.37

7.27

5.94

5.11

2.54

1.98

1.53

0.75 0.71

0.53 0.00

Table 4.39 Position of Estimate budget for year 2012-13 S. Budget head Estimate % of Total Per capita Per Household No. budget for Expenditure Expenditure Expenditure(Rs) year 2012- (Rs)

101

Need Assessment of U LBs & Panchayati Raj Institutions

13(lakh) 1 Establishment 5293.18 50.97 880.73 5011.627 2 Administration 580.30 5.59 96.56 549.4329 3 Solid waste 748.00 7.20 124.46 708.2126 4 street lighting 422.50 4.07 70.30 400.0265 5 Election & Programmes 4.5 0.04 0.75 4.260637 6 Other programme 120.00 1.16 19.97 113.617 7 Road & Over bridge 999.00 9.62 166.22 945.8615 8 Drainage 570.00 5.49 94.84 539.6807 9 Other development work 450.0 4.33 74.88 426.0637 10 Burials and burial ground 52.00 0.50 8.65 49.23403 11 Community hall 27.00 0.26 4.49 25.56382 12 Garaging land 40.00 0.39 6.66 37.87233 13 Garage 53.00 0.51 8.82 50.18084 14 Public Health 4.79 0.05 0.80 4.535212 15 Public Toilets 78.8 0.76 13.11 74.60849 16 Park 226.17 2.18 37.63 214.1396 17 Water 0 0.00 0.00 0 18 Vehicle 317.5 3.06 52.83 300.6116 19 Fire Brigade 357.24 3.44 59.44 338.2378 20 Sewage 30.00 0.29 4.99 28.40425 21 Other office expenses 11.00 0.11 1.83 10.41489 Total 10384.98 100.00 1727.95 9832.585

MUNICIPAL CORPORATIONS

Two municipal corporations, Jaipur and Ajmer were chosen on the composite index basis for in-depth analysis. It was found that, on an average, the area covered under a Municipal Corporation was 66 sq km. with 66 wards. The number of BPL families was 20660.

Table 4.40 Demographic profile

Population Area ULBs Total no.of No. of BPL Number of wards Census 2011 households families under ULBs 1807965 66 Sq.km. 279400 20660 66

Financial Position of a Municipal Corporation - INCOME AND EXPENDITURE The following Table reveals that the own revenue is very little.

102

Need Assessment of U LBs & Panchayati Raj Institutions

Table 4.41 Position of Income from govt. grants /schemes/own resources/taxes

Financial Position of a Municipal Corporation

Income For Security 2%

Sell out Of Properties 17%

Own Resource 21%

Octroi 42%

S.No Income heads Corporation Income year 2011-12 (lakh) % of Total income 1 Govt grants 4327.46 8.66 2 Schemes 4656.38 9.31 3 Own Resource 10491.84 20.99 4 Octroi 21155.58 42.31 5 Sell out Of Properties 8446.22 16.89 6 Income from Security 918.37 1.84 Total 49995.85 100 Table 4.42 Position of Expenditure in year 2011-12

S. Expenditure head Corporation No. Expenditure in year % of Total Per Capita (Rs) 2011-12(lakh) Expenditure 1 Establishment 24258.44 51.58 672.28 2 Administration expanses 3126.47 6.65 86.64 3 Sanitization/Solid waste 2463.49 5.24 68.27 4 Election &Programmes 86.85 0.18 2.40 5 Road & Over bridge 2832.98 6.02 78.51 6 Drainage 526 1.12 14.57 7 Electricity 810.39 1.72 22.48 8 Gerage 1015.92 2.16 28.15 9 Seewrage 686.98 1.46 19.03 10 Public Health 83.68 0.18 2.31 11 Public Toilet 57.45 0.12 1.59 12 Park 418.38 0.89 11.59 13 Water Facility/Tanker 70.28 0.15 1.94 14 Shamsan/Kabristan 68.65 0.15 1.90

103

Need Assessment of U LBs & Panchayati Raj Institutions

16 Community hall 380 0.81 10.53 17 Vehicle 689.49 1.47 19.10 18 Fire brigade 384.41 0.82 10.65 19 Other Programme 2290.2 4.87 63.46 20 Other office expenses 3789.76 8.06 105.02 21 Other Dovelopment Work 2986.63 6.35 82.76 Total 47026.45 100 1303.26

Position of Per Capita Expenditure in year 2011-12 Corporation

672.29

105.03

86.65

82.77

78.51

68.27

63.47

28.15

22.46

19.11

19.04

14.58

11.59

10.53 10.65

2.41

2.32

1.95

1.90 1.59

SOLID WASTE MANAGEMENT

Status of Sweepers

At present 9750 sweepers have been working under the two Municipal Corporations (Jaipur and Ajmer). Taking the population as per Census 2011 into account, there is need for an additional 1550 sweepers in order to bring per capita use of sweepers at 319 from the present number of 370.86.

As per the prescribed norms there should be one Jamadar over 25 sweepers. But presently there are only 320 Jamadars, though there should be at least 390 Jamadars to meet the prescribed norm. It may be stated that 45% people in different localities are not satisfied with the present state of solid waste-management. If the number of sweepers is increased as suggested above, the level of satisfaction among

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Need Assessment of U LBs & Panchayati Raj Institutions the people may rise. As per the mode of removing solid waste, both the manual and mechanical methods are in vogue. What however, is more important is the commitment on the part of sweepers engaged for the job and making supervision effective in order to maintain regularity in the removal of solid-waste. The SFC may like to provide funds for motivational training for the cleaning staff specifically.

Table 4.43 Status of Sweepers

Present Sweepers Total Regular Contractual Jamadars Additional Coverage Planned requirement population coverage (Per sweeper) population per sweeper 9750 6550 3200 320 1550 370. 86 320

State of Equipments

There are different types of equipments used for the removal of solid waste. Their maintenance is, however, not adequate and hence quite a few of them remain out of order. There is need to increase the equipments both in quantitative and qualitative terms. The functionaries associated with the management of solid-waste, have estimated an additional budget of Rs.1907.6 lakhs for this purpose.

Table 4.44 State of Equipments

SN Assets Present Additional Estimate budget status requirement in require in next year next year (`in Lakh) 1 1 cubic m. Bins 991 600 100 2 3 cubic m. Bins 436 340 76.60 3 7.5cubic m. Bins 95 30 24 4 Tri cycles - - - 5 Rehedis(with dustbins) 450 1300 82 6 Tractors 103 13 68 7 Mini trucks 12 2 15 8 Trucks 4 2 20 9 Tippers 15 30 75 10 Compactors 23 6 120 11 Dumper Placers 46 10 85 12 Loaders 25 10 120 13 JCBs 16 6 129 14 Dumper Plasers (Macro) 41 25 250 15 Buldozers 2 2 160

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16 Jeting Machines 11 - - 17 Suction Machines 2 - - 18 Cranes 1 - - 19 Huck Holders 3 - - 20 Mobile Toilets 8 6 18 21 Cattle Catchers 15 - - 22 Road Sweepers 4 - - 23 AutoJets 12 - - 24 Mudpumps 1 - - 25 Hoiests 3 - - 26 Jypsies 1 - - 27 Jeeps 4 - - 28 Cars 7 - - 29 Motorcycles 10 - - Total 1342.6

Table 4.45 Other Demands for Jaipur Municipal Corporation

S.No. Assets Numbers ` Cost 1 Front End Loaders 10 120 lacs 2 Refuge Compactors 6 120 lacs 3 Electric Hoiests 8 80 lacs 4 Nala Cleaning machines 2 100 lacs 5 Super Sucker Machines 2 120 lacs 6 Hanging Dustbins 500 25 lacs Total 565

Solid Waste

On an average 1385 a tonne per day solid-waste is produced in the two cities under the sample. Out of this 1335 tonnes waste is collected everyday leaving 50 tonnes of solid waste uncollected. Needless to say that this huge amount of uncollected garbage creates unhygienic conditions and becomes a source for polluting the entire environment. Hence there is need to create the necessary werewithal both in human as well as physical terms to keep the localities neat and clean by collecting all the solid-waste generate every day.

Table 4.46 Solid Waste Production

Production of Pick up solid Gap in solid Production of Production of solid waste per waste per day waste (Tonnes) solid waste solid waste per day (Tonnes) (Tonnes) per capita household

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1385 1335 50 .40 kg 2.5kg

Street Lighting

At present there is one light point for 18 persons. Owing to expansion of colonies and construction of new streets, more light points are needed to cover more people. It is estimated that there should be one light point for 17 persons. Budgetary provisions have been made for this purpose in the year 2012-2013.

Table 4.47 Status of street lighting points

Equipment LED CFL Available Estimated Estimated Available Estimated Estimated in year no. for budget for in year no. for budget for 2011-12 next year next year 2011-12 next year next year Tube lights 20829 0 0 100000 10000 110 lacs Bulbs 0 0 0 10000 1000 3.6 lacs Mercury 0 0 0 0 0 0 lamps Sodium 66881 6000 210 Lacs 0 0 0 lights High mask 103 10 50 lacs 0 0 0 lights Gen. bulbs 0 0 0 0 0 0 Others 0 0 0 0 0 0 Total 87823 6010 260 Lacs 110000 11000 113.6 Lacs

Table 4.48 Status of timers

Timer Solar Automatic Manual Coverage population per timer Status inyear 2011-12 _ 427 _ 8450.46

Table 4.49 Status of street lights

Number of points Coverage population Number of Coverage population in 2011-12 per point points in 2012-13 per point 197823 18.27 214833 16.83

Expenditure on street lighting 107

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As per expenditure and estimates given in the Table, presently the expenditure per capita for street lights were 45.5 in the year 2011-12. Now it is estimated that during the year 2012-13 the expenditure per capita would be Rs.60.73. This will improve the status of street lights in the cities of Ajmer and Jaipur.

It may be stated that 35% citizens of the two cities continue to be dissatisfied with the status of street lights, though a majority has expressed satisfaction. The stress, however, should be on providing street lights on all the roads in new colonies, as demanded by the inhabitables of new colonies.

FireFighting Equipments

Table 4.50 Status of equipments

Equipments Status in Estimated for Estimated budget year 2011-12 next year for next year (`) Snorkel/hydraulic _ _ _ platforms Water blazers 8 3 5000000 Foam tenders 3 4 8140000 Water tenders 43 7 12600000 Jeeps 3 1 1900000 Other/Fire station 6 2 3000000 Table 4.51 Expenditure on Fire Fighting

Head Exp. In Per capita Estimated Per capita 2011-12 expenditure budget for expenditure In year next year In year 2011-12 2012-13 (`) (`) (`) (`) Expenditure on establishment 26342000 7.28 30000000 8.29 Expenditure on maintenance of 6068000 1.68 10000000 2.76 vehicles and equipments Expenditure on new purchases 3031000 0.84 30640000 8.47 Expenditure on maintenance of 2200000 0.61 2960000 0.81 fire stations Other 800000 0.221 1400000 0.387

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Total 38441000 10.631 75000000 20.74 Waste water drainage

Physical status of drainage

Drainage constitutes an important component of city life. Presently, 57.8% need of drainage has been met. Still a long way remains to be covered. Drainage facilities of 3750 km are still required. The corporations have, however,provided budgetary provisions for new construction of drainage of 72.1 kms. This is too little. However, efforts are on to repair 171 kms. of existing drainage during the current financial year.

Table 4.52 Physical status of drainage nalis

Requirement of Total length of Proposed nalis Proposed nalis (km) drainage nalis next year (km) maintenance of (km) nalis next year 3730 Km 5110.65 Km 72.1Km 171 Km

Status of Public Toilets

Public toilets are a dire necessity in order to avoid the use of walls as urinals. Presently, 374 public toilets and 54 Sulabh toilets are functional in the two cities. Obviously, these are not enough to meet the requirements of a growing population in the cities. Provisions for the year 2012-13 have been made to construct 70 public toilets and 13 more Sulabh systems in addition to the existing ones. Even this may not be enough to meet the growing need.

Table 4.53 Status of public toilets

Status No. of Expendit Per capita Additional Budget for Per capita of public ure for expenditure requirement maintenance expenditure toilets toilets public in year 2011- of public of public in year (2011-12) toilets 12 toilets toilets 2011-12 in(2011- in(2012-13) in(2012-13) 12) (`) (`) (`) (`) (`) Public 347 1603000 0.4433 70 3850000 1.06473 toilets

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Sulabh 54 1974000 0.5459 13 13000000 3.5952 toilets Urinals ______Total 401 3577000 0.9892 83 16850000 4.659935

Cremation and Burial grounds

There are 56 cremation grounds and 35 grave yards in the two cities. They are not sufficient to meet the requirement in growing cities like Ajmer and Jaipur. The corporations have taken steps to create more facilities for this purpose. Presently, 10 hectares of land has been given for cremation grounds while the grave yards have 16.5 hectares each for extending the areas for cremation and burials.

Table 4.54 Cremation and burial grounds

No.of Cremation and burial Area of Cremation and Additional area required for grounds burial grounds Cremation and burial grounds Cremation Burial Cremation Burial Cremation Burial grounds grounds grounds 56 35 41 beeghas 67 beeghas 20 beeghas 20 beeghas

Status of Public parks

The two cities at present have 762 public parks covering an area of 261400 sq. meters. In view of growing population, more parks are needed. Hence it is required to have 112 new public parks covering 364400 sq. meters. Evidently the new public parks will be bigger in size. What however, is more important to note is that for the maintenance of the existing public parks, there are only 53 regular employees. Contract labour is mostly used for their maintenance. This is not a healthy practice resulting in deteriorating conditions of quite a few public parks.

Table 4.55 Status of Public Parks

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Status of Public No .of Public Area of Public Additional Additional area parks parks parks Public parks required for required Public parks

Public parks run 762 261400 Sqm 112 364400 Sqm by ULBs

Table 4.56 Status of Workers in Public Parks

Total no. of workers in Regular Contractual public parks 53 53 _

Physical status of Community Halls

There are 48 community halls which are used for public and private functions. In view of growing population, 74 more community halls are required, for which 2200 sq. meters of land is needed. The corporations are expected to provide financial support for this purpose.

Table 4.57 Physical status of Community Halls

Status of No .of Area of Additional Additional area Community halls Community Community Community required for halls halls halls required Community halls Community halls 48 6000 Sqm 74 22000 Sqm run by ULBs Physical status and financial requirements for Roads/Pulia and Rapats

The table gives details about the type of roads and the material used for their respective construction. Evidently there is need to expand the network of roads in the cities. The corporations have proposed to spend Rs. 1359.4 lakhs for this purpose.

Table 4.58 Physical and financial status of roads/pulias/rapats

Construction Total Construction Construction of Estimate Estimate length of of Roads/pulias/rap construction of budget for roads Roads/pulias/r ats in year 2012- Roads/pulias/rap Roads/pulias Km apats in year 13 ats in year 2012- /rapats in 2011-12 13 year 2012-13 ` in Lakh

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Km Km Km

C.C. roads 986.92 10.38 29.11 37.23 761 WBMroads 50 1.8 1.6 2 55 Bitumin 2823.73 12.87 18.61 27 543.4 roads Kachchi 212 - - - - roads Total 1359.4

Table 4.59 Physical and financial status for repairing of roads/pulias/rapats

Repairing Repairing of Repairing of Estimate Estimate budget for Road/pulia/r Road/pulia/rapat Repairing of Repairing apat in in year 2012-13 Road/pulia/rapat Road/pulia/rapat in year2011-12 in year 2012-13 year 2012-13

Km Km Km ` in Lakh C.C. roads 40 236 258 1166.46 WBMroads - - - - Bitumin roads 69.3 426 466 1009.7 Total 2176.16

Physical and financial requirements for public health activities

The table below gives details about the material required for carrying out public health activities. The total quantity of material of different kinds was 1350 kgrs. During the year 2012-13 Insecticides, Phenyl, Acid, DDT etc. were used for maintaining a disease free environment in the cities. Expenditure on these activities during the year 2011-12 amounted to Rs.51.31 lakhs. Now it is proposed to spend 115.42 lakhs during the year 2012-13 on material required for the security of public health.

Table 4.60 Physical and financial requirements for public health activities

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Material Utilize amount Expenditure Requirement Budget in 2011-12 2011-12 in year 2012-13 require in year 2012-13 Insecticide 33210 4691000 34210 10982000 Lime 8000 300000 10667 400000 Phenyl 770 50000 920 60000 Acid 3600 40000 4500 50000 D.D.T. 90 50000 90 50000 Total 5131000 11542000

RESULTS OF OPINION SURVEY

Cleanliness

The table below reveals that out of 15 ULBs visited, 10 ULBs are regularly cleaned and in the remaining 5 ULBs cleanliness is not proper. Grade III ULBs are facing the biggest problem regarding regular cleaning. Chittorgarh and Surajgarh have been found to be satisfactory in terms cleanliness and maintenance. The rest opined that only some portions are cleaned and the far-off wards are not being cleaned. 58% people in Jaipur City were not satisfied with the cleanliness as the cleaning staff is on contractual basis and there is lack of supervision. 50% Parshads stated that there was lack of resources in their management.

Table 4.61 Opinion about Regular Cleanliness

All the Wards are Regularly Cleaned? YES Number (%) Municipal Corporation (1) 1 100 Municipal Council (2) 2 100

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Grade –II (3) 3 100 Grade-III (3) 1 33

Grade-IV (5) 3 60

Total (15) 11

(Jaipur not included)

System of garbage collection

The door to door collection was not found in any of the places. When asked about the system of garbage collection, it was found that in eight ULBs garbage is being collected by loaders and push carts. In the rest of the ULBs people throw the garbage at a common place and then the sweepers collect from the designated place. Out of 15 ULBs properly covered garbage dumping grounds were found only in nine ULBs. Land has been allotted and boundaries have been made. In the remaining six, Deoli (Grade II), Nawa, Jobner, Uniara, Suratgarh, Pilibanga (Grade IV) there is no proper place for garbage disposal. Parshads suggested that garbage dumping grounds should be covered and developed .35% people felt the need for door to door garbage collection, while 17% people opined that there was a requirement of the administration staff‘s high commitment levels.

Table 4.62 Helpline for Sanitation

Helpline for Sanitation YES (Number) (%) Municipal Council 1 50 Grade –II 3 100 Grade-III 3 100 Grade-IV 4 80 Total 13 87 Complaint Cell or Helpline for sanitation has been set up in only 13 ULBs whereas in the remaining two no complaint -cell has been set up. The helpline has been performing very well in Udaipur and Chittorgarh. Parshads expressed that

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Need Assessment of U LBs & Panchayati Raj Institutions there were complaint registers in which complaints were registered but they were not timely redressed. 40% of the people opined that no action was taken in spite of repetitive complaints.

For solid waste management committees have been set up in only seven ULBs, while in the remaining eight ULBs no such committees are there. Most of the committees that have been set up are only for the name sake and do not perform any role. 75% Parshads expressed the need for separate budget and rights regarding the committees. Most of people viewed that the committees were not working and there was a lot of political interference which should be reduced.

Solid Waste Management

Solid waste management is one of the most important responsibility of ULBs. In order to properly manage this core function, a lot of problems were reported by the ULBs, like inappropriate budget, requirement of funds for equipments and additional staff. Most of the EOs suggested that there was an urgent requirement for equipments and additional staff. 35% felt that garbage disposal plants were a must for effective solid waste management. Parshads viewed that the contractual basis for cleaning should be monitored carefully or changed to permanent staff. People viewed that door to door collection was a must and regular cleaning was required with an honest commitment.

Sewerage system is a very good facility for drains management and the basic requirement for sewerage is that there should be a minimum flow of 165 litres of water per day. At various ULBs - Churu, Sawai Madhopur and Chittorgarh - it was observed that this was being constructed by RUIDP. The EOs opined that as RUIDP work was slow, it should be under the control of ULBs while the 53% EOs suggested proper planning according to the norms.

Street Lighting

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Street lighting was available in all the ULBs. 80% ULBs managed it through agencies while in the remaining it was managed by the municipalities themselves. In grade IV new areas have been merged in the existing ULBs.Proposals for new lights have been sent to RSEB and the sanction is awaited. Parshads viewed that proper maintenance of street lights was required. Contractors need to change the damaged lights on time. CFL/LED lights should be used in place of sodium lights so that the tax on consumer is reduced. 70% of the people were found to be satisfied with the lights & their maintenance but frequent power cuts were annoying. Regarding the committees for lighting, we found than 73% of ULBs had committees for complaints of lights & maintenance. In the remaining 27%, the committees have not been set up due to local politics.

Keeping in mind the safety of the public, fire brigades are very essential but these were found in only 7 ULBs. In these ULBs the condition of fire vehicles &equipments was not satisfactory and even lacked trained fire staff. According to the Eos, there is a requirement for new vehicles & regular trained staff. It was suggested that a separate control unit (directorate) for their working & management should be created. Majority of the parshads mentioned the requirement of new well developed fire stations.

Drinking Water

In the under developed areas of the ULBs requirement for hand pumps, PSP, tubewells and over head tankers was reported as available drinking water was not sufficient. The water reservoirs needed to be regularly cleaned. Water is provided by PHED at most of the ULBs while at some it was observed that people had maintained their own resources like PSP, hand pumps, etc. At some of the ULBs handpumps and PSP and tubewells are also used as a major source for providing water to the public and even tankers are used to meet the additional requirement of water. 47% parshads suggested that water reservoirs need to be timely cleaned and the supply should be proper. People suggested that water should be supplied to the newly merged areas as well and the quality of water should be improved. It was

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Need Assessment of U LBs & Panchayati Raj Institutions praiseworthy that the public places had adequate drinking water facilities. It was suggested that it could be made even more efficient by connecting them to drinking water schemes. Committees for drinking water were found in only six ULBs, while in the remaining nine committees were not there, as drinking water is supplied by PHED and people were not concerned. The existing committees were also not active and were just on paper. There was a lack of coordination between the committees & PHED.

Drainage

Drains were found to be cleaned in 13 ULBs but it was during rains or any festival. The condition is not satisfactory at some places. In the remaining two ULBs drains have become unusable due to lack of cleaning staff and equipments. Parshads suggested construction of new drainsand proper maintenance of the existing ones. People felt the need for proper monitoring during the construction of drains and new patterns/techniques should be followed.

Public Toilets

It was found that public toilets in the urban areas were insufficient in number and there was a requirement for more public toilets at public areas like railway stations, bus stands, hospitals, main markets etc. The existing public toilets were in a miserable condition due to lack of maintenance & basic requirements like water supply. Out of the existing ones, separate toilets for women were found to be only 67%. Parshads suggested requirement of new toilets and their regular maintenance. According to Eos, public toilets were not cleaned regularly due to water scarcity.

Cremation and Burial Grounds

Cremation and burial grounds were found in all the ULBs but they seemed to be lacking in the basic requirements. Boundaries are necessary to stop encroachment

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70% parshads recommended boundaries and tin shades. Water & lighting facility for cremation and burial grounds was suggested by the people.

Public Parks

Out of the fourteen ULBs public parks were available in twelve ULBs. In the remaining two ULBs, the land allotted has been encroached and the ULBs seemed not taking any action. The parks available were not properly maintained & required water for plants as well as staff which was not there. 20% of the parks are on contract for maintenance but the contractor doesn‘t take the pain to even look after occasionally. In Udaipur, parks were found in very good condition as they have been adopted by various public committees.

It should be recommended for the ULBs of all sizes. We feel that the additional staff and water facility for parks is an urgent requirement.People suggested that new parks should be developed and the public needs to be aware about the maintenance of public property. Parshads opined that watchmen should be there for safety from stray animals and dustbins were also required. Committees for Public Parks were found in 29% ULBs for the maintenance of the parks. However, their commitment and work plan were found to be missing.

Community Halls

Community halls were found in all the ULBs. The halls were not in good condition as their maintenance was done by the public only.Basic facilities like electricity, water, sanitation were missing in most of the ULBs.Community halls are used by the public for various occasions and due to lack of awareness they get spoilt. 60% parshads suggested that sufficient budget is not available. 40% people suggested that if the halls were maintained properly with basic facilities, they would pay some nominal rent and this could even be a source of income. 20% people stated the need for new community halls as they could be very useful for the people.

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Internal Roads

Internal roads have been constructed in all the ULBs but the lack of their maintenance was disheartening.According to the Eos, drains should be constructed along with the roads for proper upkeep. We observed that no proper planning is done before the construction of new roads and the tenders are not issued transparently. Almost all parshads informed that the contractors compromised on qualityand supervision was also not very honest. 50% people found the drainage system unsatisfactory due to improper maintenance of roads. They opined that if the maintenance was done regularly, longevity of the roads could be maintained. It was suggested that CC roads should have a built-in component of drains for better results.

Public Health

It was seen that no steps were being taken to control epidemics by the ULBs. Health department gets insecticide is not regular in spraying. Lack of coordination between ULBs & Health Department is also a problem. There should be proper and regular cleaning of water storage tanks in order to avoid water borne diseases. It was suggested by the EOs that awareness camps should be organized from time to time to make public understand the need for controlling epidemics. Parshads opined that nothing was being done presently for public health.

Most of the funds given by the SFC & TFC used for salaries and allowances and got hardly any share for street lighting, solid waste management, drinking water etc.People suggested transparency while spending such grants. They spoke about the various barriers in the implementation of development works like inappropriate budget, lack of staff, encroachment problems and excessive political interference.

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Summing Up

Due to massive urban growth during the past two decades, quality of urban life has deteriorated creating an urgent need for vibrant and efficient ULBs that can deliver adequate services and improve living conditions. Despite decrease rates of population growth, India‘s urban population will expand rapidly in the years to come.Urban services need to keep pace with it.

Local governments could be in the best position to improve service delivery as they can match the level of requirement of public services with local needs and available funds. Therefore, they are directly accountable to citizens. Unfortunately, this is not happening.

Elected local governments are not particularly accountable to their communities for their in action they blame limited financial powers and indifference of the State. It is true that state still remains powerful, both in law and in the number of agencies they control at local level. The State continues to grab all decision making powers. The net result is that urban areas continue to be governed by a plethora of State departments and there is weak coordination and very little accountability. Coupled with this, a variety of implementation issues have led to fragmentation of service delivery institutions at the state and local level.

Traditionally, the provision of urban infrastructure and services has been among the primary functions of the government where the funding of complete service delivery is sourced out of tax revenues. These basic services have generally been considered social goods to be provided by the government for free or at nominal prices to users. Essential services such as roads, street lighting, water supply and sewerage are difficult to deliver without adequate cash flow from tax revenues or other charges. It has been assumed that for the majority of urban residents, direct user charges would be neither affordable nor desirable.Central and state governments continue to see themselves as guardian of the ULBs, making the ULBs feel as puppets on a string.

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Norms for theCore

Functions for the  PRIs

Ensuring high quality public services for all is an end in itself, but also facilitates exploitation of full economic potential of the area covered. One of the key features of a developing state is to ensure that all the citizens have access to basic services. The Constitution places the responsibility on government to ensure that such services are progressively expanded to all, within the limits of available resources. It is well known that the basic functions like water and sanitation, refuse and waste removal, street lighting etc are not fully available in the rural areas. Even if they are available, they are not upto the desired level of satisfaction. These services are not only important in providing a basic level of healthy living to the rural people but would also prevent people‘s desire from migrating to urban centers.

This study is a result of Fourth State Finnace Commission desire to introduce a system of dedicated allocation of budget to the local bodies perfoming the core functions. The Commission asked our Institute to work out physical and financial norms for the purpose. The functions include – solid waste management, waste water drainage, street lighting, repairing of roads/ pulias/rapats, driking water, maintenance of cremation and burial grounds and community centres and health and sanitation.

For calculating the physical and financial norms, the present status was ascertained during the primary survey. The present expenditure, condition, need and the estimated cost were identified and then an average was calculated. These norms were then framed and discussed with the officials of the concerned

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Need Assessment of U LBs & Panchayati Raj Institutions departments as well as compared with the existing norms that were framed elsewhere. The estimates were accordingly finalized. It was also ensured that the norms calculated should be workable and implementable. Separate norms have been developed for the Urban and rural local bodies.

The present chapter focuses on the physical and financial norms for the rural local bodies to undertake the core functions in their area.

SOLID WASTE MANAGEMENT

Since the beginning, humankind has been generating waste, be it the bones and other parts of animals they slaughter for their food or the wood they cut to make their carts. With the progress of civilization, the waste generated assumed a more complex nature. At the end of the 19th century the industrial revolution saw the rise of the world of consumers. Not only did the air get more and more polluted but the earth itself became more polluted with the generation of non-biodegradable solid waste. The increase in population and urbanization was also largely responsible for the increase in solid waste.

Types of Solid Waste

Solid waste can be classified into different types depending on their source:

 Household waste is generally classified as municipal waste  Industrial waste as hazardous waste  Biomedical waste or hospital waste as infectious /contagious waste

In the context of rural local bodies, it is found that the solid waste largely consists of the municipal waste. Which consists of household waste, construction and demolition debris, sanitation residue, and waste from streets. It is on this premise, that the calculation for the SWM for the rural bodies has been calculated. The method that has been suggested for the RLBs has been sweeping of the roads and public places, collection from common places and dumping at an identified place provided that the waste is largely non-hazardous and biodegradable. The

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SWM services in the rural areas are not upto the mark which leaves a lot be desired. The calculations made for SWM consist of three components:

 Manpower  Equipment  Dumping Strategy

Manpower Total Number of Sweepers Norms for sweepers

(A) Required one sweeper for an average of 175 households (900 Population) (calculated on the basis of sample survey) (B) Labour rate – Rs 147 per man day (on the basis of minimum wages rate for MNREGS) (C) Interval of Cleaning - Weekly (D) The manpower would be paid only for the working days (E) 15% cost be added to the total cost as tender and tax cost. (F) The cost would include the services for sweeping, collection of the waste and cleaning of the wasre water drains.

Calculation for sweepers (Calculated for 56 sample GPs) Total Manpower required per GP Average Population per GP (X) – 7797 Aveage Population per sweeper (Y) - 780 Number of sweepers per GP (Z) - (X/Y)-10 Labour Rate (L) – Rs 147 per day Manpower Cost - (Z*L)*52 10 (Sweepers) * 147Rs * 52 Mandays = Rs 76,440 Total Manpower Cost (Premium of 10% of the manpower cost) = Rs 84,084

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Total Equipment Cost

(A) Tri Cycles/Push Carts for a GP – Six (One per revenue village and one for HQ) (B) Bins (1 m3) – 20 per GP on the basis of number of wards with one for each ward (C) Tools – A set of Six (Broom, Spade, Parat, kudali,collector) per GP - One per GP and one for HQ

Table 5.1 Budget for Equipment

Unit Unit Total Cost per GP Cost1 (in `) (in `) Push Cart With Bins 3000 6 18000 Bins 3700 20 74000 Other Tools 600 6 3600 Total 95600 1 Cost calculated on the basis of the tender rates for the ULBs

Solid Waste Transfer by Trolleys

Solid Waste Production (per household) = 400 gm. Transfer interval = Weekly (In each revenue villages on rotation basis) Trolley Costing per trolley (with Labour Charges) = Rs.400 Budget Estimation Total Budget for trolley per GP = 12 times * 12 months * 400 Rs = 57,600 Labour Cost = 84,084 Equipment Cost = 95,600 Trolley Cost = 57,600 Total Cost (in `) = 2,37,284 Total Cost per HH (in `) = 131.90 Per Capita Cost (in `) = 30.43

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WASTE WATER DRAINAGE

The waste water drainage deals with the ―grey water‖ - wastewater resulting from the use of water for domestic purposes, but does not include human excreta.

For drainage it is proposed to construct pucca naalis which would be useful in draining out the wastewater (grey water) and rain water in absence of which the waste water collects at a low-lying place and becomes a source of disease.

The Naalis being proposed are 6 inch deep and 9 inch in width. These can either be formed in U Shape or V shape. The cost component is similar for both of them.

4.5‖ 9‖ 4.5‖

18”

I. Construction of Naali Aveage Requirement of Naalisper Gram Panchayat = 6017 m

Proposed Naalis for One year = 1251 Mtrs. (Calculated on the basis of the primary survey as reflected in the discussions and the annual plan)

On an average costing of Nali per m as per (BSR) = Rs.391.73 per m (Details Annexure I) Total required budget of naalis for next year (2012-13)(A) = Avearge Rate* Total Size = Rs 490054.23 Total Cost per HH = Rs 272.40 Per Capita Cost for 2012-13 = Rs 62.85

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Maintenance of Naalis

Table 5.2

Maintenance of Naalis (per m) 105/ mtr. (As per damages of naalis observed and the proposals received from the gram panchayat during interviews with the Sarpanch & gram Secretary)

10% Overheads and tender Costing 10.50

Total costing 115.50

Length of Naalis for Maintenance for Next year (2012-13) 491 Mtr. (As per damages of naalis observed and the proposals received from the gram panchayat during the interviews with the Sarpanch &gram Secretary)

Total Estimated costing of maintenance (B) (Rs.115.50/mtr) 491* 115.50 =Rs 56710.50

Total Cost per HH (in Rs) 31.52

Total Per Capita Cost (in Rs) / Operational Cost 07.27

Total Costing for Construction and Maintenance A+B

Total required cost for construction of naalis for next year (2012-13) Rs 490054.23

Per Capita Capital cost 62.85 Total Estimated costing of Maintenance Rs 56710.50

Total costing with Maintenance Rs 546764.73

Total Cost per HH (in Rs) 303.92

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Total Per Capita Cost (in Rs) (Capital +Operational) 70.12

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Annexure

Detailed Estimate for Waste Water Drainage for Gram Panchayats

1. EW in Hard Soil mixed with Kankar for leveling Streets/ Roads and Disposal Up to 1.00

140.4x0.38x0.38 20.274 Cu.m 1x50x0.3x0.3 4.5 Cu.m

91.85 x 24.774 Cu.m Labour Rs. 2275.49 Labour @ Rs.

91.85 + 52.06 Rs.3565.23 @Rs.143.91 Cu.m 2. Random Rubble stone masonry for foundation and plinth in cement sand mortar 1:8 (1 cement : 8 sand) for above 30 cm. thick walls.

1x50x0.3x0.3 4.50 Cu.m. 1x50x0.3x0.3 4.50 Cu.m. Total 9.00 Cu.m

Labour @ Rs.402.00 Cu.m. Labour 3618.00 @ Rs. 1471.55 Cu.m. Rs.13243.95 3. P/L Cement Concrete 1:6:12 with 40 mm Stone aggregate including curing compaction etc. comp.

1x140.4x0.30x0.05 2.106 Cu.m

Labour @ Rs.317.55 Cu.m Labour 668.76 @Rs.1695.54 Cu.m. Rs.3570.81 4. S/F Nimbahera/Chittor rough Stone slabs over 20mm thick CM 1:6 and filling joints with CM 1:3

1x2x140.4x0.30 84.24 Sq. m. Labour @Rs.63.00 Sq. m. Labour 5307.12 @Rs.334.03 Sq.m Rs.28138.69 Total Rs.48518.68 Add. 3% Cont. Rs.1455.56 Grand Total Rs.49974.24 @10% Tender Cost Rs.54971.66 Say Rs.55000.00 Labour Rs.8251.00 Material Rs.41749.0 Per mtr.costing Rs.391.73

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STREET LIGHTING Lack of electricity infrastructure is one of the main bottlenecks in the development of rural India. At a very basic level, people do not have a cheap and safe source of lighting. For fear of snakes, scorpions and antisocial elements, few venture outside in the evenings because there is no street lighting. The responsibility of lighting the interior roads, chaurahas, public places and panchayat building rests with the Gram Panchayat. This includes the maintenance of the road lights installed by the RVVNL. The stress during the calculation of street lighting is: a) Gradually public lighting, predominantly solar lighting, would be promoted. b) The tubelights and bulbs that are still in use need to be replaced with CFL technology

Norms for Lighting (A) Ten lighting sources for a village would be provided in a phased manner (B) Phasing out the bulbs and tubelights (C) For the first year one revenue village from the gram panchayat may be considered for solar lighting. The Total Cost would include  Electricity Consumtion Cost  Installation of New Sources of Lighting

Electricity Consumtion Cost

Energy Expenditure per CFL Bulb 18 Watt Duration of Lighting 8 HR/day Total Electricity Consumtion per year (X) (18*8*365)/1000 Cost/Unit (Y) Rs 6 Electricity Consumtion Cost (in Rs) (A) X*Y Rs. 315 Cost per GP 315*50 Rs. 15750 Number of Lighting Points Already available per GP 38 Electricity Consumtion Cost (in Rs) (B) 11970 Total Cost for Electricity Consumtion per GP Rs 27720

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New Sources Bulb (CFL) 18 W Set 50 Cost per new Source Rs. 1100 Total Cost of new installations Rs. 55,000 Automatic Timer 5 Cost of Automatic Timer per piece Rs. 250 Total Cost of Automatic Timer Rs. 1250 Total Material Cost of New Instllations Rs. 56,250 Labour Cost of New Installations @ 20% Rs. 11,250 Total Cost of New Instllations Rs. 67, 500

Total cost for Street light Year (2012-13) Expenditure for Electricity (A) Rs. 27,720 Expenditure for New Points (B) Rs. 67,500 Total of A & B Rs. 95,220 Expenditure for Maintenance @ 20% Rs. 19,044 Total Expenditure for Street light Rs. 1,14,264 Cost per Household Rs. 63.52 Cost per Capita Rs. 14.65 Per Capita Capital Cost Rs.8.65 Per Capita Operational Cost Rs. 5.99

Solar Steet Lighting Lighting common area and streets through solar photovoltaic power system

It is proposed to install photovoltaic power system to light common area and streets. For the first year one ward/revenue village may be chosen out of the Gram Panchayat. This may be chosen on the basis of the development indicator like village without electric connectivity, high SC/ST population, lowest enrolment rate etc.

Solar photovoltaic can be utilized for illuminating community places and streets in the villages or the areas, where conventional electricity is not available. Although stand alone SPV street lighting systems with CFL and LED fixtures are also available for this requirement but looking to the safety, security and maintenance problem of these systems, Ministry of New and Renewable Energy (MNRE), GoI is also emphasizing to arrange such installation with SPV power plants so that all main components such as SPV Modules, Battery bank and control electronics should be placed at one place in safe custody and energy should be used

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Need Assessment of U LBs & Panchayati Raj Institutions to illuminate the common area. Different models of such power plants can be designed as suggested by the sample model under:

1 No. of Street Lights : 10 2 Each fixture of street light of : 18 W CFL 3 Operation hours /Day : 12 hours 4 Battery storage : for 2 days autonomy 5 Wire length estimated : 600 Meters (in total)

Power plant configuration / bill of material proposed for above model are an under:

Table 5.3

SN Material details Quantity 1 SPV Modules 800W 2 Battery bank 24 V 400Amp 3 Inverter 1 no. of 1KW 4 Hybrid controller 24V/40 Amp 5 G.I Poles (6.5m. height) Net height from ground - 10 Nos. 5 meters 6 Fixture of street light of 18 W CFL each 10 nos. 7 Wire length Estimated 600 Meters 8 BOS (Like Bend pipe etc.) As per requirement Estimated cost of one Power Plant 240000 Subsidy provided by the MNRE, GoI 64000 Total Cost 176000 Per Household Estimate Budget 97.83 Per Capita Estimate Capital Cost 22.57

CREMATION AND BURIAL GROUNDS

Given our cultural, religious and other social sensitivity cremation and burial grounds attain social importance.

But, if we see the conditions of cremation or burial grounds in most of the Indian rural villages, it is very disheartening. People are scared to go to these places even in day time let alone at night. Further, many burial grounds are prone to land grabbing by the adjacent land owners since they are unfenced. These burial grounds

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Need Assessment of U LBs & Panchayati Raj Institutions are unhygienic with no cleanliness, no electricity, no water and covered fully with wild plants. If not secured properly, the burial place will be used for burying the other dead body in the same place due to non-availability of land.

Keeping this in mind it is peoposed to provide Tin Shades and Boundary Wall through the provisions of the SFC.

Table 5.4 Cost for Tin Shades and Boundary Wall at the Cremation and Burial Ground

Tin Shades

Cost for Tin shade Rs. 2,50,000 Number of Cremation Grounds per GP 5 Total Cost per GP Rs.12,50,000 Available Financial Support under the Gramin Janbhagidhaari Yojana Rs. 11,25,000 (90%) Remaining Amount to be borne by SFC (A) Rs. 1,25,000 Per House hold Estimate Budget Rs. 69.48 Per Capita Estimated Budget Rs. 16.03 Boundary Wall

Number of Cremation/Burial Grounds per GP 6 Average Size of the Cremation/Burial Grounds (Running Feet) 3300 Cost of Construction per running feet (in Rs) 712 Average costing of per running feet of boundary wall Rs. 23,49,600 Available Financial Support under the Gramin Janbhagidhaari Yojana Rs. 21,14,640 (90%) Remaining Amount to be borne by SFC (B) Rs. 2,34,960 Per House hold Estimated Budget Rs. 130.60 Per Capita Estimated Budget Rs. 30.13

Total Cost for Tin Shades and Boundary Wall (A+B) Rs. 3,59,960 Per House Hold Estimated Budget Rs. 200.08 Per Capita Estimated Budget (Capital Cost ) Rs. 46.16

COMMUNITY HALLS

Each village has a community hall which may be used for community services, meetings or any community function. These places were found to be in a miserable condition due to lack of maintenance and wherewithal. This is also coupled with the lack of ownership resulting in the community halls becoming

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Need Assessment of U LBs & Panchayati Raj Institutions centres of antisocial activities. Prsently there are 188 community halls in the sample panchyats out of which two (one in Kota and one in Karauli) are being run by the community.

Cost Estimates

Number of Community Centres per GP 3.35 The Cost of Constrction per Community Centres (in Rs)(See 3,00,000 Annexure) Average Cost of Maintenance @ 15% (In Rs) 45,000 Cost per GP (In Rs) 1,50,750 Cost per Capita (In Rs) (Operational Cost) 19.33

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Annexure

Community hall measurement

Average Plinth 0.60 No. L m H m Height Room height Inside 3.20 Door 2 1.00 2.00 Varandah Pillar 2.30 Window 2 0.90 1.20 Height Varandah Beam 0.30 Vent 4 0.60 0.30 Thickness Wall Thickness 0.38 Almirah 2 0.90 1.20 Foundation Depth 0.90

Community hall Cost S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount uhao] [kkbZ rFkk ukyk vkfn ds fy, 1-5 eh- xgjkbZ rd 1. feV~Vh dh [kqnkbZ djuk] ry dks dqVuk] ikuh Mkyuk cxy Labour total Labour total dks lokajuk] [kqnh feV~Vh dks ckgj fudkyuk uhao Hkjus ds ckn [kkyh LFkkuksa dks iqu% feV~Vh ls Hkjuk rFkk cph gqbZ feV~Vh dks 50 ehVj dh nwjh rd fuLrkj.k djuk l[r feV~Vh esa Long wall 3 7.53 0.75 0.90 15.25 Short wall 2 4.08 0.75 0.90 5.51 Short wall 2 1.48 0.75 0.90 2.00 Total 22.75 qm 82.00 82.00 1865.85 1865.85 lhesaV dadzhV uhao ;k Q’kZ esa 40 eheh ukeh; eki dh iRFkj fxV~Vh] lhesaV jsr elkyk esa 1 lhesaV% 4 jsr % 8 fxV~Vh 2 vuqikr esa feykdj Mkyuk rFkk dqVkbZ djuk] rjkbZ lesrA

Long wall 3 7.53 0.75 0.15 2.54 Short wall 2 4.08 0.75 0.15 0.92 Short wall 2 1.48 0.75 0.15 0.33 Total 3.79 qm 245.05 1934.00 929.32 7334.45 uhoa o dqlhZ esa lhesaV elkyk 1%6 esa iRFkj dh fpukbZ dk

3 dk;Z Foundation 3 7.38 0.75 0.75 12.45 2 4.23 0.75 0.75 4.76 2 1.63 0.75 0.75 1.83 Chair 3 7.23 0.45 0.60 5.86 2 4.38 0.45 0.60 2.37 2 1.78 0.45 0.60 0.96 Total 28.23 Qm 366.50 1647.00 10345.91 46493.08 lh-lh- 1%2%4 esa 50 feeh eksVh Mh-ih-lh- dk dk;Z 4 3 7.23 0.45 9.76 2 4.38 0.45 3.94 2 1.78 0.45 1.60 15.30 Sq. 69.00 202.00 1056.01 3091.51

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S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount vf/kjpuk esa lhesaV elkyk 1%6 esa bZV dh fpukbZ dk dk;Z 5 2 7.01 0.38 3.20 17.05 Community 2 4.60 0.38 3.20 11.19 hall 1 7.01 0.38 0.60 1.60 2 7.01 0.38 0.23 1.23 2 6.98 0.38 0.23 1.22 Total 32.28 2 1.00 0.38 2.00 1.52 2 1.50 0.38 1.20 1.37 4 0.60 0.38 0.30 0.27 2 0.90 0.38 1.20 0.82 6 1.50 0.38 0.15 0.51 (-) 4.50 27.78 qm 385.00 2787.00 10696.78 77433.60 izFke Js.kh bZV ds oxkZdkj ;k vk;rkdkj [kEcksa dks lhesaV 6 elkys 1%6 esa vf/kjpuk esa Community 3 0.38 0.38 2.30 1.00 Qm 510.00 2912.00 508.14 2901.40 hall -lh-lh½ dh ¼v½ lsUVfjax] ‘’kVfjax] izpfyr dadzhV ¼vkj 7 Nr] che] NTtks] fyUVu vkfn esa yxkuk] 4-5 ehVj ÅpkbZ rd rFkk gVkuk vkfn

2 1 4.60 0.40 3.68 1 6.25 4.60 28.75 2 7.01 0.30 4.21 1 7.01 2.38 16.68 1 7.01 0.50 3.51 Total 56.82 Sq. 25.25 83.00 1434.83 4716.46 ¼c½ izpfyr lhesaV dadzhV ds fy, yksgs dk dkVuk eksMuk

rFkk LFkku ij yxkuk rFkk cka/kus dk dk;Z e; vkiwfrZ ds

¼l½ lhesaV dadzhV 1%1%5%3 vkj lh-lh

che dejs esa 1 5.36 0.30 0.40 0.64 che cjkens esa 1 7.01 0.38 0.30 0.80 NTtk 1 7.01 0.50 0.075 0.26 iwjh Nr 1 7.01 7.74 0.125 6.78 Total 8.49 sm. 575.00 3614.00 4880.25 30673.43 iRFkj ds fljny ¼fyaVu½ dh vkiwfrZ dj] fpukbZ esa mi;ksx

8 dh xbZ elkys esa mls yxkuk

njoktk f[kM~dh 6 1.50 0.38 3.42 osUV 4 1.00 0.38 1.52 Total 4.94 Qm 128.00 409.00 632.32 2020.46 22 xst dh lknk ,e-,l- pn~nj ds 1 eh- 2 eh- nks iYys 9 x okys njokts] ftlesa yksgs dh 40 x 40 x3 feeh ds dksfu;k yksgs dh pkS[kV rFkk iYyksa esa 25x25x3 feeh ds dksfu;k yksgs (Angle Iron) ds fdukjs fn, x, uD’ks ds vuqlkj e; vxZy fpVduh rFkk idM~ ifVV~;ksa ds vkiwfrZ o yxkuk

2 1.00 2.00 4.00 Qm 99.00 1404.00 396.00 5616.00

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S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount 22 xst dh lknk ,e-,l pn~nj dh cuh 0-9 eh- pkSM+h rFkk 10 1-2 eh- Åaph f[kM+dh ftlesa pkS[kV Qsze 25 25 3 feeh ds x x dksfu;k yksgs 10 feeh fxzy e; vxZy] fpVdfu;ka 2 ux

rFkk ifV~V;k 4 ux uD’kk u% 14 v ds vuqlkj vkiwfrZ djukA 2 1.50 1.20 3.60 Qm 99.00 15.06.00 356.40 5421.60 osUVhysVj gsrq fxzy@xsV vkfn esa yksgs dk dk;Z ftlesa

11 likV] dksfu;k] Vh rFkk ukyhnkj ¼psuy½] dks dkVuk] p

4 5.00 20.00 KL 7.70 62.20 154.00 1244.00 lhesaV IykLVj nhokj ij 1%4 vuqikr esa lhesaV &ctjh

12 feykdj tksMks+ dks dwjsnus rfkk rjkbZ lfgr 20 feeh esa

dejk vanj 2 6.25 3.20 40.00 2 4.60 3.20 29.44 dejk ckgj 2 7.01 3.20 44.86 2 5.36 3.20 34.30 fiyj 3 4 0.38 2.30 10.49 fiyj ds mij 2 1 7.01 0.90 12.62 isjkisV 2 7.01 0.84 11.78 2 6.98 0.84 11.73 dVkSfr;k¡ Total 195.22 njoktk 2 1.00 2.00 4.00 f[kM+dh 2 1.50 1.20 3.60 osUV 4 0.60 0.30 0.72 (-) 8.32 186.90 Qm. 36.60 102.00 6840.44 19063.51 lhesaV IykLVj lhfyax ij 1%4 vuqikr esa lhesaV &ctjh

13 feykdj tksM+ks dks dwjsnus rFkk rjkbZ lfgr 12 feeh esa

dejs dh Nr 1 6.25 4.60 28.75 cjkens dh Nr 1 7.01 2.38 16.68 dejs ds che 1 4.60 0.40 3.68 49.11 59.60 99.00 2927.18 4862.27 u, dk;Z ij vk;y ckmUM /kqykbZ ;ksX; fMLVsEcj dk dk;Z 14 Item no. 12 236.01 6.10 30.60 1439.67 7221.94 & 13 u, dk;Z ij ,ukesy is.V dk ysi djuk 15

njoktk 2 2 1.00 2.00 8.00 f[kM+dh 2 2 1.50 1.20 7.20 osUV 2 4 0.60 0.30 1.44 16.64 20.79 64.00 345.95 1064.96 16 Q’kZ ds uhps lw[ks iRFkjks dk [kjatk yxkuk o vkiqfrZ djuk

dejk 1 6.18 4.53 0.15 4.20 1 6.18 1.93 0.15 1.79 cjkenk 5.99 115.50 613.60 691.66 3674.49

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S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount Q’kZ ds uhps lhesaV dadzhV 1%6%12 feJ.k ftlesa 1 lhesaV 6 17 ctjh 12 Hkkx 40 feeh ukeh; iRFkj dh fxV~Vh ds lkFk feykj Mkyuk] dwVdj nckuk] rjkbZ vkfn lesr gkFk ls feykdj Mkyuk dejk 1 6.18 4.53 0.10 2.80 cjkenk 1 6.18 1.93 0.10 1.19 3.99 245.00 1640.00 978.11 6547.34

eh0eh0 1%6 elkys ds mij fuEckgsMk iRFkj Lysc dks 18 20 Q’kZ esa yxkuk rFkk tksMks+ dks 1%3 flesaV elkys ls Hkjdj lery djuk

1 6.25 4.60 28.75 1 7.01 2.38 16.68 45.43 77.00 365.00 3498.40 16583.34 feeh ls 40 feeh eksVkbZ ds iRFkj ds NTts] nkc iRFkj 19 30 ds lkFk] lhesaV elkys esa 1%4 esa yxkuk rFkk vkiwfrZ djuk]

nhokj rFkk NTts ds tksM+ ij lhesaV dadzhV 1%3%6 dk 7%5

lseh dk xksyk cukuk vkfn f[kM+dh 2 1.80 0.45 1.62 osUV 2 0.90 0.45 0.81 2.43 209.00 450.00 507.87 1093.50 izFke Js.kh dks bZVks dh 112 fe-eh- eksVkbZ esa uhoa rFkk 20 vf/kjpuk esa lhesUV ctjh elkyk 1%4 esa fpukbZ dk dk;Z

djuk e; rjkbZ ds ¼ikVhZ’ku nhokj½ vyehjk 2 0.90 1.20 2.16 63.00 364.00 136.08 786.24 - eksVkbZ ds iRFkjks dh rkd e’khu ds dkVsa ls 25&30 feeh 21 dks 1%3 elkyk esa yxkuk rFkk vkiwfrZ iw.kZ djuk

4 0.90 0.38 1.37 50.05 236.00 68..47 322.85 lh/ks [kjats ds Åij ;k vkj-lh-lh- Nr ds mij 25 fe-eh-

22 eksVkbZ dk lhesaV 1%6 dk IykLVj djkuk vkSj vkiwfrZ djuk rjkbZ lesr

1 6.25 6.98 43.63 43.63 56.80 132.00 2477.90 5758.50 o"kkZrh ukys ds fy, 110 feeh ihohlh ikbZi dh vkiwfrZ e;

23 fQV djuk

4 Unit 0.00 50.00 0.00 200.00

Total 53167.54 293742.68 2 % 5874.85 Total 53167.54 299617.53 53200.00 246800.00 Grand Total 300000.00

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DRINKING WATER

There are three primary sources of drinking water in the rural areas in Rajasthan:-

(a) The traditional water sources like ponds, tanka, etc., which use rain water.

(b) Ground water in the form of hand pumps

(c) Piped water supply which eventually uses the ground water. The ground water is lifted using a motor. The capacity of the motor varies from place to place depends on the level of water table, from 5 KW to around 35 KW. The connection required is also variable ie one phase and three phase depending on the depth of the groundwater.

Expenditure on Maintenance of Traditional Water Sources

The Gram Panchayats own ponds from 0 to 300 hectare CCA. This is an important source of drinking water in the rural areas. Presently there are 2094 ponds under the panchayats and about 2/3rdof them need repair and renovation. The avearage requirement for this would be Rs 1, 50,000 per resource.

Maintenance of Hand Pumps

(a) In the survey conducted, it was found that around 40 hand pumps per gram panchayats are available. These hand pumps are maintained every year through a special drive by the PHED department. The cost is also borne by the PHED. This drive is for a limited period of the year and if the hand pump needs repair during any other part of the year, no provision is available which eventually create a lot of problem for the supply of drinking water.

Hence, it is calculated that Rs.3000/- (the cost of two per pipes @ Rs. 65 Per Ft, Pump Set, Chain Set and labour is needed by a gram panchayat for maintenance. The maintenance duing the summer drive is borne by the PHED.

Requirement per Hand Pump Rs. 3000 Number of Hand Pumps per GP 40

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Total Requirement per GP for maintenance of Hand Pumps Rs. 1,20,000 (b) In the last few years as per the direction of the State Government, the drinking water scheme Janta Jal Yojana has been transferred to the Panchayats. The PHED has handed over the mechanic and the motor to the Panchayat. The cost of the repair – mechanic and the electric connection has not been given by the PHED. This eventually stops the water supply. It is suggested that this expenditure may be given by the SFC. The details are as under :-

Table 5.5 Cost for Janta Jal Yojana

Electricity Consumption Rs.5000 x 12 x 2 Rs. 1,20,000 (For Three Phase Connection for average two connection) Rs.1500 x 12 x 3 Rs. 54,000 (For Three Phase Connection for average three connection) Repair Rs.1000 x 12 x 5 Rs. 60,000 Labour Rs.500/- x 12 Rs. 6,000 Total Cost for Borewells Rs. 2,40,000

Total Cost for Drinking Water per GP Expenditure on Maintenance of Traditional Water Sources (A) Rs. 1,50,000 Total Requirement per GP for maintenance of Hand Pumps (B) Rs. 1,20,000 Total Cost for Running Borewells (C) Rs. 2,40,000

Total Cost for providing Drinking Water per GP A+B+C Rs. 5,10,000 Per Capita Cost for Drinking Water(Operational Cost) Rs. 65.40

Suggestion

In Rajasthan there are places where conventional grid electricity is not available and also it is not viable to draw a transmission line. The water table has gone down and hand pump are not in a position to lift the water from the ground. The most viable solution is Solar Water Pump System. The Solar Water Pumping

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System of the capacity of 3 KW and 5 KW will be suitable in Rajasthan as water table is low. The cost of Solar Water Pump System is Rs.8 lacs and Rs.5 lacs a 5KW and 3KW pump respectively. The good thing is that Solar Pump works without battery in the day time. If the requirement is good in number, a proposal can be sent to MNRE for providing 30% subsidy.

HEALTH AND SANITATION

A. Insecticide/DDT Table 5.6 – Cost for Health and Sanitation in PRIs Insecticide Average requairment of insecticides per HH (in gm) 100 Spray Insecticide/D.D.T. = per H.S. 100 gm for twice an year *rate as per availability in the district Per gram panchayat Requirment for year 2012-13 (in kg) 360 Average costing of per kg (in Rs) 18.50 Estimated Budget Requirment for year 2012-13 (A) Rs. 6660 Equipment Average costing per equipment (in Rs) (B) Rs. 1000 Labour Number of Mandays required @ 40 household per day per 90 person Labour Cost @170 per person (C) Rs. 15,300 Total Cost for Sparaying Insecticide per GP A+B+C Rs. 22960 Per Household Cost for Sparaying Insecticide per GP Rs. 12.76 Per Capita Cost for Sparaying Insecticide per GP Rs. 2.94 (Operational Cost)

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PUBLIC TOILETS

A public toilet is a public facility which may be a standalone water closet, or part of a bathroom. At a minimum, a public toilet can be a single unit featuring a we and a hand basin for hand washing. These toilets are important as the lack of sanitation is probably the world‘s biggest cause in the rise of infectious diseases. Millions across the country are deprived of proper access to public toilets.

It was found that GPs on an average have only one public toilet facility per GP. It is proposed to provide a set of three urinal-one laterine set for the rural areas so that public toilets are available in the villages.

Table 5.7 - Costing for Public Toilets

Average Number of Public Toilets per GP (in numbers) 1 Additional Requirement for year 2012-13 per GP (in numbers) 3 (on the basis of the annual plan of the GP) Average Costing of Per Toilet Set (in Rs) (See Annexure) Rs. 35000 Total Cost per GP for Construction of Public Toilets (A) Rs. 1,05,000 Per Capita Capital Cost Rs.13.46 Cost for Maintenance of Public Toilets Required Number Of Sweepers 4 Cost for Sweepers @ Rs500 per unit Rs. 24,000 Cost for Equipments for toilet cleaning (Brush, Basket,Brooms) @ 100 Rs. 4800 per unit per year Cost for cleaning material for toilets @ 50 per unit per month Rs. 2400 Total Cost for Maintenance of Public Toilets (B) Rs. 31,200 Per Capita Operational Cost Rs.4.00 Total Cost for Public Toilets (A+B) Rs. 1,36,200 Per Capita Cost for Public Toilets Rs. 17.46

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Toilet Design

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Annexure njas lkoZtfud fuekZ.k foHkkx t;iqj dh ch-,l-vkj- 2010 ds vk/kkj ij Øa- lhesUV ctjh fxêh iRFkj@ BSR dk;Z dk fooj.k bdkbZ Ekk=k nj ¼:-½ jkf'k ¼:-½ la- Item No. ¼cSx½ ¼?k-eh-½ ¼?k-eh-½ bZaV uhao eas 1-5 eh- xgjkbZ rd l[r] fpduh] dadj feêh dh [kqnkbZ djuk] ry dks dwVuk] ikuh Mkyuk] cxy dks laokjuk] [kqnh feêh dks ckgj

1 B-2/1.8 fudkyuk] uhao Hkjus ds ckn [kkyh LFkkuksa dks iqu% ?ku- eh- 2.65 84.00 222.24 0.00 0.00 0.00 0.00 feêh ls Hkjuk rFkk cph gqbZ feêh dks 50 ehVj dh nwjh rd fuLrkj.k djukA vfHk;Urk }kjk fn;s x;s funZs’kkuqlkjA lhesUV dadjhV uhao ;k Q’kZ eas 40 fe-eh- eki dh iRFkj fxêh@bZaV dh fxêh ds lkFk 1%5%10 vuqikr 2 ?ku- eh- B-9/3.1.7 eas lheasV&jsV&fxêh feykdj Mkyuk rFkk dqVkbZ 0.59 1638.00 963.02 1.65 0.29 0.58 0.00 djuk] rjkbZ lesrA uhao rFkk dqlhZ eas csjn~nk iRFkj dh fpukbZ 1%6 3 ?ku- eh- B-21/6.1.6 lheasV & elkys eas e; rjkbZ dsA 2.61 1420.00 3700.77 4.17 0.913 0.00 2.975 lheasV dadjhV uhao ;k Q’kZ eas 20 eheh eki dh fxêh ds lkFk 1%3%6 vuqikr eas lheasV&jsr&fxêh 4 B-9/3.1.5 ?ku- eh- 0.39 2132.00 842.01 1.74 0.19 0.37 0.00 ¼M- 10 xzsM½ feykdj Mkyuk rFkk dqVkbZ djuk rjkbZ lfgrA izFke Js.kh dh baZVksa ¼Class 75½ ls vf/kjpuk eas 5 B-17/5.2.2 lheasV&ctjh elkyk 1%6 eas fpukbZ dk dk;Z djuk ?ku- eh- 0.99 2034.00 2009.75 1.19 0.237 0.00 470 e; rjkbZ dsA izFke Js.kh dh baZVksa ¼ ½ ls vf/kjpuk eas 5 Class 75 ?ku- eh- B-17/5.41 oxkZdkj ;k vk;rkdkj [kEcksa ds fy, lheasV& ctjh 0.32 2176.00 690.66 0.38 0.08 0.00 151 a elkyk 1%6 eas fpukbZ dk dk;Z djuk e; rjkbZ dsA izFke Js.kh dh baZVksa dh 112 feeh eksVkbZ eas

6 B-18/5.9.3 vf/kjpuk eas lhesaV& ctjh elkyk 1%6 eas fpukbZ oxZ eh- 15.95 236.00 3763.02 2.39 0.48 0.00 949 dk dk;Z djuk e; rjkbZ dsA iRFkj ds floy ¼fyaVy@csM@ IysV½ dh vkiwfrZ 7 dj] fpukbZ eas mi;ksx dh xbZ lhaesV&ctjh elkyk ?ku- eh- iRFkj ds B-24/6.18 0.02 4745.00 98.22 0.02 0.01 0.00 fyaVy 1%4 mls yxkukA vOoy ntsZ dh iRFkj dh ifê;ksa dh Nr Mkyuk] 8 Åij rFkk uhps ls tksM+ksa eas iRFkj pkSi ds lkFk 1%4 oxZ eh- iRFkj dh B-43/10.16 1.74 851.00 1481.42 0.74 0.104 0.00 ifV~V;kW vuqikr eas lhesaV elkys ls HkjukA oxZ ehVj upto 2.0 m span Q’kZ eas lhaesV&dadjhV 20 feeh] eki dh fxêh ds lkFk 1%2%4 vuqikr esa lhaesV&jsr&fxêh dks feykdj 9 oxZ eh- B-47/11.3.1 Mkyuk] dwVuk] nckuk] rjkbZ lfgr ¼40 feeh eksVkbZ 2.63 154.00 404.25 0.85 0.19 2.47 0.00 easa½A 12 feeh eksVkbZ eas lheasV IykLVj nhokj ij 1%6 10 B-55/12.3.3 vuqikr eas lheasV&ctjh feykdj tksM+ksa dks dqjsnus oxZ eh- 40.89 58.00 2371.33 2.86 0.94 0.00 0.00 rFkk rjkbZ lesr djukA 50 feeh eksVh lheasV dadjhV dh tkyh dks 1%3 oxZ eh- 11 B-15/4.17 lhesaV&jsr elkys ls jks’kunku eas yxkuk rFkk 0.18 317.00 57.06 0.03 0.01 0.00 0.00 vkiwfrZ djukA f}rh; Js.kh dh 200 feeh x 300 feeh eki dh ekud lQsn] xzs vFkok gYds jax dh VkbYl Q’kZ] 12 LS lh

14 B-35/9.5 15x10x10 feeh lkbZt ds lheasV@dadjhV ¼1%3%6½ fd-xzk- 21.00 53.00 1113.00 0.25 0.05 0.00 0.00 elkys eas yxkuk rFkk Ýse ds lkFk LØw ls fgatst yxkukA

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Øa- lhesUV ctjh fxêh iRFkj@ BSR Item dk;Z dk fooj.k bdkbZ Ekk=k nj ¼:-½ jkf'k ¼:-½ la- No. ¼cSx½ ¼?k-eh-½ ¼?k-eh-½ bZaV ekbYM LVhy pn~nj dks 35x35x5 feeh lkbZt dh ,axy vk;ju Ýse esa 25x3 feeh ¶ySV vk;ju ls d.kkZor czsflax dj ,d iYys dk njoktk cukuk 15 B-37/9.17 oxZ eh- 2.21 1544.00 3404.52 0.00 0.00 0.00 0.00 tks bleas yksdjsy 50x5 feeh dk gks leLr fQfVax lfgr rFkk jsM vkWDlkbZM izkjej ds nks taxjks/kh isaV ds lkFkA Hkkjrh; lQsn dkWp phuh feV~Vh WC 450 feeh lkbt ds lkFk 100 feeh ih ,l Qank ¼Vªsi½ yxkuk 16 Lka[;k LS o O;oLFkk djuk e; ik;nku yxkuk o vkiwfrZ 1 500.00 500.00 0.2 0.05 0.00 0.00 djukA Vsjstks ¼ekstsd½ gkFk /kksus dh ok’k csflu vkiwfrZ e; 17 S-5/1.39.1 yxkuk] czsdsV difyax rFkk PVC Mªsu ikbi lfgr Lka[;k 1 558.00 558.00 0.1 0.02 0.00 0.00 420x280 feeh eki dkA vkj-lh-lh- ikuh dh Vadh 25 feeh- eksVs doj rFkk 15 feeh ft-vkbZ- vksoj ¶yks ikbi ds lkFk

18 S-17/2.24.2 90x60x60lsUVhehVj uki dh 270 yhVj tyHkj.k Lka[;k 1 504.00 504.00 0.2 0.06 0.00 0.00 {kerk dk yxkuk] vkiwfrZ e; leLr dusD’ku iw.kZ dk;Z psEcj dk fuekZ.k e; [kqnkbZ 10 lseh CC1%5%10 Q’kZ eas] 30 lseh dh iRFkj dh fpukbZ] 20 feeh eksVk 1%6 19 lhesUV elkys eas IykLVj xzsM 50 feeh dk Lka[;k S-3.22.1 M-15 1 405.00 405.00 0.6 0.16 0.00 0.15 feeh- Q’kZ e; <+Ddu vUnj dh uke 300x300 xgjkbZ 0-5 eh- rdA 1&1-5 ehVj xgjs lks[rs xM~<+s dk fuekZ.k ftleas 40 feeh fNnzkdkj fjax Mkyuk vanj dh uki 900 20 Lka[;k LS feeh rFkk 80 feeh eksVh iRFkj dk <+Ddu 1%3 3 900.00 2700.00 3.2 0.94 0.00 0.00 lhesaV elkys eas yxkukA 75 feeh O;kl ds ihohlh ikbZi Mkyuk rFkk

21 S-27/3.17.2 lksYosaV lheasV ls tksM+uk] jcj fjax rFkk Y;qczhdasV j- eh- 4.00 100.00 400.00 0.00 0.00 0.00 0.00 dh dher lfgrA nhokjksa ij tyjks/kh vizwOM czakM dh lhesaV isaV 22 B-60/12/43.1 ¼leksle½ dk;Z fpduh lrg cukrs gq, ikM+cUnh oxZ eh- 32.91 30.00 987.15 0.00 0.00 0.00 0.00 lfgrA njoktksa&f[kM+fd;ksa ij buesy isUV dk;Z nks vFkok 23 oxZ eh- B-61/12.48 T;knk dksV ,dlkj jax cukus ds fy,A 4.41 33.00 145.53 0.00 0.00 0.00 0.00 jsEi fuekZ.k lsehA 24 LS 75x150 la[;k 1 500.00 500.00 1.00 0.26 0.00 0.65 'kkSpky; eas ty vkiwfrZ ds fy, QkslZ ,.M fy¶V iEi miyC/k ty L=ksr eas yxkuk e; leLr 25 LS duSD’ku dk;Z lkbV bapktZ vfHk;Urk ds 3500.0 funsZ’kkuqlkjA Total 35037.95 22.80 5.24 3.63 1570 Say Rs.35000.00 20 mm – ?k- 2.0 1600 bZV eh- 23 6 40 3.9?k- mm – eh-iRFkj 0.6?k- eh- dV~Vs ?ku eh- ?k- eh- la[;k

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The Total Cost for a Gram Panchayat may be summarized as below:

Table 5.8 – Cost of Core Functions for PRIs (in `)

SN Core Area Total Per Per Per Capita Cost Capita Capita Operational Cost Capital Cost Cost

1 Solid Waste Management 237284 30.43 - 30.43 2 Waste Water Management 546765 70.12 62.85 7.27 3 Street Lighting 114264 14.65 8.65 5.99 4 Solar Light 176000 22.57 22.57 - 5 Cremation and Burial 359960 46.16 46.16 - Grounds 6 Community Halls 150750 19.33 - 19.33 7 Drinking Water 510000 65.40 - 65.40 8 Public Health 22960 2.94 - 2.94 9 Public Toilets 136200 17.46 13.46 4.00 Total Cost for Core Functions per GP 22,54,183 289.10 153.69 135.36

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Need Assessment of U LBs & Panchayati Raj Institutions

Norms for the Core Functions for the  Urban Local Bodies

The Twelfth Schedule of Constitution (Article 243 w) provides an illustrative list of eighteen functions that may be entrusted to the municipalities. Besides the traditional core functions of municipalities, it also includes development functions like planning for economic development and social justice, urban poverty alleviation programmes and promotion of cultural, educational and aesthetic aspects.

However, conformity legislation enacted by the state governments indicates wide variations in this regard. Rajasthan has included all the functions as enlisted in the Twelfth Schedule in their amended state municipal laws. Municipal governments are assisted by parastatal agencies (RUIDP/RUFIDCO) operating either at the state level or at the city level to carry out various functions including sanitation (sewerage/drainage) as well as the line departments that continue to cater to some of the basic services like drinking water. Besides these state level agencies, City Improvement Trusts and Urban Development Authorities, like Jaipur Development Authority (JDA/UITs), have been set up in a number of cities. These agencies undertake land acquisition and development works, and take up remunerative projects such as markets and commercial complexes, etc. This leaves the municipal bodies with only with the functions of garbage collection/disposal, street lighting, maintenance of inner city roads, registration of births and deaths, etc.

In terms of the theory of fiscal federalism, functions whose benefits largely confine to municipal jurisdictions and which are subject to heterogeneous preferences are suitable for the Municipalities. These may be termed the ―essentially municipal‖ functions. Services with large spillover effects, distributional and

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Need Assessment of U LBs & Panchayati Raj Institutions stabilization attributes and services providing uniform benefits need to be entrusted to the higher levels of government. Similarly, functions that involve substantial economics of scale or are of national interest may not be assigned to small local bodies. For valid reasons, certain functions of higher authorities are appropriate for entrustment to the Municipalities – as if under principal-agent contracts. These may be called ―agency‖ functions that need to be financed by intergovernmental revenues. Thus instead of continuing the traditional distinction between obligatory and `discretionary‘ functions the municipal responsibilities may be grouped into `essential municipal‘ `joint or shared‘ and `agency‘ functions (Mukesh P. Mathur, www.developmentfunds.org). The assignment of functions to municipal corporations, municipalities and Nagar Panchayats as suggested in Mohanty (1995) is given in table below:

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Table 6.1 Suggested Assignment of Functions Essentially Municipal Functions Municipal Municipal Nagar Corporation Council Panchayat Urban planning including town planning Yes Yes Yes (subject to broad `outline‘ or `structural‘ plan prepared by the District and Metropolitan Planning Committee/State Government) Regulation of land-use and construction of buildings Yes Yes Yes (subject to broad `outline‖ or structural‘ plan prepared by the District and Metropolitan Planning Committees/State Government) Planning for economic and social development Yes Yes Yes (Preparation and implementation of socio-economic development plan) Roads and bridges Yes Yes Yes

Water supply domestic, Industrial and commercial purposes Yes Yes Yes

Public health, sanitation, conservancy and solid waste Yes Yes Yes management Fire services Yes Yes No

Urban forestry Yes Yes Yes

Preventive Health Care Yes Yes Yes

Provision of urban amenities and facilities such as parks, Yes Yes Yes gardens, playgrounds Burials and burial grounds, cremations, cremation Yes Yes Yes ghats/grounds and electric crematoria Cattle pounds, prevention of cruelty to animals Yes Yes Yes

Vital statistics including registration of births and deaths Yes Yes Yes

Street lighting Yes Yes Yes

Parking lots, bus stops and public conveniences Yes Yes Yes

Regulation of slaughter houses and tanneries Yes Yes Yes

Slum improvement and up gradation Yes Yes Yes Agency Functions Protection of the environment and promotion of ecological Yes Yes Yes aspects Safeguarding the interests of weaker sections of society, Yes Yes Yes including the handicapped and the mentally retarded Urban poverty alleviation Yes Yes Yes

Promotion of cultural, education and aesthetic aspects Yes Yes Yes

Primary Education Yes Yes No

Primary Health Care Yes Yes No Source: Mohanty (1995), Reforming Municipal Finances : Some suggestions in the Context of India’s Decentralization Initiative, Urban India, A Journal of National Institute of Urban Affairs, New Delhi, Vol.XV (No.1), January-June, 1995.

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Functional domain of municipalities has direct impact on the volume and structure of municipal finance. The matching of municipal responsibilities with finances should be based on the broad principles of assignment of revenues – taxes, user charges, shared revenues, grants-in-aid, borrowing, etc. Norms and standards should be taken into consideration while deciding the financial structure of urban local governments. The present chapter attempts to identify the cost of the core functions that are being taken care by the municipal bodies in Rajasthan.

For ascertaining the per capita cost three methods have been used here. The first cost has been calculated on the basis of the norms established according to various national standards for municipal services which largely depict the ideal picture. Secondly, on the basis of the statement received for actual expenditure from the various ULBs, the present per capita expenditure has been calculated. This would reveal the gap between the normative and actual expenditure. In some of the core functions, on the basis of the needs ascertained during the discussions with the municipal bodies and their annual plan, a third cost has been established.

SOLID WASTE MANAGEMENT

Solid waste management is one among the basic essential services provided by municipal authorities in the country to keep urban centers clean. However, it is among the most poorly rendered services in the basket-the systems applied are unscientific, outdated and inefficient; population coverage is low; and the poor are marginalized. Waste is littered all over leading to insanitary living conditions. Municipal laws governing the urban local bodies do not have adequate provisions to de3al effectively with the ever-growing problem of solid waste management. With rapid urbanization, the situation is becoming critical.

The waste generation rates in India are lower than the low-income countries in other parts of the world and much lower compared to developed countries. However, lifestyle changes, especially in the larger per capita waste generation are increasing by about 1.3 per cent per year. With the urban population growing at 2.7

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Need Assessment of U LBs & Panchayati Raj Institutions per cent to 3.5 per cent per annum, the yearly increase in the overall quantity of solid waste in the cities will be more than 5 per cent

Though a large portion of the municipal budget is allotted for solid waste management, most of it is spent on the wages of sanitation workers whose productivity is very low. There are no clear plans to enhance their efficiency or improve working conditions through the provision of modern equipment and protective gear. Unionization of the workers, politicization of labour unions and the consequent indiscipline among the workforce are all results of bad working conditions and incept handling of labour issues.

Community participation has a direct bearing on efficient SWM. Yet, the municipal authorities have failed to mobilize the community and educate citizens on the rudiments of handling waste and proper practices of storing it is their own bins at the household-, shop- and establishment-level. In the absence of a basic facility of collection of waste from source, citizens are prone to dumping waste on the streets, open spaces, drains, and water bodies in the vicinity creating insanitary conditions. Citizens assume that waste thrown on the streets would be picked up by the municipality through street sweeping.

The Rajasthan government has issued a policy document for solid waste management after a cabinet approval in the year 2001. This policy document outlines the manner in which private entrepreneurs would be selected for setting up waste to energy or waste to compost plants in the state, the type of facility that would be extended to them and the responsibilities that would be placed with them. The state government has set up a state level empowered committee under the chairmanship of Secretary, Local Self Government to recommend the proposals received for useful conversion of solid waste.

Out of 183 urban local bodies, 152 local bodies have either been allotted land or land has been identified for them for construction of landfill site. All district collectors have been requested to make land available for landfill sites to the ULBs. Development of landfill sites is in progress under most ULBs providing approach road, fencing, etc. The landfill sites in six divisional headquarter cities are being

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Need Assessment of U LBs & Panchayati Raj Institutions developed centrally by Rajasthan Urban Infrastructure Development Project (RUIDP).

Standard Norms

Types of Solid Waste Solid waste can be classified into different types depending on their source:  Household waste is generally classified as municipal waste  Industrial waste as hazardous waste  Biomedical waste or hospital waste as infectious waste The calculations here have been made for Household Waste. In the state, Self- Financing Scheme is there for the Biomedical Waste. For Industrial waste management RIICO is responsible. For the municipal waste, the cost calculation is divided into three heads viz Manpower, Instruments and Dumping and Recycling Strategy. The recycling is done on BOT basis and has not been accounted here.

Component – Manpower - Norms

1. Norms for Sweepers Required one sweeper for average 250 Population (calculated on the basis of guideline of Government of India) Additional sweepers required weekly holidays (1/7 sweeper) 2. Labour Rate Rs 147 per man day as per the minimum rates prescribed rate of the Labour and Welfare Department 3. Interval of Cleaning Twice in a day 4. Instruments One Wheel Barrow for three sweepers One Auto tipper for 25 WB (to be provided by the Contractor) - Funds to be provided for depreciation cost and diesel cost

5. Functions The cost would include the services for sweeping, door to door collection of municipal waste and cleaning of the waste water drains. 6. Supervision Cost 15% cost is added to total cost as the supervision cost in Corporation Council and Municipal Board Grade-2 while 10% in Grade-3 and Grade-4 Table 6.2 Standard Cost Calculation for Sweepers

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Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Manpower Cost

Average Population 1804175 300500 86496 48160 18746 Number of Sweepers 7217 1202 346 193 75 Additional Number 1031 172 49 28 11

Total Manpower Required 8248 1374 395 220 86 per ULBs (A) Labour Rate (in Rs) (B) 147 147 147 147 147 Total Working Days (C) 365 365 365 365 365 Manpower Cost A*B*C A*B*C A*B*C A*B*C A*B*C (in Lakh) 4425.46 737.22 211.94 118.04 46.14

Total Equipment Cost

Wheel Barrows Number 2749 458 132 73 29 Rate Cost 3700 3700 3700 3700 3700 Total WB Cost (in lakh) 101.71 16.95 4.88 2.70 1.07 Tippers @ 3.9 lakh Number 110 18 5 3 1 Depreciation @ 15% 64.35 10.53 2.93 1.76 0.59 Diesel for Tippers @ 1 20.07 3.29 0.91 0.54 0.18 Lt/day Total Cost 186.13 30.77 8.72 5.00 1.84

Transportation Cost

Total Per Capita 450 375 325 275 250 Production (in gms) Production in Tons 296336 41131 10261 4834 1711 No. of trolley 197557 27421 6841 3223 1141

Cost of Trolley 987.79 137.10 34.20 16.11 5.70 @500Rs. Per trolley

Total 5599.38 905.09 254.86 139.15 53.68 Supervision charge@15% 839.91 135.76 38.23 13.91 5.37 or in grade-3&g-4 is10%

Grand Total 6439.29 1040.85 293.09 153.06 59.05 Per Capita 356.91 346.37 338.85 317.81 315

Table 6.3 Calculation Based on actual expenditure (2011-12)

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Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Establishment Cost 17965.7 2149.7 733.2 229.8 131.4 (Includes Salaries of the Health officer, Chief Sanitary inspector, Sanitary inspector (Grade I), Sanitary inspector (Grade II), Jamadar, Sweeper) (Rs in Lakh) Operational Expenses 2463.5 722.7 123.7 105.6 174.9 (Including the Equipment, Contract and other costs) (Rs in Lakh) Total (Rs in Lakh) 20429.2 2872.4 859.9 335.4 306.3

Sample Population 3608350 601000 259489 144481 93731 (Census 2011) Per Capita Expenditure 566.20 478.0 330.2 232 326.78 (2011-12)(in Rs) Per Capita Establishment 497.90 357.8 282.5 158.9 140.18 Expenditure Per Capita Operational 68.30 120.2 47.7 73.1 186.6 Expense Standard Per Capita 356.91 346.37 338.85 317.81 315 (in Rs) Prevalent Per Capita 566.2 478.0 330.2 232 326.8 2011-12 (in Rs)

STREET LIGHTING

Street lighting is an undeniable aspect of modern civic life. Providing street lighting is one the most important – and expensive – responsibilities of a city: Lighting can account for 10–38% of the total energy bill in typical cities worldwide (NYCGP 2009). Street lighting is a particularly critical concern for public authorities in developing countries because of its strategic importance for economic and social stability. Inefficient lighting wastes significant financial resources each year, and poor lighting creates unsafe conditions. Energy efficient technologies and design can cut street lighting costs dramatically (often by 25-60%); these savings can eliminate or reduce the need for new generating plants and provide the capital for alternative energy solutions for populations in remote areas. These cost savings can also enable municipalities to expand street lighting to additional areas, increasing access to

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Need Assessment of U LBs & Panchayati Raj Institutions lighting in low-income and other underserved areas. In addition, improvements in lighting quality and expansion in services can improve safety conditions for both vehicle traffic and pedestrians. Street Lighting facility was found in almost all the tiers if the urban local bodies and the calculations have been made keeping in mind the status of the present availability. The basic scot calculations would include the cost for Installation of Additional Points for Lighting, Maintenance, Extension and Supervision.

Norms for Lighting

 Twenty people for One Point (Standard Norm)  The Points would be 69.8% for CFL/LED lighting, 30% for a set of four light points (4 Set)  The Electricity Consumption is to be taken care by the Cess levied by the State Government for Street Lighting  It has been assumed that 25% points would require maintenance every year.  There should be an extension of 10% points due to the growth and extension of the urban areas. (5% for extension in urban area and 5% for unserved area)  It is proposed to provide a Four Light Set Point instead of the conventional Sodium Light

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Table 6.4 Standard Cost Calculations

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV CFL/LED Lights (in Number) According to the Norms 62966 10487 3019 1681 654 Total Cost 69262600 11535700 3320900 1849100 719400

4 Set Lights According to the Norms 27063 4508 1297 722 281 Total Cost 108252000 18032000 5188000 2888000 1124000

High Mask According to the Norms 180 30 9 5 2 Total Cost 90000000 15000000 4500000 2500000 1000000

Total Instrument Cost (A) 267514600 44567700 13008900 7237100 2843400

Per capita capital cost 148.27 148.31 150.39 150.27 151.68

Labour and Installation Cost (15 % of Instrument Cost) for Installation, Regulation and Maintenance includes the cost of labour, installation vehicle @ 15% of the Equipment Cost

Labour and Maintenance 40127190 6685155 1951335 1085565 426510 Cost (B) Sum (C) = (A)+(B) 307641790 51252855 14960235 8322665 3269910

Extension Cost @ 10% 30764179 5125285.5 1496023.5 832266.5 326991 Sum (C) = (D) Total Sum E = (C) + (D) 338405969 56378140.5 16456258.5 9154931.5 3596901

Supervision Cost (F) Rate 20 15 15 10 10

Supervision Cost (F) 67681193.8 8456721.07 2468438.775 915493.15 359690.1

Total Cost 406087162.8 64834861.5 18924697.28 10070424.65 3956591.1

Per Capita Cost (C+O) 225.08 215.76 218.79 209.10 211.06

Per Capita operational 76.81 67.45 68.40 58.83 59.35 Cost

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The following tables reveal a comparison between the present sources of street lighting with the number calculated on the basis of the existing norms for street lighting of one point for 20 persons.

Table 6.5

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV CFL/LED Lights (in Number) Present 65415 11915 5051 2514 1001 According to the Norms 62966 10487 3019 1681 654 Requirement -2449 -1427 -2033 -833 -347 Sodium Lights Present 33441 2778 1249 131 63 According to the Norms 27063 4508 1297 722 281 Requirement -6378 1730 49 591 219 High Mask Present 52 6 7 3 2 According to the Norms 180 30 9 5 2 Requirement 129 24 2 2 -1 Population per Point (Standard Norm 20) 18.2 20.4 13.7 18.2 17.6

The above table reveals that the number of street lighting points is presently are according to the prescribed norms. Even the distance between the two poles was in accordance with the norm of 30 meter between the two poles. Accordingly it is calculated that the cost would be on extension, maintenance and supervision. The Installation of new points is being calculated on the basis of the requirement as spelled by the difference between the norms and the present status.

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Table 6.6 Cost Calculations based on the Identified Needs

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Installation of New Points CFL/LED 0 0 0 0 0 4-Set Lights Requirement 0 1730 49 591 219 Total Cost (in Rs Lakh) 6920000 196000 2364000 876000 High Mask Present 52 6 7 3 2 According to the Norms 180 30 9 5 2 Requirement 129 24 2 2 0 Total Cost (in Rs Lakh) 64500000 12000000 1000000 1000000 0 Timer Cost 1370850 228000 65550 37050 14250 Total Equipment Cost 65870850 19148000 1261550 3401050 890250 Maintenance Cost for existing and new installations 30858075 4670775 1611615 848010 333765 Sum 96728925 23818775 2873165 4249060 1224015 Extension Cost 9672892.5 2381877.5 287316.5 424906 122401.5 Sum 106401817.5 26200652.5 3160481.5 4673966 1346416.5 Supervision 15960272.63 3930097.87 316048.15 467396.6 134641.65 Sum 122362090.13 30130750.38 3476529.65 5141362.60 1481058.15 Per Capita Additional Need 67.82 100.26 40.19 106.75 79.00

Table 6.7 Actual Present Cost Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Establishment Cost 44215000 10929000 2300000 123000 444000 Operational 120116000 24004000 11881000 4502000 2074000 Total 164331000 34933000 14181000 4625000 2518000 Population (Census 2011) 3608350 601000 259489 144481 93731 Per Capita Establishment Expenditure 12.25 18.18 8.86 0.85 4.74 Per Capita Operational Expenditure 33.29 39.94 45.79 31.16 22.12 Per Capita Total Expenditure 45.54 58.12 54.65 32.01 26.86

Table 6.8 Cost Comparisons Per Capita Cost Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Standard Norms 225.08 215.76 218.79 209.10 211.06 Identified Needs 67.82 100.00 40.19 106.00 79.00 Actual Expenditure 45.54 58.12 54.65 32.01 26.86

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Maintenance of Public toilets

The cost component for toilets consists of construction and maintenance of public toilets. As per the mandate given to the Institute, the cost here has been calculated for maintenance of public toilets only.

The maintenance of the public toilets would include the cost of effective and efficient cleaning of choked underground drainage and sewer lines. For this it is proposed to hire a High Pressure Nano Jet- Mini Sewer Jetting which would clean the public toilets at least once a day. It is proposed to provide one jetting machine for 25 public toilets.

Table 6.9 Standard Norms Cost Calculations

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Average Population 1804175 300500 86496 48160 18746 Number of Public Toilets 209 174 41 23 25 No .of sewer jetting machine 9 7 2 1 1 need (One Machine for every 25 public toilets ) Running Cost of machine Depreciation cost of Machine 945000 735000 210000 105000 105000 @15% of the machine cost of Rs 7,00,000 (A) Diesel for jetting machine & Pick Up Vehicle Diesel -2Ltr./machine/per 328500 255500 73000 36500 36500 day (B) (2Ltr./per day/per pick-up 328500 255500 73000 36500 36500 Total Diesel Cost 657000 511000 146000 73000 73000 Total Running Cost (A+B) 1602000 1246000 356000 178000 178000 Labour cost Driver @167 per day 548595 426685 121910 60955 60955 Operator @157 per day 515745 401135 114610 57305 57305 Total 1064340 827820 236520 118260 118260 Cleaner Cost Total cleaner @ Rs 270000 210000 60000 30000 30000 2500/machine per month (Phenyl, Acid, Deodorant, Naphthalene) Total costing 2936340 2283820 652520 326260 326260 Per capita 1.63 7.60 7.54 6.77 17.40

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Table 6.10 Actual Present Cost and Standard Norms Year 2011-12

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Standard Norms Construction & 35.77 35.68 5.59 5.25 2.46 Maintenance Cost Population (Census 3608350 601000 259489 144481 93731 2011) Total Maintenance 32.22 25.06 7.16 3.58 3.58 Cost Per Capita 0.99 5.94 2.15 3.63 2.62

Table 6.11 Cost Comparisons

Per Capita Cost Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Standard Norms 1.63 7.60 7.54 6.77 17.40 Actual Expenditure 1.0 6.0 2.15 3.63 2.62

PUBLIC HEALTH

The activities undertaken for public health include:

 Works for Anti Larvae  Fogging Works  Spray Works  Spray of Phenyl, DDVP,Propoxur on the dumping stations

The costs for these works have been calculated and are categorized as follows:

 Cost of Insecticides  Labour Cost  Equipment Cost  Fogging Cost

Table 6.12

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Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Cost of Insecticide(values in Rupees)

Phenyle @ 7 ml per 726225 120922 34815 19385 7545 Capita (57.5 Rs liter)

Pyrathrum @ 0.2 ml per 468000 78000 22490 12520 4875 capita (1300 rs liter)

Temophos @ 0.4 ml per 685900 114000 32870 18300 7125 capita (950 Rs liter)

Propoxer @ 1.6 gram per 635140 105600 30445 16950 6600 capita ( 220 Rs kg)

Bleaching powder/ 378840 63084 18164 10115 3937 Deodorant cum disinfectant Powder @ 5 gram per capita (42 Rs/ kg)

Total Cost of 2894105 481606 138784 77270 30082 Insecticides (A)

Labour Cost

One Sprayer for 40 2053590 388080 161700 130536 54684 households @ 147 per day (B)

*Two times in one year

Equipments

One Knapsack/Ganesh 601 100 29 16 6 Pump for 3000 population

Cost @ Rs 750 450750 75000 21750 12000 4500

Total Equipment Cost 450750 75000 21750 12000 4500 (in Rs) (C)

Municipal Municipal Municipal Municipal Municipal

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Corporation Council Board II Board III Board IV FOGGING

One fogging machine is 36 6 2 NA NA required per 50,000 population

(In MB III &MB IV fogging not Applicable

Cost of Depreciation 15% 3780000 630000 210000 NA NA @ 7,00,000

Fogging Material /Petrol 601200 100200 33400 NA NA @8350 Rs/Lit for each machine twice an year

Helpers 2 @ Rs 147 for 20 211680 35280 11760 NA NA rounds per year

Cost of Pick Up Vehicle 864000 144000 48000 NA NA @ Rs 1200 per round with diesel

Total Fogging Cost (D) 5456880 909480 303160 0 0

Total Sum (A+B+C+D) 10855325 1854166 625394 219806 89266

Supervision Cost @ 15% 1628298.75 278124.90 93809.10 32970.90 13389.90

TOTAL COST 12483623.75 2132290.9 719203.1 252776.9 102655.9

Per Capita Cost 6.92 7.10 8.31 5.25 5.48

Present Cost 2011-12

Expenditure on Public 2565500.00 214500.00 174333.33 50000.00 59400.00 Health

Cost Per Capita 1.42 0.71 2.02 1.04 3.17

Cost Comparison (in Rs)

Norms Per Capita Cost 6.92 7.10 8.31 5.25 5.48

Present Cost Per Capita 1.42 0.71 2.02 1.04 3.17

Gap 5.50 6.38 6.30 4.21 2.31

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SEWERAGE

Sewerage is the core element of physical infrastructure that determines the environmental status of any settlement and as such requires minute planning, development and management. Development of appropriate sewage carriage system with efficient treatment is the key element, which acts as a prerequisite for facilitating balanced and harmonized development. Augmentation of existing inadequate systems/treatment facilities as well as adoption of new technologies of waste treatment presents a gigantic task demanding special efforts.

It has been notices that the responsibility of maintenance of sewerage has been entrusted to different agencies at various places. In Jaipur the maintenance has been entrusted to the Jaipur Municipal Corporation while in Ajmer this responsibility has been given to the UIT, Ajmer. In Jodhpur & Udaipur the PHED is taking care of the O&M of the sewerage.

In order to meet out the expenditure done for operation & maintenance (O&M) of sewerage system, state Government levied sewerage charge @ 20 percent of the water charges Since than PHED is regularly collecting sewerage charge and supposed to reimburse the O&M expenditure to the municipal corporation up to the limit of sewer charges collected. This tariff is expected to meet the O&M costs of the sewerage in the identified ULBs and thus the detailed calculations for the sewerage costs have not been made. The maintenance costs would be around Rs 450 per capita both for the Municipal Corporation and Councils.

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Maintenance of Community Parks

Table 6.13 Standard Norms Calculations

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Number of Gardens maintained By 381 83 23 3 1 ULBs Staff Cost(values in Rupees) Horticulturist(1)1000/Day Only for 360000 0 0 0 0 Municipal Corporation Horticulture Supervisor @Rs 217/Day 792050 158410 0 0 0 one for 40 garden Assistant Choudhary @217/Day one 1584100 316820 158410 0 0 for 20 garden Gardner @ 167/Day one for two 11642405 2499155 731460 121910 60955 gardens Chokidar @Rs 147/Day one for each 20442555 4426537.5 1251950 160965 75117 garden Sweeper@ Rs 147/Day one for 2 10221277.50 2213268.75 625975.00 80482.50 37558.50 garden Maintenance of equipments and water 6756358.13 1442128.69 415169.25 54503.63 26044.58 sources @ 15 per cent Total Staff Cost (A) 51798745.63 11056320 3182964.3 417861.1 199675.1 Additional Costs Seed, Plants and Pots @Rs 5000 per 1905000 415000 115000 15000 5000 garden Toys and Benches @ Rs 20000 7620000 1660000 460000 60000 20000 Solar Lights @Rs 17,500 for per light, 13335000 2905000 805000 105000 35000 two Lights for each garden Electricity Charges for Tubewells @Rs 6858000 1494000 414000 54000 18000 1500 per month Per Capita Capital Cost 12.67 16.57 15.95 3.73 3.20 Total Additional Cost(B) 29718000 6474000 1794000 234000 78000 Total Cost (C) 81516745.6 17530320 4976964 651861.1 277675.1 Per Capita Cost (C+O) 45.18 58.34 57.54 13.54 14.81 Per Capita Operational Cost 32.51 41.77 41.59 9.81 11.61

Table 6.14 Actual Expenditure 2011-12

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Actual Expenditure 2011-12 (values in Rupees) Total Expenditure on Public Park 41838000 19458000 3515000 1286000 72000 (Does not include the salary component) Total Population 3608350 601000 259489 144481 93731 Per Capita Expenditure 11.59 32.38 13.55 8.90 0.77 Cost Comparison Normative Per Capita Cost 45.18 58.34 57.54 13.54 14.81 Actual Per Capita Expenditure 11.59 32.38 13.55 8.90 0.77 Gap 33.59 25.96 43.99 4.64 14.04

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Maintenance of Community Halls

Table 6.15 (Cost In Rs.)

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV Calculation as per the Standard Total Community Halls 24 34 9 7 2 Maintained by the ULBs TotalConstruction Cost for 24000000 34000000 9000000 7000000 2000000 Community Hall as per the BSR, JMC @1000000 Maintenance Cost of 2400000 3400000 900000 700000 200000 Community Hall (10% Of Construction Cost) Based on the cost of needs identified for the community halls in the ULBs Total Cost 2400000 3400000 900000 700000 200000 Per Capita Cost 1.33 11.31 10.41 14.53 10.67 Actual Expenditure 2011-12 Actual Expenditure 38000000 921000 5680000 500000 50000 2011-12 (Includes the Cost of Construction) Per Capita Expenditure 10.53 1.53 21.89 3.46 0.53 2011-12 Per Capita Expenditure on 1.05 0.15 2.19 0.35 0.05 maintenance (Based on the assumption that the maintenance expenditure is average 10%) Gap 0.28 11.16 8.22 14.19 10.62

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Per Capita Cost for Core Functions for ULBs

Table 6.16

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV

Solid Waste Management (values in Rupees)

As Per Standard Norms 356.91 346.37 338.85 317.81 315 As per Actual Revenue 68.30 120.2 47.7 73.1 186.6 Expenditure Gap 288.61 226.17 291.15 244.71 128.4

Street Light As Per Standard Norms 225.08 215.76 218.79 209.10 211.03 As per Actual Revenue 33.29 39.94 45.79 31.16 22.13 Expenditure Gap 191.79 175.82 173 177.94 188.9

Public Toilet

As Per Standard Norms 1.63 7.60 7.54 6.77 17.40 As per Actual Revenue 1.0 6.0 2.15 3.63 2.62 Expenditure Gap .63 1.60 5.39 3.14 14.78

Public Health

As Per Standard Norms 6.92 7.10 8.31 5.25 5.48 As per Actual Revenue 1.42 0.71 2.02 1.04 3.17 Expenditure Gap 5.50 6.38 6.30 4.21 2.31

Public Park

As Per Standard Norms 45.18 58.34 57.54 13.54 14.81 As per Actual Revenue 11.59 32.38 13.55 8.90 0.77 Expenditure Gap 33.59 25.96 43.99 4.64 14.04

Community Halls

As Per Standard Norms 1.33 11.31 10.41 14.53 10.67 As per Actual Revenue 1.05 0.15 2.19 0.35 0.05 Expenditure Gap 0.28 11.16 8.22 14.19 10.62

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Per Capita Cost for Core Functions for ULBs (Capital and Operational)

Table 6.17

Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV

Solid Waste Management (values in Rupees)

As Per Standard Norms 356.91 346.37 338.85 317.81 315 Capital - - - - - operational 356.91 346.37 338.85 317.81 315

Street Light As Per Standard Norms 225.08 215.76 218.79 209.10 211.03 Capital 148.27 148.31 150.39 150.27 151.68 operational 76.81 67.45 68.40 58.83 59.35

Public Toilet

As Per Standard Norms 1.63 7.60 7.54 6.77 17.40 Capital - - - - - operational 1.63 7.60 7.54 6.77 17.40

Public Health

As Per Standard Norms 6.92 7.10 8.31 5.25 5.48 Capital - - - - - operational 6.92 7.10 8.31 5.25 5.48

Public Park

As Per Standard Norms 45.18 58.34 57.54 13.54 14.81 Capital 12.67 16.57 15.95 3.73 3.20 operational 32.51 41.77 41.59 9.81 11.61

Community Halls

As Per Standard Norms 1.33 11.31 10.41 14.53 10.67 Capital - - - - - operational 1.33 11.31 10.41 14.53 10.67

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Human Resource

and Staffing in  Urban Local Bodies

As a part of this study a review the staffing pattern of the Urban Local Bodies in view of their role. This review has been done keeping in mind that urbanization is growing phenomenon and is rapidly engulfing not only land but also those gifts of nature which sustain life.

When we look at the history of Urban Local Bodies since their inception in the 19th Century British India, one stark fact looms large at us. The present structure makes us feel that we are still living in the colonial days with our Urban Local Bodies filled up with staff some of which is totally redundant today. In the days when satellites are looking at every inch of land and mapping it out, we still employ a large number of Revenue Inspectors and property tax assessors who are not only inefficient but also use manual methods of assessment of area and tax.

We have also seen that these bodies, since their inception, have never shown any enthusiasm for levying local taxes. The British had also complained that the elected representatives were not interested in increasing their own income and, therefore, the State had always to impose direct and indirect taxes on their behalf to meet their financial needs. Things have become far worse today. Taxes like house tax, which were mandatory, were sacrificed at the altar of politics. Octroi which was a big contributor to internal revenue was also abolished without batting an eye lid by the State Government. A further obstacle in the way of municipal bodies is the setting up of bodies like the Jaipur Development Authority, Housing Boards and

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UITs. These bodies have taken over all those revenue generating activities which were with municipal bodies, especially selling of land. The JDA is headed by the Minister himself. There are possibilities of biased decisions by the State Government if there is a point of dispute between the JDA, Housing Board and municipal bodies like the Jaipur Municipal Corporation. Municipal bodies are Constitutional bodies whereas the developmental bodies are not. The State should provide a higher status to Municipal bodies than to developmental agencies.

There are many other such obstacles which come in the way of strengthening of internal resources. More and more dependence is now on grants by the State Government and the Central Government through various schemes to sustain these bodies. The studies made by our Institute have clearly shown that unlike the 73rd amendment to the Constitution, the 74th amendment has failed miserably in all its objectives, especially the stranglehold of the State.

The way the administrative and financial powers of the Urban Local Bodies are being centralized by the State Government is the crassest example of ―Centralized Decentralization‖ and a snub to the 74th amendment of the Constitution of India. The second tier of governance, i.e., the State government, has not given the respect due to the third tier of governance, i.e., the panchayats and urban local bodies set up under the Constitution of India. Duly elected Municipal bodies are almost an appendage of the government appointed developmental agencies like the JDA, the Housing Board and UITs. This has crippled these bodies. We would like to request the State Finance Commission to link its grants to the vesting of total fiscal powers to the urban local bodies.

It is proposed that in cases of dispute, a body under a retired High Court Judge should be set up to adjudicate between the Municipal Bodies and urban development agencies and not the State Government.

As good governance is the backbone of rapid development, we must put our energy together to improve the governance in the Urban Local Bodies. Staffing pattern is a major component of good governance. The last attempt at looking at the staffing pattern of urban local bodies was made in 1965 in Rajasthan. In many other

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States also we find that no fresh attempts were made for changing the staffing pattern for several years. As it is not possible for us to look at detailed changes in the staff pattern from the top to the bottom level, within the means and time available with us, we have selected some broad areas for improving the staffing pattern and strengthening the system to meet the present day needs.

Need for a Separate State and Subordinate Services Cadre :

At the outset, we would like to prioritize on creating a separate State and Subordinate Services cadre for the Urban Local Bodies on the pattern of the recently created Rajasthan Rural Development Services with similar rules for appointment, promotions etc. It is of extreme importance that we create a group of highly trained administrative and technical officers to administer the Urban Local Bodies from the lowest grade Municipalities to Municipal Corporations. Unfortunately, urban local governance has never been put on a priority by the governments. For example, even in Jaipur Municipal Corporation, we find that a large number of Municipal Commissioners have risen from the ranks without any specialized knowledge of the changing administrative and technical requirements of urban governance. This should be set right at the earliest.

Need for Capacity Building at the Third Tier: Creation of a State Level Institute for Urban Development

There is no direct recruitment at any level. We also feel that along with the creation of State and Subordinate level Service, an institution on the lines of the Indira Gandhi Panchayati Raj Sansthan (IGPRS) should be set up by the Government, which can take up training needs of officers for the urban local bodies, right from the foundational level to the senior most level.

Unless and until these two basic requirements of modern day urban local governance are met, it will not be possible to achieve our goals by only changing the

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Some other areas of concern are as follows:

Need for a separate department of Solid Waste Management in the State

The work of this department should be limited to dealing with Solid Waste Management Planning and Execution throughout the State. It should provide all the technical knowledge and the functions regarding cleaning the cities, including purchase of equipment should be dealt with by it.

Suggested Pattern of Cleaning Staff in ULBs

Regarding sanitation, including Solid Waste Management, we would like to propose that throughout the State, in different municipal bodies, we would like to emphasizes that there should be one sweeper for every 250 residents. There should be one Jamadar over 25 sweepers and a Sanitary Inspector for a population of 20000 residents and in each zone, having a population of 2 lakhs, there should be one Solid Waste Management Officer. We would suggest that his designation should be changed from Health Officer to Solid Waste Manager because the word ‗health‘ is very ambiguous.

Chief Executive Officer

We propose that in all those Municipal bodies where there is a Mayor, the CEO should be from the IAS. Looking to the experience of IAS officers as CEO in Jaipur, we propose that he should be from the super time scale of the IAS. The others can be from the selection grade of the IAS. We also propose that the Government should send a panel of names to the Mayor who should be authorized to select one.

Zonal Officers : - Making A More Rational Division of Jurisdiction

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The rising population of urban areas needs a continuous look at the number of Zonal Officers required in various urban local bodies. There should be a Zonal Officer for each zone. There should be a Zonal officer for two lakh population across the State. We suggest that there should be a delimitation of the jurisdiction of zones looking to the present and future needs of next 5 years. The number of Zonal Officers should be raised accordingly.

At least 1/3rd of the Zonal Officers in towns with more than 10 lakh population should be from the Rajasthan Administrative Service and the rest from Municipal Services. In Municipal bodies other than corporations, Zonal Officers should be for general purpose administration but should not be involved in collecting taxes which should be dealt with by another wing.

Executive Officers in smaller municipal bodies should be from junior scale, senior scale and selection scale of the Municipal Services and should be posted in smaller to bigger municipalities in that order. These officers should be recruited directly from the market.

Municipal Commissioners at Headquarters

There are Municipal Commissioners at the headquarters for various works. We shall take up only those posts which need either abolition or strengthening.

Commissioner - Solid Waste Management

It is recommended that Health and Sanitation is divided into two divisions - Public Health and Solid Waste Management. There is a difference in the needs between Health and Public Health. We should also understand that sanitation has become such a major issue with solid waste management as an important component. There must have a separate Municipal Commissioner who is trained in trained in Solid Waste Management for it. He should be in-charge of management of solid waste of all types. He should be a technical officer specially selected for the job.

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The work of cleaning the towns needs much more technical and administrative focus. It should be insisted that under the Commissioner, there should be Solid waste Engineers and not Civil Engineers. Each member of the staff needs to be trained for solid waste management techniques. He should be assisted by Zonal Officers. Officers supervising Sanitary Inspectors may be called Solid Waste Management Officers instead of Health Officers.

Commissioner – Public Health

His primarily duty would be dealing with preventive health issues. We also propose that he should be a professional person with a specialized degree in Public Health. He should be held responsible for the spread of any disease originating from sewerage, impotable water, adulterated food, insects, animals etc. He should have direct control on all the necessary staff and equipments as well as funds and should have delegated administrative and financial powers for emergency use. He should be of CMHO level, who can coordinate with District CMHOs. He should be assisted by Zonal officers.

Municipal Commissioner (Revenue)

A weak area in the Municipal set up is revenue collection although it should be a very important part of administration. The Commissioner who should be from the Rajasthan Accounts Service should be supported by Revenue Officers in every zone and there should be one Revenue Inspector for four assessors. There should be one assessor for 3000 assesses depending on the demand raised from the Zone. There should be at least 2-4 Assessors to help the Municipal Commissioner (Revenue) at the headquarters. Each field Revenue Officer should have at least three Revenue Inspectors and five Assistant Revenue Inspectors in each zone. The Municipal Commissioner (Revenue) should be supported with modern day techniques of assessing property and other taxes through GIS, satellite mapping and other necessary equipments. The revenue officials should not be only to assess the taxes at the ground level but timely collection of local taxes also should be their 172

Need Assessment of U LBs & Panchayati Raj Institutions responsibility. We also suggest that the revenue assessment and collection should be directly under the Municipal Commissioner (Revenue). He should be from Rajasthan Accounts Service. Zonal Commissioners should be kept out as they are busy with general administrative duties in their zones. Those people who want the bills through internet and also want to pay by internet should be allowed the facility as has been allowed in several other services.

Municipal Commissioner – (Garage)

We feel that the vehicles in an Urban Local Body along with the drivers should be totally outsourced except for a few vehicles for emergency use for the Chief Elected official, the Chief Executive Officer and those Commissioners who need to go to the field frequently. We feel that the garage can be under the Commissioner (Establishment) with one technical person to look after maintenance, etc. The post of Municipal Commissioner (Garage) should be abolished.

Municipal Commissioner (Gardens)

Another work which needs to be totally outsourced is the development and maintenance of gardens. Serious efforts need to be made to get the public sector undertakings, the corporate sector or charitable clubs like the Rotary and Lions involved. The Zonal officer can be asked to supervise the work. The post of Municipal Commissioner (Gardens) may be abolished.

Public Relation Officer

This post should be created in all those ULBs where the population is above three lakhs. His main job should be to launch public awareness programmes such as cleaning of the town and citizen‘s responsibility, pollution, techniques of Solid Waste Management, public health, revenue recoveries etc. He could be on deputation from the Department of Public Relations.

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Chief Fire Officer

The fire division is a major weakness of Urban Local Bodies. There is shortage of skilled manpower, equipment and fire extinguishing chemicals. The entire work is technical in nature and should be under the Chief Fire Officer. The CFO should be directly under the CEO and the post of Municipal Commissioner (Fire) should be abolished. He should be assisted by all Zonal Commissioners, each with a team of officers who should be responsible to ensure that fire safety norms are fully implemented in their jurisdiction in all the buildings which need their certification and who should be held personally responsible in case of a default.. All the towns above a population of five lakhs should have a Chief Fire Officer. Towns below a population of five lakhs should have Fire Officers suitably trained in firefighting of all types.

Civil Engineering Wing in ULBs

As per the Director, LSG, as on 1.4.2010, the following was the staff position for the engineering wing in various ULBs and the additional demand raised by the Local Self Government in 2010 for new positions given below:-

Table 7.1

Post Present Additional Total Requirement Chief Engineer Nil Nil 0 Additional Chief Engineers Nil 1 1 Superintendent Engineers 3 Nil 3 Executive Engineers (Civil) 13 5 18 Executive Engineers (Electrical) 4 1 5 Executive Engineers (Mechanical) 2 Nil 2 Assistant Engineers (Civil) 32 6 38 Assistant Engineers (Mechanical) 4 1 5 Assistant Engineers (Electrical) 4 5 9 Junior Engineers (Civil) 146 13 159 Junior Engineers (Mechanical) 6 6 12 Junior Engineers (Electrical) 8 13 21

On 18th February, 2011, the demand went up suddenly to –

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Table 7.2

Chief Engineer 1 Additional Chief Engineers (Civil) 2 Superintendent Engineers (Civil) 7 Executive Engineers (Civil) 24 Assistant Engineers (Civil) 110 Junior Engineers (Civil) 427 No reasons have been mentioned in the order of Finance Department for this sudden rise in demand. These positions are also not linked with any central or state schemes.

The Government also sanctioned one post of Additional Chief Engineer (Civil) for the headquarters. How was the number of posts raised so suddenly and sanctioned by the FD even while the report of the State Finance Commission is under preparation is strange, especially when the staffing pattern in ULBs is under scrutiny by the Commission needs an explanation. There was no need for this additional financial burden on the municipalities when they have no funds to bear the burden of salaries even for the existing staff. We strongly recommend that any staff reduction or augmentation has to be done in consultation with the municipalities as they are independent Constitutional bodies and not an adjunct of the State Government’s department of Urban Development.

In the PWD, the post of an Additional Chief Engineer is at the Zonal Headquarters only and there is one Superintendent Engineer in one district. An XEN is allowed for works of Rs.15 crores as per the government orders. With every XEN, there are three AENs and with every AEN there are three JENs. We strongly propose that for each municipal body whether it is a corporation or a municipality of 3rd Grade, the staff should be totally based on the funds sanctioned for civil work and the PWD norms. It is also seen that posts which have been sanctioned for the Directorate of Local Bodies cannot be and should not be paid for under the State

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Finance Commission grants. Another drawback with the positions existing or asked for is that not a single post has been suggested for Environmental Engineers, which is the need of the hour especially in bigger cities where the rate of urbanization is very rapid and where pollution levels are sky rocketing.

We also propose that promotions from Junior Engineers to Superintendent Engineers and above should be strictly on the pattern followed in the PWD.

We also propose that as the urban local bodies are no longer involved in electrical or mechanical work, posts of all mechanical and electrical engineers should be abolished. Instead, posts of environmental engineers, wherever required, created.

Legal Division

Another weak area of administration in the Urban Local Bodies is the legal cell. Let us take the example of the Jaipur Municipal Corporation. There are 22000 cases pending in the Municipal Courts in Jaipur, 8000 at the District and Sessions Judge‘s court, 2000 in the High Court and 50 in the Supreme Court. For this the staff is as follows –

Table 7.3

 (i)  Director Law in the rank of the Joint Legal Remembrancer 1  (ii)  Deputy Legal Remembrancer 1  (iii)  Assistant Legal Remembrancer 2 At present there is Director Law and one Law Officer, who is of the rank of Assistant Public Prosecutor. Looking to the need of quicker disposal of the cases, posts of one DLR, two ALRs and eight HLAs are absolutely needed. In the Municipal Councils at least one ALR is necessary. In smaller Municipalities if required, there could be at least one parokar. The present Joint LR in JMC is also the Director of Law in the Local Self Department, which should not be permitted.

Revenue Collection

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The situation of revenue collection is simply pathetic in all the municipalities. The reasons are obvious, there is no desire politically or administratively to collect taxes. The untied grants of the State Finance Commission to the Urban Local Bodies is one of the biggest reasons for this lack of enthusiasm, politically and administratively to improve the financial position of the municipalities. We feel that the present Finance Commission should put a stop to that. How long will it keep on compensating inefficiency of the Urban Local Bodies? It is absolutely essential that any grants to urban local bodies should be based on the collection of taxes from their own sources. Compensating for establishment costs leads to rising administrative costs and is against any administrative and economic logic.

We must look at the qualifications of the assessors who are simple graduates at present and have no specialized skill for assessing the demand. It is also important to introduce the latest technology to find the exact size of a plot and the built up area of houses and commercial complexes for computing the correct demand. There is also need to lower the exemption limits and raise the rates for vertical expansions.

Information Technology

Urban local bodies have failed to recognize the need of using information technology in their day to day administrative and financial work. Today the need is to establish systems which can improve the overall functioning of a municipal body. We suggest creation of the posts of system managers and data entry operators in all the urban local bodies.

Staff positions in ULBs which need to be abolished

We find that there are several positions, which should be abolished and put in a dying Cadre or made surplus for absorption elsewhere like those of Tehsildar, Patwari, Jaldhar, Watchman, Peon, Chowkidar, Parcha Vitrak, Assistant Parcha Vitrak, Sab Nakedar, Gangman, Scavangar, Painter, Data Computer, Bhisti, Time Keeper, Mechanical Grade-I & II, Electrician, Pump Driver, Carpenters, Job Officers,

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Skandhpal, Pump Driver, Cleaner, Fitter, Helper Fitter, Luhar, Helper Lauhar, Weldar, Job Operator, Draftsman, Surveyor, Tracer, Gajdhar, Mistri Construction Gang, Kaarigar, Mate, Beldar, Pipe Fitter, Teacher, Naka Guard, Statistical, Machine Man etc.

Proposed Staffing Pattern for Various ULBs

The following are our suggestions for major staffing in different types of ULBs.

Depending on the size of the urban local body and the required capability of the CEO, he could be from the super time scale of the IAS to lower scales in the IAS or RAS.

1. For ULBs for population above 10 lakhs

Commissioner CEO 1 Addl. Commissioner Commissioner ( Estab.) 1 Commissioner GAD RAS (selection scale) 1 Asst. Commissioner Rajasthan Municipal Services 1 System Manager 1 Computer Asst. /Data Entry 5 Operators Commissioner (Revenue) R. Acct. Service 1 Revenue Officer One for each zone.

Revenue Inspector One for 4 assessors Assessors One for 3000 assesses Accounts Chief Accounts Officer R. Acct. Service 1 Accounts Officer 2 Jr. Accounts Officer 2 Sr. Accountants 6 Jr. Accountants 8 Public Health CMHO Health Public health specialist 1 Asst. Public Health Officers 1 for each zone Solid Waste Management Birth and death Officer One for each zone Engineering Norms should be strictly according to PWD guidelines Zonal Officers One Officer for every zone having a population of two lakhs. One-third should from the RAS. CEO RAS 1 Commissioner (Est.) RAS 1 Asst. Commissioner Municipal Services (Grade-1)

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Computer System Manager 1 Data Entry Operators 2 Revenue Commissioner (Revenue) 1 Revenue Officer 1 for each zone Revenue Inspectors 1 for 4 assessors Assessors 1 for 3000 Assessors Accounts Sr. Accounts Officer 1 Accounts Officer 1 Junior Accounts Officer 1 Sr. Accountant 4 Jr. Accountant 6 Public Health CMHO Health 1 Asst. Public Health Officer 1 for each Zone Birth & Death Registrar 1 for each zone Solid Waste Management Norms suggested earlier Engineering Norms strictly in accordance with PWD guidelines. Public Relations Officer 1 ZONAL OFFICERS There will be one zonal Officer 1 For a population of two lakhs. He will be dealing with all municipal matters in his jurisdiction except taxes. ULBs with Population between 3-5 lakhs

Estb. CEO RAS 1 Comm. (Estb.) 1 Asstt. Comm.(Adm.) 1 Systems Manager 2 Data Entry Operators 2 Revenue Dy. Comm. 1 Revenue Officer 1 Revenue Inspectors 1 for 4 assessors Assessors 1 for 3000 assessees Accounts Accounts Officer 1 Junior Accounts Officer 1 Sr. Accountant 3 Jr. Accountant 5 Public Relation Officer 1 Zonal Officers There will be a Zonal Officer for every 2 lakh population who will be in-charge of all the activities of the ULB in his jurisdiction other than revenue collection. Public Health and Solid Waste

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Management Public Health Officer 1 Solid Waste Manager 1 Cleaning teams as per norms suggested earlier Birth & Death Registrar 1 for each zone

Engineering Should be strictly as per the norms of the PWD ULBs with a Population Between 1 lakh and 3 lakhs Estb. E.O. 1 Asstt. E.O. 1 Systems Manager 1 Data Entry Operator 1 Revenue Dy. Commissioner Raj. Acct. Service 1 Revenue Officer 1 Revenue Inspectors 1 for 4 assessors Assessor 1 for 3000 assesses Accounts Jr. Accounts Officer 1 Sr. Accountant 3 Jr. Accountant 3 Public Health Public Health Officer 1 Birth and Death Registrar 1 Solid Waste Management Cleaning team Solid Waste Manager 1 Cleaning team will be on the pattern suggested earlier. The staff for sanitation shall help the Public Health Officer in the discharge of his duties. Engineering Strictly as per the norms of PWD ULBs with Population Between 40000 and 1 lakh Estb. EO 1 Systems Manager 1 Data Entry Operator 1 Revenue Dy. Commissioner 1 Revenue Officer 1 Revenue Inspector 1 for three assessors Assessors 1 for 3000 assessees Accounts Sr. Accountant 1 Jr. Accountant 2 Engineering Strictly as per PWD norms ULBs with Population Below 40000 Estb. E.O. 1 Systems Manager 1 System Data Entry 1 Revenue Revenue Inspector 1 for 4 assessors Assessors 1 for 3000 assessees

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Accounts Jr. Accountant 1 Public Health and Sanitation Norms for Cleaning Staff will be the same as suggested earlier.

Success Stories 

Some Glaring Examples of Local Governance

1. Municipal Corporation, Surat

The rapid urbanisation and rise in population in Surat led to the growth of slums, increase in garbage and overflowing drains. In 1994, Surat was struck by an outbreak of a virulent disease somewhat like the plague. The disease caused panic countrywide and while the citizens blamed the municipality, the civic authorities in turn blamed the citizens for their lack of civic sense. It was a harsh reminder of what negligence in the area of solid waste management can lead to. But what was most amazing was that within a span of 18 months the city made a complete reversal from a dirty, garbage-strewn city to become one of the cleanest cities in the country.

This transformation was possible by efforts of the Surat Municipal Corporation and the Community. Subsequent to the disaster, the attitudes of the citizens changed and they diligently tried to improve its living conditions. Institutional changes were the first thing to happen. The city was divided into six zones to decentralize the responsibilities for all civic functions. A commissioner was appointed for each zone with additional powers. The officials responsible for solid waste management were made accountable for their work; and field visits were made mandatory for them each day. The solid waste management department and other related departments were made to work and cooperate with one another. Grievance redressal cards were issued to people so that complaints could be registered. The complaint was attended to within 24 hours and the card returned to

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Need Assessment of U LBs & Panchayati Raj Institutions the citizen. In addition to the administrative changes, the changed laws had an important role to play in improving the conditions by also making the citizens aware of and responsible for certain preventive actions. Indeed, these are some of the very basic changes that needed to be introduced in the functioning of all urban local bodies. Initially, the Gujarat Government‘s Municipal Act did not have any provision to penalize littering. However, after the plague, the government realized that it was important to impose such a penalty in order to make people aware of their responsibility in maintaining their city‘s cleanliness. Thereafter, a fine of Rs 50 was imposed for every offence of littering and it was doubled for every subsequent offence. The city roads were swept twice a day and the corporation, in an appreciable attempt, has engaged private sweepers to cover different inner areas of the town. Private contractors are also actively involved in the transport.

The private sector has been involved in solid waste collection and transportation, maintenance of street lighting, construction of a roads, tree planting and operation of water treatment plants. As a result of collection of and transportation of garbage, the collection efficiency increased from 30 percent in 1995 to above 90 percent now.Another example, by contracting out the street lights maintenance to private company, the level of service has improved and about 95 percent of street lights are now in working conditions.

(Source: .TERI, Municipal Finance and Municipal Services in India Present Status and Future Prospects, Dr. Mukesh P. Mathur, Professor, National Institute of Urban Affairs (NIUA), 1995)

2. Rajkot Municipal Corporation, Rajkot Rajkot Municipal Corporation undertook its first initiative of privatization in 1998 with the privatization of transportation and collection of solid waste. Encouraged by the results achieved in the first attempt, RMC undertook privatization of telephone, EPABX system, public toilets maintenance, employment of security guards, drainage complaints management etc.

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The initiative has demonstrated that privatization of small works helps an urban local body to achieve efficiency in administration and good governance. Rajkot Municipal Corporation (RMC) has contracted out maintenance of street lights, solid waste removal and transportation, cleaning of public toilets, maintenance of gardens, a forestation etc. RMC has also undertaken various entertainment projects with the help of private entrepreneurs. By using the services of the private sector, RMC has been able to save a significant amount of money and has been able to close the gap between demand and supply by improving service provision. Huge investments that are needed for acquiring capital equipments such as tractors, trollies, etc. have now been given over to private contractors. However, RMC has not retrenched any of its staff but has stopped new recruitment. RMC continues to use its present manpower as well as equipment in certain areas in the city. This also serves as contingency plan in case of service disruption due to problems with the private contractors. Some initiatives are as follows:

 Privatisation of The Maintenance of Street Lights by RMC Most of the street lights in the city were damaged and un-repaired. This invited a number of accidents as well as antisocial activities. The Rajkot Municipal Corporation failed to answer the complaint of public satisfactorily. From September 1991 private sector was involved for maintaining the streetlights. Initially four wards were privatised followed by the others. 33 percent out of the total streetlights (20,000) have been contracted out till now. There is a saving of Rs. 3.73 lakhs to the corporation per year after the initiation of privatisation Opinion poll conducted by the corporation suggests that the public is appreciating the change.  Privatisation Of Maintenance Of Pipelines And Drainage Pumping Station By RMC Water is supplied only for 30 minutes everyday. In scarcity period water is supplied on alternate days. Every summer,RMC used to recruit daily wager persons to maintain special service of water supply and incurred huge expenditure. Private contractors were asked to make arrangements for

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maintenance and repair of pipelines round-the-clock during the scarcity period. The contractor was to arrange 10 labour and one truck and he was paid Rs. 1000/- per day and 2 fitters were provided by the RMC. This scheme saved lakhs of rupees. Problems regarding payment of daily wages and regularisation on the permanent jobs were done away with.  Privatisation of Parks And Entertainment Facilities by RMC Parks were ill-maintained by the municipality department. It was decided to hand over maintenance of two parks namely Race Course (12000 Sq. Meters) and Sorathiawadi Chowk garden (5500 Sq. meters.) on contract. 17.5% of the total park areas in the Rajkot is privatised (i.e.17, 50 sq.meters out of the 1,00,000 sq.m). Privatisation brought better management and efficiency in the system apart from the financial advantages. Net financial advantage of Rs 6,30,000 was achieved.  Entertainment Projects & Schemes by RMC Besides providing basic amenities to the citizens, RMC has taken up various entertainment projects and schemes with active participation of entrepreneur experts in respective fields. In some cases lands and buildings are provided to the entrepreneur for running the scheme on lease while in other cases only land is provided on lease. The private entrepreneurs are allowed to charge stipulated fees from the user. The general rules and regulations of running such facilities are decided by RMC an agreement has been made with private entrepreneurs for smooth running of the scheme.  Privatisation of The Health and Other Services by RMC The health facilities for the poor and the slum dwellers were unsatisfactory and were available to a negligible part. A mobile clinic was introduced. Financial Advantage of Rs. 4,000/- pm or Rs. 48,000 / per annum was achieved. The most important benefit of the scheme is the involvement of NGOs who have social motive and thus rendering good work.  Innovations In Revenue Collection Property tax is the second major source of revenue in Rajkot. In order to simplify the procedure and to increase the base of this tax the corporation has recently

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introduced the self-assessment forms. Revenue of the RMC has increased after the introduction of these forms. Many of the informal housing societies and unnoticed co-operative societies who were not in the list of the Corporation earlier have come forward for filling the forms.  Recruitment of Professionals in RMC To initiate corporate culture in the Corporation recently a few professionals were recruited in the RMC. These professionals work at the level of assistant managers in the corporation. The corporation has recruited professionals MBAs and Charted Accountants at the level of Assistant managers in the key branches like Octroi, Tax, SWM, and Streetlights. Now, the services are better managed and tackled more efficiently. (Source-The time of India July 24, 2012) (Source: Urban Management Center(UMC), http://umcasia.org/)

3. CIDCO, New Mumbai

The City and Industrial Development Corporation (CIDCO), a public sector institution at New Mumbai has had a very successful experience with privatization efforts. The privatization experience includes maintenance of sewerage pumps and water pumps, meter reading and billing, maintenance of parks and gardens, collection of CIDCO's service charges and so on. CIDCO has given the collection of its service charges to the Senior Citizens Club (as association of retired persons) whom it pays one percent as commission. If CIDCO was to collect the charges on its own it would cost it three times.

For Road sweeping garbage collection, disposal, maintenance of drains, spraying of insecticides etc. the CIDCO allotted the work to different contractors for a group of sectors on yearly basis. The work done by the contractor was supervised by the Sanitary Inspectors of CIDCO. There are 15 contracts in all the 7 town-ships. This system has been functioning for over 8 years. Now, the streets are well maintained as well as the system is

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Need Assessment of U LBs & Panchayati Raj Institutions economical. The total cost of all contracts in 7 town-ships is Rs. 58.0 lakh per year. If this work is done by CIDCO, there would be at least 400-500 sweepers + 20 trucks. The all inclusive maintenance cost including salary etc. would be around Rs. 100.0 lakh. As against this, the work is done quite satisfactorily through private contracts at half the cost and with no performance liability of maintenance department.

(Source : Municipal Finance and Municipal Services in India Present Status and Future Prospects, Dr. Mukesh P. Mathur, Professor, National Institute of Urban Affairs (NIUA), 1995)

4. Pune Municipal Corporation (PMC)

 Pune, the second-largest city in Maharashtra after Mumbai, offers a shining example of what a city can do to manage the growing menace of garbage as it urbanises at a rapid pace. The city has always been an important commercial centre of Maharashtra, but the rapid growth of industry in the Pune district, particularly the concentration of IT companies and of automotives and auto- components, has added a modern flavour to its development. Growing numbers and rising prosperity has meant that not only is the quantity of solid waste growing—Pune generates 1,400 metric tonnes of solid waste per day—but its composition is also changing with more plastics and non-biodegradable elements to reflect the changing patterns of consumption of the growing middle classes.  The Pune Municipal Corporation (PMC) has been trying a range of solutions from the most traditional and informal to the most modern and scientific, converting waste to energy with state-of-the-art environment-friendly technology and developing scientific landfills for depositing the much reduced garbage that cannot be reused. Rag-pickers‘ cooperatives are participating in the clean-up as much as the corporate sector with the latest technology.  Pune was no different from other Indian cities in having piles of waste on street corners and overflowing community bins which were rummaged by rag-pickers to seek out a living from selling the recyclable bits. Garbage used to slowly find

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its way from the bins to transfer stations and was finally transported to the dumpsite 22 km away at Urali to rot.  Things began to change in the 1990s much before the government of India notified the Municipal Solid Waste (Management and Handling) Rules in 2000 for all Indian cities. The inspiration for change came from Poornima Chikarmane and Laxmi Narayan, two lecturers at the SNDT University in Pune who urged city residents to segregate wet and dry waste so that the scavengers did not have to sift through the garbage looking for what they could sell. Their efforts led to the setting up of the Kach Patra Kashtakari Panchayat (KKPKP) in 1993, a trade union of waste-pickers. The municipal corporations of Pune and Pimpri- Chinchwad started issuing photo ID cards to rag-pickers, which allowed them to scavenge, reducing the scope for police brutality.  When the PMC set out to develop an integrated strategy to comply with the SWM Rules of 2000, they found the arrangement with the rag-pickers as well as the habit of segregating dry waste from wet waste on the part of households very handy. In 2007, the PMC and the KKPKP jointly promoted the creation of SWaCH, a cooperative of waste-pickers and other urban poor, using their members to provide door-to-door collection services for households, shops, offices, etc. Those not covered by door-to-door collection, were required to use containers and compactor buckets as prescribed by the PMC.  SWACH members are authorised to collect service-based user fee. They work in pairs covering 250-300 households for segregated waste collection, further segregating the recyclables and dropping the non-recyclable waste at feeder points. From there, the waste is collected by Ghanta trucks. Altogether, they collect more than 600 tonnes of solid waste per day; in addition, about 10 tonnes is composted and 150 tonnes is recycled by them in spaces provided by the housing societies themselves.  The PMC has agreed to pay Rs 8.6 crore for the administrative and management cost of operations if the collection coverage is 100%, under a five-year MoU. So far, 35% of the households have door-to-door coverage, and the PMC has paid Rs 3 crore towards administration costs and Rs 70 lakh for uniforms, gloves, badges,

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wheelbarrows, buckets and sorting sheds, to improve the working conditions of the rag-pickers. On the other hand, the PMC saves on handling cost (estimated at R12 crore per annum) and the cost of transportation of the waste to the landfill.  Another very important initiative of the PMC is the Zero Garbage project in Katraj, the largest ward in Pune. Launched in February 2011, this was a collective effort of Janwani, an NGO, Cummins India, and SWaCH, who came together to provide the model, the financing and manpower. The result is that only two tonnes of waste is sent per day to the landfill site, compared with 10 tonnes per day earlier. The PMC is determined to scale up this initiative.  A pioneering initiative of the PMC has been to set up 14 biomethanation-cum- power generation (BCPG) plants, mostly of 5 tpd capacity. The technologies were selected on the basis of competitive bidding and O&M contracts for five years were granted to the different parties which brought in the technology. Transporting wet waste to them is the responsibility of the PMC. These plants treat organic waste in a decentralised and environment-friendly manner. Given the collection efficiency of 80-90%, of which 45% is segregated waste, the PMC has allotted separate vehicles for the collection of wet waste, which comes to about 300-350 tonnes per day. For each BCPG plant, the PMC provides 600 sq metres of land, 5,000 litres of water and electricity connection at site (both water and electricity free of cost).  The waste is treated in two-stage biomethanation process by using closed vessels where, in the absence of oxygen, micro-organisms break down the organic matter into a stable residue, and generate a methane-rich biogas in the process. This gas can then be used as a source of renewable energy to produce electricity (net surplus after own requirement) of 400 kWh per day, which is being used for street lights in the surrounding area. The solid residue is used as manure, and the aqueous liquor is a nutrient-rich fertiliser which can be used to recycle nutrients back to agricultural land.  As Mahesh Pathak, municipal commissioner of Pune, put it, ―Besides the income of 1 crore resulting from savings in electricity and from the sale of manure from the 11 plants, the saving on the cost of transportation and dumping is 80 lakh.

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The environmental saving because of the reduced transportation of the waste, is an added bonus.‖  From June 1, 2010, the PMC has stopped open dumping, and the total waste generated is processed scientifically.  At the high end of the technology spectrum is the ―non-incineration based thermal waste to energy‖ plant set up in a PPP model in the Ramtekdi Industrial Area. The investment of R140 crore was made by the private company, Rochem Separation Systems India Pvt Ltd, based on the patented Concord Blue gasification technology on the 2.5 acre land provided by the PMC on a lease- rental basis. This state-of-the-art technology, for which the patent is held by Prayas Goel, Managing Director of Concord Blue, processes unsegregated waste to produce energy, fulfilling the requirements of the EPA and European standards with regard to emissions. The syngas (synthesised gas) is produced from unsegregated waste, which is a combination of biodegradable and non- biodegradable components by a thermal process of heating in complete absence of oxygen followed by reformation of the produced gas, which leads to a clean hydrogen rich gas that can be utilised for power generation (currently operational in the said facility). Unlike biogas which is produced from a biological activity of bacteria breaking down only the biodegradable component of the waste, syngas is produced from a thermal process and hence is a solution for the complete spectrum of solid waste sans inerts. Also, syngas is rich in hydrogen, making it one of the cleanest fuels, unlike biogas which constitutes about 50% methane.  With the increment in the quantum of plastics in our lifestyle, we need an environmentally friendly solution for its disposal. Owing to its non- biodegradable nature, plastics cannot be landfilled. Incinerating plastics without expensive control equipment gives rise to dioxins and furans from the PVC component of plastics which are carcinogenic in nature and hence extremely harmful to all living beings. The Concord Blue technology, owing to its non- incineration platform, converts solid waste into gas without production of dioxin and furans over the permissible limit.

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 The PMC is committed to transporting 700 tonnes of unsegregated waste for 30 years, and the company has to process the waste on the same day. The PMC has to pay a processing fee of R300 per tonne of waste, and the company is free to sell the power to appropriate third-party buyers. The carbon credits when realised will be shared equally by the two.  With 28 surrounding villages added to its jurisdiction only last week, Pune‘s population has increased from 39 lakh to 50 lakh and the area under the jurisdiction of the PMC has expanded from 244 sq km to 430 sq km. The challenge of solid waste management and disposal is that much greater. The vision shown by the PMC in garnering the support of important stakeholders from among city residents is the key to preparing for the future.

Pune‘s range of solutions for managing waste range from the most traditional to the most modern and scientific, and are already resulting in saving money for the municipality—and that‘s without even accounting for the carbon credits

(SOURCE: High-Powered Expert Committee on Urban Infrastructure Services,Isher Judge Ahluwalia,Oct 31, 2012)

GRAM PANCHAYAT

Solid and Liquid Resource (Waste) Management

Sikkim has become the first state to achieve 100 per cent rural sanitation coverage, becoming the first ‗nirmal rajya‘ in the country. The challenge ahead is that of the sustainability of the campaign, with prime focus on solid and liquid waste management (SLWM) in the villages. The Rural Management and Development Department adopted the ‗zero waste management‘ concept developed by Exnora Green Cross, Vellore, with a pilot project in Yangang Rangang gram panchayat unit, GPU, South Sikkim. A detailed survey was first made of the village to study the existing practice of waste disposal, and other details. A suitable spot for a shed, for collection of waste using tricycles, was also identified.

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Sixty young people and self-help groups from the village and surrounding areas were trained for one week, after which 19 volunteers were selected as master trainers of the SLRM project. An eco-friendly, cost-effective SLRM compost shed was constructed as a rigorous information and education campaigns – awareness campaigns in schools, market places and residential areas – were carried out simultaneously by volunteers in the village. Calendars containing information on organic and inorganic waste, and general instructions on waste disposal, were distributed at all these places. Residents and shop-owners were distributed at all these places. Residents and shop-owners were given two buckets (green for biodegradable and red for non-biodegradable waste) and asked to dump all old and mixed waste in the truck as per the existing practice. They were then asked to follow segregation method by dumping their household waste in the respective red and green bins from that moment onwards. A tricycle has been engaged for the door-to- door collection of waste. In fact, this tricycle is custom-made and fabricated according to the requirements of the hilly terrain. It has two compartments, red and green, for the collection of inorganic and organic waste, respectively. Currently, there are six workers in the project, including a chief coordinator and one night chowkidar (guard). Collection is done twice daily: every morning from 6 am to 8 am and from 4 pm to 6 pm in the evening.

The organic and inorganic waste collected is then transported to the shed where it is goes through a secondary segregation process. All the cattle eatables are segregated, washed and given to the cattle; the rest of the cattle non-eatable organic waste is soaked in cow dung-mixed water, filtered and used for the compost beds. Inorganic resources are similarly segregated category-wise. For instance, paper, tin, bottles, plastics, etc, are packed, stored and sold to a scrap dealer in East Sikkim. The compost beds are currently getting ready for harvest. As much as this project has encouraged everyone, the challenge of difficult terrain remains. Due to the unavoidable slopes, the tricycle needs constant maintenance and repair. The lack of a competitive market for the non-recyclable waste is another challenge.

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(SOURCE:From Dreams to Reality Compendium of Best Practices in Rural Sanitation in India, Water and Sanitation Program,MoRD,GoI,2010)

Community Surveillance of Water Sources and Sanitation Practices Sunderkhal gram panchayat (GP) in Uttarakhand is an excellent example of community ownership in water quality monitoring and surveillance, as also sanitation behaviour change. The following practices in Sunderkhal deserve mention:  All the 21 water sources in the GP are tested by the community for bacteriological contamination using H2S vials three times in a year and necessary remedial measures are undertaken as per requirement using bleaching powder/chlorine tablets, etc.  The community also fills sanitary survey formats once a year to assess the risk associated with their water sources and the related reasons. Based on the findings of the survey, protection measures are undertaken by the community members themselves. These include repair, white wash, cleaning or protection of various structures of water sources. The community contributes Rs 10/month/household for the purpose. At times, community members also contribute voluntary labour.  To ensure protection from illnesses, there is a practice of consuming boiled and filtered water in almost all households. Domestic water filters exist in 60 percent households.  Ladles are used for taking out water from pitchers.  Proper drainage has been constructed for disposing wastewater, particularly from water sources and houses.  Nobody defecates in the open in Sunderkhal. The GP imposes a Rs 50 fine on defaulters.  All the schools1, anganwadi centre and other community buildings (Panchayat Bhawan, sub-centre of health department) have toilets that are properly 192

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maintained. To solve the problem of water shortage (for use in toilets) in the inter college, a rule has been formed, with the consent of students/parents, that every student would bring half-a-litre extra water which would be poured in a big container put near the toilets in the school.  Handwashing with soap/ash and water after defecation and before meals is being practiced by students and community members.  Four garbage bins have been installed by the GP at main locations.  There are about 75 compost or vermi-compost pits in the village for safe disposal of cow-dung and other biodegradable waste. Non-biodegradable waste is either sold to rag pickers or buried in pits.  A user water supply and sanitation committee (UWSSC), which is responsible for overseeing water and sanitation in the village, has been formed in the village.

This was initiated on January 24, 2009. A training workshop was organised in Dhari block of district Nainital by District Project Management Unit, Bhimtal, and conducted by Knowledge Links as part of IDM 2007 project number 245, ‗Institutionalising community-led action for sanitary surveillance (CLASS) through development and launch of a reward scheme‘,with the support of the World Bank. Key Resource Centre (KRC), Centre for Good Governance (CGG),Uttarakhand Academy of Administration (UKAA),Nainital, and the Project Management Unit (PMU), Swajal Project, Uttarakhand, Dehradun, provided their consent for this IDM pilot project.The gram pradhan of Sunderkhal, Ms Leela Bisht, wasone of the participants in this workshop. Impressed by the CLASS approach, she requested resource persons from Knowledge Links to trigger CLASS in her own village during the course of training. Thus, triggering was done and post-triggering follow-up support was also provided by Knowledge Links professionals and a few DPMU staff. During the triggering exercise, the community members present were engaged in self-analysis of water and sanitation profile of the village using a number ofparticipatory exercises, such as disease transmission routes, calculation of medical expenses, calculation of amount of faeces left in the open, demonstration of sanitary

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Need Assessment of U LBs & Panchayati Raj Institutions survey of nala and dhara (traditional water sources), visits to defecation areas, water testing through H2S vials, etc. The exercise revealed that 50 per cent households were suffering from jaundice; one person had died of jaundice just a month ago. Most of the households were practicing open defecation; one school toilet was choked and defunct. Many people in the community had the perception that jaundice is occurring due to bad air. For the first time, they now realised the connection between their consumption of bad water and occurrence of jaundice. They also realised that open defecation was polluting the water sources. The risks associated with their water sources and related reasons that emerged during sanitary survey demonstrations gave them ideas as to what they could possibly do on their own to improve the situation. They immediately agreed to undertake a sanitary survey of all the water sources in the GP, cleaning of all the nalas, repair of tank in dhara and disinfection of all the water sources using bleaching powder. The natural leaders visited the schools and mobilized students and teachers. Students organised processions in the village, shouting slogans to end open defecation.Women were mobilised to form teams and convince community members in their neighbourhood regarding cleaning and protecting sources, water testing and ending open defecation. Similarly, men in teams mobilized the males. Community contribution was started and deposited in the UWSSC account. For the first time mengot associated with protection of water sources; earlier only women were responsible for this.Drainage was constructed to safely dispose wastewater from one naula. A water tank was repaired with community contribution and GP fund. A system of weekly cleaning of water sources was introduced. Self-help groups of women and Yuvak Mangal Dal contributed to this process by doing vigilance in the morning to check open defecation. The committee decided to purchase H2S vials, bleaching powder, etc,from the contribution. Seven ward members also took the responsibility of monitoring. All the water sources were tested initially in January and February 2009, then in July 2009 and then in October 2009. Now, these tests are done during the monsoon, after monsoon and in the winters. Thus the village became open defecation free (ODF) in 13 days, and all the water sources had been tested and sanitary surveys undertaken. The sanitary surveys revealed that most of the water

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Need Assessment of U LBs & Panchayati Raj Institutions sources were a ‗high risk‘ category. Therefore, remedial and protection measures were undertaken. Within six months, the community members upgraded their toilets. All sections of the community have participated including men, women and children. Community institutions such as Yuvak Mangal Dal, GP, women self-help groups, anganwadi and schools contributed in the process. School teachers, Accredited Social Health Activist (ASHA) and anganwadi workers mobilised the people in their work places. The initial indications are encouraging. The practice has been operational for more than a year-and-a-half. Thispractice is sustainable – women and village committees ensures water quality monitoring and surveillance and cleanliness in the village. Many persons who earlier built temporary pit toilets have now proper pucca (permanent) toilets. As mentioned above, there is a regular community contribution in cash; labour is also being contributed by community members to ensure proper upkeep of water sources and water testing.While before the initiation of the project in Sunderkhal, 50 per cent people were suffering from jaundice and one person had died of the disease, there are hardly any occurrences of jaundice in the GP now. In 2010, the GP Sunderkhal bagged the best GP reward (Rs 70,000) under the IDM project. There is another factor which is contributing to the sustainability of community processes and outcomes,which is that, often, group participants of various training programmes that are organised in the KRC, CGG and UKAA visit to see the best practice. This reinforces community participation and boosts the morale of the community.This practice of triggering CLASS has been replicated in many villages across Dhari block of district Nainital in Uttarakhand. The approach has been successfully pilot tested in this block. It has the potential of replication at scale under the GoI‘s National Rural Water QualityMonitoring and Surveillance Programme, provided the implementing agency at the state and district level decide to use the CLASS approach to achievethe objectives of the national programme, and also strategically use the information, education and communication as well as human resource development funds available under the national programmes of water quality and total sanitation. (SOURCE: From Dreams to Reality,Compendium of Best Practices in Rural Sanitation in India, Water and Sanitation Program,MoRD,GoI,2010)

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Cleanliness - Gram Panchayat Piplantri, Rajasthan

The work was going on under the complete cleanliness program of the village. Until year 2006-07 none of the gram panchayats of Rajasthan received the Nirmal Gram Award. With the inspiration of main working officer,sarpanch Shri Shyam Sunder Paliwal took a resolution to make the gram panchayat into Nirmal Gram Panchayat in may 2006.

The Total population of Piplantri Panchayat is 5138 and 7 Rajasv gram are Piplantri, Morwad, Gugleta, Umthi, Aarna and Bhudan. On taking the post of sarpanch by Shri Shyam Sunder Paliwal on 4 feb 2005, the first work done was sector reform and Swajaldhara Yojna along with acceptance of 11 drinking water plan due to which the water scarcity was removed forever.

Generally gram panchayat Piplantri is well known for its marble mining industry. In this gram panchayat, the famous R.K.Marbles is located whose name is recorded in Guinness Book of World Record for maximum production of marble. But the environment got badly affected gradually. Without considering the future, previous gram panchayats gave 50-60 N.O.C‘s due to which there were many mines in govt.land.

Gram panchayat ran the program, evening to night, Panchayat at your door and got in touch with the problems of the villagers and tried to solve it quickly and rest was on thought. After drinking water the first problem which they faced were of lights and cleanliness. For cleaning the village, start was made by the Sarpanch, Panchayat members and other officers along with other villagers. For solving the

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Need Assessment of U LBs & Panchayati Raj Institutions light problem at night, the suggestion was made that the lights which uses least voltage is to be used on the streets and roads on expense of gram panchayat & whose electricity bill will be beared by the person infront of whose house the lights will be placed and this experiment was remarkably successful. Today aprox.350 lights are working in the village with the contribution of the villagers due to which whole gram panchayat is lighted.

With the mutual efforts of the villagers, the main roads of the village were broadened. Along with cement and concrete roads, pakki drains were formed.

For fulfilling the requirement for the dream of Nirmal Gram, 26 toilets were constructed for the students for 13 schools. For the three anganwadi centres special sanitation facility were constructed. From the total of 799 families the selected 215 families were provided with Rs.1200 monthly under the plan along with other support like material, WC etc to the experienced workers.

The 11 ward panch and all 103 workers created sound contact with each other on sharing their houses which resulted in success of the program.

Cleaning of houses, self cleanliness, proper storage of drinking water, use of ladles, washing hands before taking meals and after sanitation, child care were given the importance. The responsibility of vaccination was taken by the workers of A.N.M. anganwadi which brought surprising changes in the village. On making all such efforts, the panchayat applied for Nirmal Gram Award on 15 august 2006 on which the inspection committee of central govt. made a survey and then high inspection committee inspected and made a contact with the villagers.

In the end, on 4 May 2007 h‘ble president A.P.J Kalam awarded Gram Piplantri with president‘s award.

(Source : piplantri.com)

Fly changes life of people at Bachoda Village of District Indore in Madhya Pradesh:

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Village Bachoda where agriculture is the only source of economy is in limelight inentire Madhya Pradesh for receiving Nirmal Gram Pursakar for TSC. Not far behindjust one year before village Bachoda was like any other village in rural India, wheredue to open defecation in entire village one would find dirt everywhere. Mr. Manish Bharadwaj took the initiative to solve the problem of drinking water and sanitation. He faced lot of resistance by the community members to construct toilets. Information was disseminated amongst community members through medium of meetings; pamphlets were also distributed to create awareness. But it was a long way to to convince the entire village for the same. But suddenly transformation could be seen, and that was because of a small example, which was sited to community members during meetings. The examples of a small fly how it goes and sits on excreta, and again it fly and come and sitson what we eat. People were asked to think as to what do they consume now whilethey eat, the food??? The answer was simple one also consumes excreta along withthe food which is transferred by the fly, when she sit on food items. The examplewas an eye opener people realized and agreed to construct toilets so that system ofopen defecation can be totally abolished in Bachoda Village. Few individuals were given the responsibility to become policeman for the cause ofcleanliness; there duty was to not allow a single individual to go for lavatory in opendefecation. In order to achieve cent percent sanitation target, individuals not constructing toilets were penalized, for some time even they were not given grains from the ration shop and pensions of few pensioners was also stopped for thisreason. After construction of toilets was over, the next target was health and hygiene ofcommunity members. The woman were explained the importance of hygiene.Individuals, who use to keep them self-dirty, were punished by giving them bath in cold water. In order to keep village clean, the roads were broaden, dustbins were

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Need Assessment of U LBs & Panchayati Raj Institutions kept on roadside. (Source: www.ddws.gov.in)

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Summary & Suggestions 

Under the 73rd and 74th Amendments of the Constitution the State Finance Commission has been formed for deciding norms for allocating grants to the PRIs and ULBs. Most of the earlier grants had been based on population and had not accounted for the basic needs of villages and the smallest unit of ULBs in the absence of primary information regarding needs and gaps.

The present Fourth State Finance Commission has taken an innovative approach by initiating an in-depth study into the present needs, funds available and the gaps that are necessary to be filled during the next five years. The basic premise is to evolve formulae for an equitable allocation of the grants to be distributed to the local bodies. The present Study was entrusted to the Shiv Charan Mathur Social Policy Research Institute to quantify physical and financial norms, for allocation of funds especially in the crucial areas of health, sanitation, sewerage, cleanliness of inner roads in the villages and small urban local bodies, street lighting, etc. by the State Finance Commission.

Panchyati Raj Institutions

It was a matter of worry to find that the expenditure incurred by the PRIs was far less than the funds provided. It was also noticed that the panchayats have very little fiscal autonomy. The locally raised revenues are, therefore, very negligible. The general environment of not levying any taxes at the State level for fear of losing elections has pervaded to the 3rd tier which has harmed the third tier the most. The result is that not only development but establishment requirements are being met, that also only partly, by the State government. This has led to wide gaps in funds

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This implies that the State Government has to provide funds to meet the larger share of expenditure to these bodies from their own kitty or through the State Finance Commission grants. This cuts into their own needs for larger infrastructural and core sector requirements. It is suggested that the local governments should not only have the power to raise revenues but their own sources of revenues should constitute a very significant share in the total revenues, as is done in Kerala.

Panchayati Raj Institutions should be strengthened by providing to them ownership of all rural roads, including their construction and maintenance. They may also be given some powers to act as a watch dog to keep an eye on the quality and timely delivery of road works. In several developing countries, the participation of beneficiary communities has been tried out successfully. In China for example, the Government provides them material like bitumen, cement and steel and the local villagers construct the roads. In India they can do it under MNREGA, where the material may be provided separately and not as a material component under MNREGA. Through road cooperatives, they can also take up maintenance of rural roads with assistance from the Government. It is suggested that the Panchayati Raj Institutions should also be provided funds to directly control road maintenance for which they may like to have a convergence with MNREGA.

According to the Rule 33 of the PR Act the Core functions of a panchayat are sanitation, street lighting, safe drinking water, drainage, public distribution system, maintenance of village roads and birth and death registration. It was found that the focus at the gram panchayat level was on water and rural housing and most of the funds received were spent on these areas. This led the other functions like Solid Waste Management, Rural Sanitation, Drainage, and Public Facilities out of focus.

Solid Waste Management and Drainage facilities were available at some places but people expressed their dissatisfaction about them. There was hardly any facility of street lighting in the GPs and temporary arrangements were being done by

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Need Assessment of U LBs & Panchayati Raj Institutions the panchayat during festivals. The people expressed their satisfaction on the condition of the roads in the rural areas except the desert and canal area. The incidences of encroachment on the Cremation and Burial Grounds were found to be all pervasive.

The condition of the public parks in Kota was appreciable while the others lacked maintenance and were in a bad shape. The main reason stated was a lack of budgetary provision for their upkeep. The basic facilities like sanitation, electricity, drinking water and toilets are lacking in most of the community halls and the maintenance is also unsatisfactory. The availability of public toilets and their maintenance and cleanliness was also missing at most of the GPs.

The availability of drinking water in the nearest habitation was in mere 64.10 percent of the sampled panchayats. The water is mostly provided to the main village only which makes local arrangements for supplying to the smaller revenue villages. This leaves the onus on either the gram panchayat or the individual to make its own arrangements (tankers, rain water harvesting). The condition of drinking water availability at public places (markets, schools, bus stands, hospitals, etc) is even more unsatisfactory. Drinking water is available at only 57.14 percent of public places.

It is really disheartening to see that most of the members of the GP were not aware about the various development committees formed at the GP level. All the GPs reported to be forming their annual plan but it was found that it was just a routine exercise which did not reflect the local needs or the community voices. All the stakeholders were very positive about the reward system as they felt it promoted the zeal for development and motivated the representatives for performance.

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It may be pointed out that in rural areas the topmost priority may be assigned to drinking water followed by Solid Waste Management and Drainage along the inner village roads. Solar Lighting may help in utilizing the enormous solar power endowed by the nature on the state. In the urban areas the focus may be on solid waste management and sanitation along with street lights.

Table 8.1 – Cost of Core Functions for PRIs (in `)

SN Core Area Total Per Per Per Capita Cost Capita Capita Operational Cost Capital Cost Cost

Urban Local Bodies

In the Urban Local Bodies, it was observed that their expenditure responsibilities are increasing day by day, but their own revenue efforts for revenue generation have more or less remained stagnant. The 74th amendment widened the functional domain of ULBs by including additional functions such as Town Planning, planning for social and economic justice, environment protection and

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Need Assessment of U LBs & Panchayati Raj Institutions reducing urban poverty etc. But as far as the financial requirements of ULBs are concerned, it is left to State Finance Commission,which is asked to recommend more fiscal devolution to complement the State resources. The additional functions given to local bodies are not accompanied with additional devolution. This further acts as a constraint on ULB‘s and handicaps them in ensuring quality civic amenities to the citizens. Rapid growth of cities and towns is not matched by a corresponding increase in the revenue of ULBs.

The revenue augmentation efforts by ULBs do not match with their ever increasing resource requirement to render satisfactory service to the citizens. The reason for this mismatch between revenue generation and expenditure are:-

 The Raj Municipality Act under Section 102 provides for levy of six obligatory taxes, of which the tax on land and building situated in Municipal area by unit area base, tax on profession, trades and callings, toll on bridges and ferries, tax on advertisement and hoarding, taxes on roads and bridges owned by or built from municipal funds are important.On these obligatory taxes on land and building House tax or Property tax is a very important.

 Even those taxes which are mentioned in the Municipal Act are not being levied.

 No action is taken against officials, if the tax targets are not achieved. Surprisingly, not paying tax on time is being rewarded by discounts for late payment.

 The municipal budgets are not prepared as per the instructions while the expenditure estimates of the municipalities are unrealistic. The achievement of revenue targets estimated is hardly 30% thereby leaving huge gaps in revenue mobilization. The liabilities pending at the end of the close of a financial year are not accounted for or if accounted for their level is kept quite low so as hide the realistic picture. There is an urgent need to introduce a systematic computerized accounting system

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Thus, there is a glaring mismatch between the expenditure responsibilities of urban local bodies and their revenue augmentation efforts. Further, the position of the smaller municipalities is much worse, and at times, they find it difficult to even meet their establishment costs. The ULBs with inadequate taxation efforts, coupled with inefficient and corrupt financial and administrative management render the municipal services far from satisfactory level.The citizen is the ultimate loser.

In the Urban Local Bodies it is found that the focus of the Municipal Boards is on building and conversion activities.Construction of inner roads, sanitation, solid waste management and death-birth registration activities are never considered important.

It was found that the public toilets in the urban areas were insufficient and there was a requirement for more public toilets at public areas like railway stations, bus stands, hospitals, main markets etc. The existing public toilets were also in a miserable condition due to lack of maintenance & basic requirements like water supply.

Cremation & burial grounds were found in all the ULBs‘ but they seemed to be lacking the basic requirements. Boundaries which are necessary to stop encroachment were missing. It was suggested that boundaries & tin shade, Water & lighting facility should be available at the cremation and burial grounds. The parks available were not properly maintained & required water for plants as well as staff which was not there. 20% of the parks are maintained on a contractual basis but the contractor doesn‘t take the pain to look after them even occasionally. In Udaipur, parks were found in very good condition as they have been adopted by various public committees. This needs to be replicated.Providing funds from the SFC will come in the way of efforts at involving private initiatives.

The equipment for firefighting is not adequately available anywhere. In fact contract labour is mostly used and most of contract laborers are untrained. There is need to augment the capacity of equipment available for fire fighting. This should be a very important core function at present time. Not only equipment but funds

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Need Assessment of U LBs & Panchayati Raj Institutions should be provided for tubewells or water storage tanks in sensitive location to be identified by ULBs.

Development committees were not constituted in many ULBs because of local politics. Even where the committees were found, these were not achieved and were just on paper.

In the urban areas, infrastructure for water supply, sanitation, sewerage and solid waste management continues to be woefully inadequate, badly supervised and of poor quality. The deprived sector is the urban poor, who spent much more to access drinking water and sanitation facilities than the middle and high income groups. The level of de-centralization, as envisaged in the 74th Constitutional Amendment has not reached urban local bodies. There is hardly any desire in the ULBs to design or modify urban poverty alleviation programmes or levying taxes. Looking to the fast growing minimum needs of the urban areas in the core sectors districts where the urban population growth rate is higher than the average may need special provision from the State Finance Commission.

The State Finance Commission may also like to look at the norms and guidelines for micro planning and inherent systematic weaknesses in the 3rdtier of governance to absorb funds allocated to it. In the rural areas, unfortunately, true spirit of decentralized planning continues to be more of a theoretical idea with multiple plans being formulated. While the line departments and District Panchayati Raj System should play a significant role, due to lack of support from the state government it does not reflect local demands emerging from the block and gram panchayat level. For this purpose, it is very important that the State Finance Commission should consider a comprehensive and regular capacity building programme as one of the core functions and allocates suitable funds for it.

More and more responsibilities are being transferred to the local governments which require capacity building of the staff to become the fulcrum of development. The capacity building exercises may be taking place to some level of success in the

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PRIs but for the ULBs, no such efforts were seen. Good governance is one of the basic needs of the people of the state.

Table 8.2 - Per Capita Cost for Core Functions for ULBs

(in `) Municipal Municipal Municipal Municipal Municipal Corporation Council Board II Board III Board IV

Solid Waste Management (values in Rupees)

As Per Standard Norms 356.91 346.37 338.85 317.81 315 Capital - - - - - operational 356.91 346.37 338.85 317.81 315

Street Light As Per Standard Norms 225.08 215.76 218.79 209.10 211.03 Capital 148.27 148.31 150.39 150.27 151.68 operational 76.81 67.45 68.40 58.83 59.35

Public Toilet

As Per Standard Norms 1.63 7.60 7.54 6.77 17.40 Capital - - - - - operational 1.63 7.60 7.54 6.77 17.40

Public Health

As Per Standard Norms 6.92 7.10 8.31 5.25 5.48 Capital - - - - - operational 6.92 7.10 8.31 5.25 5.48

Public Park

As Per Standard Norms 45.18 58.34 57.54 13.54 14.81 Capital 12.67 16.57 15.95 3.73 3.20 operational 32.51 41.77 41.59 9.81 11.61

Community Halls

As Per Standard Norms 1.33 11.31 10.41 14.53 10.67 Capital - - - - - operational 1.33 11.31 10.41 14.53 10.67

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Vertical and Horizontal Distribution of Funds

 The Institute in this report has calculated the norms for the core functions to be performed by the PRIs and ULBs. The total per capita cost for the core functions per Gram Panchayat comes to Rs 289.10 while for Urban Bodies it is Rs 613.27. For ascertaining the total cost required the per capita cost was multiplied by the total urban and rural population according to the Census 2011. The ratio of the total cost of rural vis-à-vis urban areas for the identified core functions roughly comes to 60:40. The prevalent practice of the State Finance Commissions has been to devolve the funds according to the rural- urban proportion. The same formula has also been adopted in the second interim report submitted by the Fourth State Finance Commission. Keeping in view the needs of the PRIs and ULBs and their present financial situation as well as the future challenges, it suggested that the ratio of the urban maybe increased. Thus, the horizontal distribution of devolutions should be 60:40.

 Within the ULBs 80 percent of the funds may be devolved among all the ULBs in proportion to their population and additional 20 percent among all the municipalities in proportion to their population on the same pattern as proposed in the interim report.

 As far as Vertical distribution of State Finance Commission grants to PRIs is concerned the present share of 85:12:3 and may be changed to 85:13:2 in favour of the Panchayat Samitis, which are the fulcrum of panchayati raj system.

 For the distribution of funds to the PRIs the following norms based on the indicators are suggested:

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Table 8.2 – Indicators for Distribution of Grants to PRIs

Area Indicator Source Weightage Population Census of India 50 Basic Fact of the Type of Geographical Terrain Census of India 10 District including and distance from district Natural resources headquarters % Houses Electrified or Census of India 10 Infrastructure % Houses with Solar energy or and services for the % Houses with Water public (Any Two) Availability or % Houses with Drainage Availability Infant Mortality Rate NFHS/SRS 05 Data on important indicators and assessment of Child Sex ratio (0-6 years) Census of India 05 development Gender Gap in Enrolment DISE 05

Contribution to the SDP/Tax Finance 05 Revenue Department Financial Own Revenue Finance 05 Information Department Number of BPL Families BPL Survey 05

Total 100

Other Suggestions

 The distribution between the State,panchayats and municipalities of the net proceeds of the taxes, duties, tolls and fees leviable by the State, be based on some yardsticks which would lead to more inclusive growth in the entire State, especially in the field of quality of life. There can be different yardsticks for categorization of Panchayati Raj Institutions and Municipalities. One could be on the basis of geographical zone which Rajasthan has always followed: Desert districts, tribal districts and others. The second could be the human development index as reflected in the local level indicators like

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childsex ratio (0-6 years), number of Institutional deliveries, number of drop- out students, number of SHGs, etc. A third can be the radial distance of a panchayat from a town. A fourth could be the financial performance of a Panchayat or a ULB. There are Panchayat and Municipalities which just cannot generate resources howsoever they may try. But human beings live there also and they also need a basic infrastructure to live like others. Another indicator may be Innovation introduced for socio-economic development. Such bodies do require extra devolution.

 The State Finance Commission may like to link funds with the condition that the plans are coming from the block or Gram Panchayat level only. It is advised that a condition which the SFC may like to impose is that the funds should be released only if there is sufficient staff and infrastructure available with the gram panchayat.

 It is of utmost importance that the local bodies at the third tier start making efforts of generating resources. To encourage this, it is necessary that the distributing of funds by the State Finance Commission should also be linked with the resource generating efforts made by the recipients.

 Inequalities were seen in financial and development status of the local bodies. It is proposed that the State Finance Commission should make an attempt to bring about some semblance of inclusive growth of different parts of the State, otherwise some rich Urban Local Bodies and PRIs will become richer and the poor will become poorer.

 It is advised that the State Finance Commission may provide sufficient funds for good governance especially in the urban areas. There is a need for a Rajasthan Institute for Urban Development (RIUA). It has been ascertained that that this would require initially a capital expenditure of about 250 crores and would gradually become a self sustaining model. It would be an Institute for research, training and information dissemination in urban development and management. The Institute in addition to evaluating the social,

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administrative, financial and other aspects of the implementation of urban development plans and programmes may be the centre for capacity building for the elected representatives and municipality staff.

 The State Finance Commission may also like to review the recruitment and deployment policy for the Municipalities. Recently the State Government has created a dedicated cadre of state administrative officers for rural areas. The Rajasthan Municipalities Act 2011 entrusts the responsibility of recruitment and selection of the municipal officers to the Department of Local Bodies (DLB) which raises a serious question on the quality of the officers recruited. It needs to be entrusted to RPSC. Urban Governance is gradually gaining immense importance and it would be advisable if a separate cadre of the Rajasthan Urban Development Services is created.

 It is suggested that the State Finance Commission should stress the idea of Solar Energy for lighting and water pumps. The first phase may include areas where conventional sources are not available. It is also suggested that there should be a gradual transition from conventional to solar power for bore and surface water pumping also. This renewable source is now being widely used in the developing countries. Technical Solar Power Pump System consists of a solar panel array that powers an electric motor, which in turn powers a bore or surface pump. Photo voltaic power pumping station is a cost effective alternative for remote area water supply.

 There is need to highlight the need for toilet facilities as a priority area for rural sanitation.

 There is a crucial need to provide clean and safe drinking water to the slipped-back habitations.

 The following could be areas where the Panchayati Raj could levy taxes :-

(a) Tax should be levied on the purchase of animals, which are sold in the Panchayat area.

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(b) Vehicle tax, as on tractors. (c) Pilgrim tax, wherever applicable. (d) There is tax on a limited number of commercial crops- chillies, cotton, mustered, sugarcane, zeera and groundnut. However, it should be extended to tobacco, poppy, fruits, orchards, betel, etc. (e) Tax should be imposed on contractors working in different rural development schemes. If already taxed, a surcharge could be levied. (f) Surcharge should be levied on petrol and diesel and related products like oil and automobile repair shops. (g) Hotels and Dhabas. (h) Country liquor (i) Ensuring that the surcharge on stamp duty on property is passed on to the concerned Panchayats, which is not happening at present. (j) Surcharge on Krishi Upaj Mandi fee. (k) Major and minor minerals in scheduled notified areas. Any approval by the Government should need the approval of the Gram Sabha. An approval fee as well as a cess on production should be levied. Any mining activity directly impacts on the environment of the Panchayat adversely affecting the health of the people in the area. They must be compensated. (l) Cess on fishing contract which is under jurisdiction of a Panchayat. (m) Minor forest produce (n) Lighting the streets (o) Fairs (p) Sanitation (q) Slaughter houses (r) Shops (s) A cess on the irrigation charges, collected from tanks/ponds of zero to 80 hectares to Panchayats, from 80 to 300 hectares to Panchayat Samities.

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(t) The octroi compensation is available only to the urban local bodies whereas these products are used in the rural areas also. The Government may reconsider the issue.  In order to enhance the revenue augmentation in the context of Urban Local Bodies in Rajasthan :-

(a) A simplified method for Property tax needs to be introduced which may encourage self –assessment of Land & Building Tax. The system may learn from the success of the Surat municipality model.

(b) Vacant land tax should be charged.

(d) Transfer of additional functions to ULBs should be accompanied with corresponding financial devolution.

(e) Parking fee for motor vehicles should be mandatory.

(f) There should be periodic and regular revision of fees, fines and user charges (if levied).

(g) ThePer capita grant to local bodies, if abolished must be restored immediately.

(h) The devolution from the State should be so designed as to encourage own revenue augmentation by the Local bodies and must not be used to defray their establishment expenditure.

(i) The State Finance Commission recommendations should promote the ULB‘s to be more capable of generating their own resources and less dependent on the State Government. State Government‘s devolution of funds should be in accordance and should act as an incentive for generation of own resources by the ULBs. More autonomy to local governments would enable them to generate additional resources according to their expenditure responsibility.

 Presently, the government is collecting cess for street lighting alongwith the electricity bill in the urban areas. It is found that the actual expenditure is far less than the amount being collected. The SFC should suggest that this amount should be dedicatedly used for promoting the Urban Energy Saving Programme.

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 The part of the share of the Surcharge on the Stamp duty was scheduled to be transferred to the Local bodies but is not being done presently.

We would like to stress on some requests, even at the cost of repetition. They are –

(1) Specific needs of rural and urban women should be met otherwise the purpose of their reservation is lost. (2) The growth rate of urban population should be a major criterion. The faster growing towns need special provision. (3) Greater stress should be put on those core functions which directly impact on human development indices. (4) The State should take the lead in suggesting areas which can be taxed by the rural and urban local bodies. It may be asked to suggest areas where indirect taxes can be imposed as they are easier to collect. (5) Governance at the third tier continues to be a sore factor in service delivery systems. The less said the better for urban governance which has reached its rock bottom. (6) The State is under constitutional obligation to link the grants to a certain level of satisfactory work done by the recipients. (7) Full stress needs to be laid on solar power not only for public lighting but also for drinking water from bore wells. The latter use is widely prevalent in many developing countries.

The funds from the State Finance Commission should not only fill the gaps in the required and available levels of funds for infrastructural development and meeting their core functions but also should work as a catalyst to improve their capacity and motivate them to generate their own resources to fulfill their unmet needs. If the Grant is sufficiently utilized it can bring about substantial mandatory returns as well as lead to bridge the various gaps is developing our infrastructure which can lead to a faster, wholesome and quicker development of these institutions and the State.

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