ABSTRACT
Decentralised participatory planning at Gram Panchayat level is the first step towards sustainable rural development. Any interventions in the direction of rural development must be based on felt local needs and inclusive. Ensuring effective participation in the planning process helps identify needs and make developmental programmes/ projects inclusive and responsive. Gram Sabha is the institution to promote public participation in rural local governance. Article 243G of the Indian Constitution mandates preparation of plans for economic development and social justice by Panchayats.
Fourteenth Finance Commission (FFC) has awarded a substantial grant of Rs.200292.20 crore exclusively for the Gram Panchayats to be devolved over a period of five years starting from FY 2015-16. The guidelines issued by Ministry of Finance for the release and utilisation of the local bodies grant stipulate that proper plans are to be prepared by the GramPanchayats. In this context, an action research project in five Gram Panchayats in Gharaunda Block in Karnal district of Haryana to facilitate people’s participation in the Gram Panchayat Development Planning and also in the meetings of Gram Sabha was undertaken in the year 2016-2017.
Action research included baseline survey, collaborating with administration and civil society, capacity building of electedrepresentatives and functionaries, Gram Sabha Mobilisation etc.Key words-PRIs,Rural Development,Inadequate devolution,Management, Utilization.Commission
Introduction:
Most democracies of the world today are facing a severe challenge of democratic deficit. Faith in representative democracy is continuously eroding. There is an increasing demand for participatory democracy. People want to participate in the decisions affecting their lives.Participation is also one of the most important components of good governance. Other components such as transparency, accountability, rule of law is also linked closely with the participation. If people participate in the public affairs, it is natural that they will be able have better access to information and will seek answers from public authorities for their actions and non-actions. Hence, participation has the potential to not only deepen democracy but to strengthen good governance.
It also inculcates citizenship among the people. They start realising their rights and duties as citizens. Democracy without participation is like a temple without prayers and mosque without azaan.Ancient India had various institutions encouraging citizen’sparticipation.In Vedic era (15thto 5thCentury BC), there were institutions for people’s participation in local governance. Reference of Ganas and Sangha inMahabharat(ancient Indian epic written between 8thand 4thCentury BC) confirms existence of village republics. During Mauryan Period (322 BC to 185 BC) villages were the smallest unit of administration. Village elders formed Gram Sabha which was headed by Gramik. In Chola Empire (300 BC-AD 1279), General Assembly was known as “ Ur’’ which looked after the affairs of villages and managed by an executive committee elected for three years.
During medieval India, local self-governance received a setback as authority got centralised in the hands of Ruling Kings. At the time of British Rule too Indian administration was highly centralised. Although there were local governments, but they were creation of central government on British and continental patterns and ignored indigenous institutions.Panchayats has been an integral part of Indian culture. For resolution of local disputes, panchayats have been sitting for ages. In the literature such as ‘PanchParmeshwar’ written by a very famous Hindi novelist MunshiPremchand, dispute resolution by Panchayats have have been depicted vividly.However post-independence, Panchayati Raj Institutions (PRIs) in general and Gram Sabha in particular, brought into the Indian Constitution through 73rdConstitutional Amendment Act (73rdCAA), have provided rural population potent platforms to participate inlocal governance. Subsequently, for Fifth Schedule areas (notified tribalareas in 10 States viz. Andhra Pradesh, Chhattisgarh, Gujarat, Himachal Pradesh,Jharkhand, Madhya Pradesh, Maharashtra, Odisha, Rajasthan, Telangana), the Provisions of Panchayats (Extension to the Scheduled Areas) Act, 1996 was enacted which empowers Gram Sabha to preserve traditional practices, manage natural resources and exercise control over developmental plans and functionaries.Panchayats are at district, intermediate (usuallyblock/Tehsil/ Taluka) and village level and Gram Sabha consists of all registered voters residing in the village.
Gram Panchayats or village level Panchayats (nomenclature of Panchayats varies across States)are the smallest unit of Government in rural area and the closest and most visible one. Gram Sabha is the only institution in Indian governance system where people can directly participate and not through their representatives. It is only institution of direct democracy in India.And approximately 68% ofpopulation in India still live in rural areas. Hence, if we have to ensure participation in governance in India, we mustpromote participation in Gram Sabha. Number of meetings, quorum requirementsand powers of Gram Sabha are prescribed by State PanchayatiRaj Acts and Rules. For example, in Haryana, three general meetings of Gram Sabha in a year has been prescribed. Dates of these general meetings are fixed by Block Development and Panchayat Officer (BDPO). In addition, any number of extra-ordinary meetings can be organised. Extra-ordinary meetings are convened by Sarpanch (Chairperson of Gram Panchayat). Gram Sabha in Haryana is empowered to, inter-alia, scrutinise income and expenditure of Gram Panchayat (GP), scrutiny of all works undertaken by GP and byline departments, site selection for works, and consideration of audit report and replies. In addition, several Central and State schemes also assign roles to Gram Sabha such as beneficiary selection, selection of frontline workers, monitoring and social audit.
Initial enthusiasm in rural population to participate in Gram Sabha, witnessed immediately after 73rdCAA came into force on 24thApril 1993, died down in most parts of the country due to non-implementation of resolutions passed in Gram Sabha, inadequate untied financial resources with Gram Panchayats and bureaucratic resistance. In some parts, gender inequality, caste hierarchy and elite capture also created hurdles for people’s participation in general and participation of women and marginalised sections. In Fifth Schedule areas, lack of awareness among people about powers and functions of Gram Sabha has also proved to be a dampener. However, in States like Kerala where a substantial financial resource (approx. 40% of State budget) have been devolved to Panchayats and Gram Panchayats are able to plan and implement projects addressing local needs, people continue to participate. In a few other States such as West Bengal, Sikkim and Maharashtra too Gram Sabha are functioning relatively better than other States.Government of India and various State Governments have been making efforts for regular conduct of the meetings of Gram Sabha and to enhance participation in these meetings.
Year 2009 was celebrated by Government of India as the Year of Gram Sabha. Central Government issued several advisories to strengthen the institution of Gram Sabha. Through schemes such as, Mahatma Gandhi Rural Employment Guarantee Act, Backward Region Grants Fund (BRGF), Rashtriya Gram Swaraj Yojana (RGSY), Panchayat MahilaEvamYuvaSashaktikaranAbhiyan (PMEYSA) and Rajiv Gandhi Panchayat SashaktikaranAbhiyan (RGPSA) also Government of India has promoted participation in rural local governance.
For utilisation of BRGF grants, it was mandatory to prepare bottom-up Comprehensive District Plans (CDP) starting from Gram Panchayats.Gram Sabha has also been assigned important role in planning and implementation of centrally sponsored schemes.For example, it is Gram Sabha which identifies and prioritises works to be taken up underMGNREGA and higher level authorities cannot unilaterally change the priorities assigned by the Gram Sabha. Social audit of MGNREGA is to be conducted by Gram Sabha twice in a year.Accredited Social Health Activist (ASHA),a village level health worker under NRHM is selected with approval of Gram Sabha.
National Social Assistant Programme provides for annual verification by Gram Sabha.In the year 2015, Fourteenth Finance Commission (set up under Art. 280 on Indian Constitution) recommended to grant Rs.200292 Cr. to Gram Panchayts in five years starting FY 2015-16. This grant is to be used for provision of basic services such as water supply, sanitation, storm water drainage, maintenance of roads and footpaths, streetlight etc. Ministry of Finance, Government of India in its guidelines for utilisation of this grant has suggested all Gram Panchayats to prepare plans. Using this opportunity, the Ministry of Panchayati Raj, Government of India has suggested all states to issue guidelines for preparation of Gram Panchayat Development Plan (GPDP) in participatory manner.
Twenty-SixStates have already issued such guidelines. Gram Panchayats in Haryana will receive a grant of Rs. 3883 Cr. in next five years. Government of Haryana has also issued guidelines for preparation of GPDP. Haryana State guidelines provides for special Gram Sabha meetings to be held for participatory planning. All the sectoral plans and projects would be discussed in the presence of Gram Sabha members maintaining minimum quorum of 1/10th of total members. In one of the specialGram Sabha, wish list would be appraised and prioritization is done for projectisation.Again, special Gram Sabha will be held to accord the final approval to the plan andprojects based on priority, criticality and vulnerability.The plan approved by Gram Sabha shall not be altered or deferred or dropped ordeviated.
Although Gross State Domestic Product (GSDP) and per capita income of Haryana is considerably good, the State is quite poor on indicators of social justice and gender inequality. Haryana is 6thamong 33 States in per capita GSDP.It has 6thhighest per capita income (approx. Rs.1.5 lakh in 2014-15) and is only after Goa, Delhi, Sikkim, Chandigarh, and Pondicherry. However, the growth is plagued by wide variations across the region/districts.
Sex ratio, an important indicator of women empowerment, in Haryana is much lower (903) than the national average (944) in the beginning of 2016.Caste based discriminations are also rampant in Haryana. As per National Crime Records Bureau data of 2014, violence against Schedule Caste saw 20% increase between 2000 and 2014.Due to deeply entrenched caste system, feudal and patriarchal mind-set, Panchayati Raj Institutions in Haryana are weak. Meetings of Gram Sabha are irregular and poorly attended. Notices of meetings of Gram Sabha are not served in time and women and marginalised sections of society either do not attend Gram Sabha meetings or remainon the periphery.
The Action Research ProjectSensing the GPDP as an opportunity to activate Gram Sabha and enhance participation in rural local governance in Haryana, ADIG-Association for Democratic and Inclusive Governane (a registered society workingtowards promotion of good governance) has initiated a pilot project in five Gram Panchayats in Gharaunda Block of Karnal District in Haryana. These Gram Panchayats are Sadarpur, Peer Badoli, Balheda, Devipur and Kairwali.Gharaunda is the most backward block in the Karnal district and ranks at the bottom in almost all development parameters. This Block has the maximum Scheduled Caste population who still remain excluded in the local governance decision-making.Male female ratio is quite adverse. Child sex-ratio is also adverse and rural female illiteracy is quite high.Literacy among SC population in Gharaunda Block is quite low. ADIG collaborated with another organisation Arpana Research and Charities Trust (ARCT) which is working in Karnal district for over a decade and has promoted 850 women’s Self-HelpGroups (SHGs) and some SHGs of physically challenged people in more than 100 villages in the district.
The project aimed at making the process of GPDP inclusive and enhancing participation in the Gram Sabha by mobilising SHGs. Key activities undertaken included were following:(i)Capacity building of Staff and SHG leaders:All staff of ARCT and ADIG and key SHG leaders were oriented on Panchayati Raj System in Haryana and how to engage with Gram Panchayatsin their areas of operation.Governance Structure in India, evolution of Panchayati Raj in India, 73rdAmendment Act, Haryana Panchayati Raj Act were some of the topics covered during the orientation. Participants were also shown video films of model Gram Panchayats and Gram Sabha.
(ii)Selection of GPs for Project:Selection of GPs was based on four criteria (a) presence of ARCT in the GP in terms of active SHGs (ii) Willingness of community
(iii) willingness of elected representatives
(iv)Relative backwardnessof the GP.Based on these criteria five GPs were selected for the pilot project.(iii)Pre-elections Voters Awareness Campaign:In all the selected Gram PanchayatsPre-elections Voters Awareness Campaigns (PEVAC) were conducted during Panchayat elections held in January 2016. Voters were motivated to participate in the elections and choose the most suitable candidate. They were also motivated to take written promises from the candidates that they would organize meetings of Gram Sabha with participation of women and marginalized sections after winning elections. Women SHG members were also encouraged to raise issues of women such as violence against women, child-sex ratio etc. before the candidates.(iv)Orientation of elected representatives on Panchayati Raj:Immediately after completion of Panchayat elections, an orientation of elected representatives of selected Gram Panchayats was organized. They were oriented onPanchayati Raj System in Haryana, Gram Sabha and roles & responsibilities of Sarpanch and Panchs. These elected representatives were also motivated to live up to the people’s expectations.
(v)Baseline Survey of Gram Panchayats:A baseline survey of selected Gram Panchayats was conducted to understand current development status and functioning of Gram Sabha. In addition, secondary information was also gathered.
(vi)Rapport building with District and Block administration:Additional Deputy Commissioner (ADC), District Development and Panchayat Officer (DDPO) of Karnal and Block Development and Panchayat Officer (BDPO)of Gharaunda were apprised of the Pilot Project and shared findings of baseline survey of selected GPs.A writtenletter seeking cooperation of District and Block administration to the project was also submitted. In addition, letter with a copy of the project concept note was written to the Director and Principal Secretary in-charge of the Department of Panchayati Raj, Government of Haryana.
(vii)Training on Gram Panchayat Development Plan (GPDP):Two-day training of elected representatives and Secretaries of selected GPs on the objective, structure and processes of GPDP was organized. Participants were given hands on training on process of Participatory Rural Appraisal, preparing draft plan and conducting Gram Sabha meeting for GPDP. They were also sensitized on the development status of Gharaunda block and selected GPs. Representatives of Block administration also attended the programme and clarified technical and administrative queries of participants.
(viii)Partnering with local media to create awareness:ADIG shared its activities with local media and invited them to GP level activities. Five local newspapers covered GP level activities. Local news reports helped create awareness among villagers and helped build rapport with local administration.
(ix)Support to GP in Gram SabhaMobilisation: Dates of Gram Sabha were obtained from the BDPO and disseminated among Sarpanchs (Chairpersons) of selected GPs. Sarpanches were also requested to inform Gram Sabha members through public announcements and Panchs (Ward Members).
(x)Gram Sabha Mobilisation:In addition to official announcements by the GP, ADIG and Arpana conducted a Gram Sabha Mobilisation drive with the help of Self Help Groups. They identified issues to be raised in the meeting of the Gram Sabha and submitted theirquestions and suggestions in writing to Sarpanch seven days before the Gram Sabha meeting. Street plays, and small talks were also used for mobilizing Gram Sabha.
(xi)Support to GP in conduct of Gram Sabha:Volunteers of ADIG and Arpana helped Sarpanch and Secretary to conduct Gram Sabha in orderly manner. Gram Sabha members were also oriented on the GPDP and its processes. They were also motivated to participate in the GPDP process. During the Gram Sabha, PRA exercise using tools such as resource mapping, social mapping and focused group discussions was also conducted.
(xii)Support to GP in organizing Ward Sabha:As part of GPDP process, needs of wards were to be identified in the Ward Sabha or ward level meeting. Although,Haryana Panchayati Raj Act does not provide for Ward Sabha, the GPDP guidelines suggests organizing Ward Sabha for need identification and prioritization to be addressed in the GPDP.
(xiii)Sharing progress with District and Block administration:District andBlock administration was kept abreast of the development of the project from time to time including challenges faced. Their suggestions were also obtained.Later Gram Panchayat called its meeting to discuss prioritized needs of Ward Sabhaand suggested projects. After discussion, a draft plan was prepared with list of various projects. These projects were sent for technical and administrative approval. After the approvals final GPDP were presented before the Gram Sabha for final approval. These approved plans were sent to Block level for the release of funds from respective line departments. Implementation of GPDP is in various stages in these GPs.Immediate impactIn last one year, the pilot Project could achieve some immediate results.
Important among them are as follows:(i)There is enhanced recognition and acceptance of the importance and role of Gram Sabha among elected representatives and officials of Gram Panchayats in the project area. (ii)Elected representatives are less skeptical of people participating in the Gram Sabha and asking questions. They feel more confident.
(iii)Elected representatives are better aware of the process of preparation of GPDP and appreciate the need of people’s participation in preparation of GPDP.
(iv)Self-Help Groups arebetter aware of the structure and functions of Gram Panchayats, powers and functions of Gram Sabha and processes of GPDP. Members of Self Help Groups are better equipped to engage with Panchayats. They are able to formulate questions to be asked in the meetings of Gram Sabha.
(v)Some needs/issues of people got resolved immediately. For example people of PeerBadoli GP have to walk for four kilometers for last rites of their dead ones because that GP do not have a ‘’Shamshaan Bhumi’’ or crematorium of their own. The problem was serious as the GP has got relocated ten years back due to flooding of Yamuna River and do not have a public land of its own. Nearby SadarpurGPhasagreed to give a piece of land to the Peer BadoliGPfor this purpose.
(vi)Sadarpur and Peer Badoli GPs do not have High Schools. Girl students have been facing lot of difficulties in continuing their education after completing primary education. Primary School for Peer Badoli Gram Panchayat have already been upgraded to a High School and that of Sadarpur is in process.
(vii)Most lanes/ streets of these Gram Panchayats were dirty because people were keeping animals on the street itself. In the Gram Sabha, it was resolved to discontinue with the practice. Although it is still being practiced, there is slight improvement in the situation.
(viii)In some of the Gram Panchayats additional cleaning staff have been hired using Gram Panchayats own resources. This is helping improve sanitary conditions in villages of these GPs.
(ix)There is approximately 10% increase in the overall attendance and about 25% increase in attendance of women in meetings of Gram Sabha in the selected GPs.
Key Learnings
From the activities and immediate impact of the project, following learnings emerged:
(i)Collaboration with State, District and Block administration helps conduct activities and achieve results. In this project, BDPO himself attended the first Gram Sabha and oriented Gram Sabha members on GPDP. He also noted down issues and concerns of villagers and instructed concerned officials to take appropriate action.BDPO also instructed Secretaries of selected GPs and technical staff to attend the training programme on GPDP organized by ADIG. This created a goodwill among cutting edge functionaries. District administration had also sent one of its staff to attend Gram Sabha on GPDP.
(ii)Capacity Building of ERs and functionaries was also an enabling factor. Initial orientation of ERs on Panchayati Raj and detailed training of ERs and functionaries on GPDP notonly created a good understanding of processes of GPDP and need to make it participatory, but also helped generate goodwill about the project.
(iii)Prior activities of economic empowerment of women through creation and capacity building of women SHGs and SHGs of physically challenged people had already created a social capital in these selected GPs. It helped in community mobilization for GPDP and for activating Gram Sabha.
(iv)Due to past experiences, people in general and SHG members were initially quite negativeabout GP and Sarpanch. They were cynical about participating in Gram Sabha.
(v)Although several clarifications were issued during the training, Sarpanches (Chairpersons) of selected GPs had expectations of some financial support from ADIG and Arpana. At some point this led to disappointments and demotivation among them.
(vi)Collecting data for baseline survey and situation analysis for GPDP was quite difficult. Many data were not available. Some data were not available ward/GP wise. Many a times geographical areas served by various institutions are not co-terminus with geographical areas of wards or GPs.
(vii)All the GPs selected for the project do not have offices of their own. Records are kept in the houses of Sarpanchs and some records are also with Secretaries. This proved to be hurdle in promoting participation as many people hesitated visiting Sarpanch’s house and would have felt more comfortable had there been a public office.
(viii)GP Secretaries have charge of more than one GP. This coupled with lack of office building, gives them an excuse for not visiting the GP regularly. It has proved a stumbling block in functioning of GP and Gram Sabha and affected preparation of GPDP negatively.
(ix)Participation of women from poor households of Hindu community was higher after mobilisation in comparison with dominant caste and Muslim families. In dominant caste such as Jats and Rajputsand in Muslim community patriarchy seemed stronger.
(x)Despite orientation and training, some women elected representatives found it difficult to get out of patriarchal control in their families and did not participate fully in the GPDP process or in the Gram Sabha mobilization.
Conclusion
Participation is one of the most important dimensions of good governance and has positive correlations with other dimensions such as transparency and accountability. Enabling legal framework, although necessary, alone does not ensure people’s participation in rural local governance. It needs to be facilitated and triggered with conscious and planned activities.Entry points for facilitating participation can be anyone of the development cycle: planning, implementation, monitoring and evaluation of development programmes. Existing forums such as Gram Sabha and programmes such as MGNREGA, GPDP for utilisation of Fourteenth Finance Commission could be used as opportunity to facilitate and trigger participation. To enhance participation of poor and women in rural local governance, mobilising women Self-Help Groups to engage with Gram Panchayats and Gram Sabha could be an effective strategy. A multi-stakeholders collaborationinvolving community-based organisations (SHG federations, Nehru YuvaKendras, sports club, water user groups etc.), Civil Society Organisations (NGOs, media, academics), Panchayats and administration is more likely to be effective in ensuring participation.
Dr.Rajesh Kumar Sinha, Asst. Professor,
Nationa lInstitute of Rural Development & Panchyat Raj, Hyderabad
Article courtesy: http://cgsird.gov.in/journal/images/pdf/Paper51.pdf
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