Transcript FINANCIAL MANAGEMENT OF GRAMPANCHAYATS

An
Overview of
Panchayati Raj
in Orissa
Independence must begin at
the bottom. Thus, every village
will be a republic or Panchayat
having full powers. It follows,
therefore, that every village
has to be self-sustained and
capable of managing its
affairs….
….. We are unleashing
or attempting to
unleash the greatest
latent powers of the
people by giving an
authority to Panchayati
Raj.
Why Panchayati Raj….
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Promote People’s Participation in Rural Development
programmes;
Provide Responsive Administration based on the concept
of ‘Democratic Decentralization’;
Act as a medium of Social and Political change;
Facilitating direct, representative and participative
democracy and Social Mobilization at local levels;
Prepare Plans for Development and assist in their
implementation.
Representations for weaker sections
Gram Sabha / Palli Sabha – Direct Democracy
Orissa : PRIs at a Glance
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Constitutional mandate – PRIs to work for Economic
Development & Social Justice
51972 Villages, 6234 GPs, 314 PSs, 30 ZPs with
100862 Elected Representatives.
2nd executive leader post in all 3-tier PRIs for women
Election as per PESA in 2007 with PRIs at all levels
headed by STs in 1941 GPs, 120 PSs & 13ZPs
21 subjects of 11 departments transferred to PRIs as per
73rd Amendment
Growth of 3-tier PRIs : Orissa
Year
GP
PS
ZP
1961-62
1966-67
2350
3826
214
307
13
13
1983-84
4391
314
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1991-92
5263
314
-
1997-98
5263
314
30
2002-03
6234
314
30
Journey of Panchayati Raj
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OGP Act
CD Programme
NES
BRM Comm.
3-tier PRIs
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1948
1952
1953
1957
1959
(OGP Act, 1959, OPS Act, 1959, OZP Act,1961)
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Intro. of 3-tier PRIs
Dissolution of ZP
Cont.. of 2-tier PRIs
Intro. of 3-tier PRIs
(Resv. of Women)
Election to 3-tier PRIs
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1961 – 67
1967
till 1990
1990
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1997
(73rd Const. Amendment & PESA)
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Conduct of election as per PESA 2002
Empowerment of PRIs …….,,,,,,,2002 and 2007
election
Profile of PRI Elected Reps.
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ZP
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854
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PS
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6227
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GP
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93786
Total
:
1,00,867
N.B. Women (33%) – 36,084
Panchayati Raj..A Pro-Poor, Pro-PRI
Endeavour……
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Creating a culture of Participatory development and Solution at
Community level through its programmes & structure…
Changing Rural lives……Poverty Alleviation programs
 MGNREGA-SGSY-IAY-BRGF-TRIPTI
Facilitating Basic services
 FCA-KL Grants-GGY-MO-KUDIA
Mainstreaming SHGs into Mission Shakti & assist in marketing
thro ORMAS
Capacity Building of PRIs / PROs - SIRD
Ensuring transparency through E-Governance and Social Audit
Bringing in Fiscal Discipline through PRIASOFT, PAMIS,
BETAN.
Institutional Framework of Decentralization
Palli Sabha
 Gram Sabha
 Gram Panchayat
 Panchayat Samiti
Standing Committees
DRDA
District Planning Committee
 Zilla Parishad
 Standing Committee
 State Finance Commission
State Election Commission
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LEGAL FRAMEWORK
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Orissa GP Act – 1964
Orissa PS Act – 1959
Orissa ZP Act – 1991
Amended – Spirit &
Mandate of 73rd Const.
Amendment & PESA Act,
1996
Decentralised Decision making & Planning
Structure for Pro-poor Development in Odisha
Zilla Parishad
Panchayat Samiti
Representative
Democracy
Gram Panchayat
Gram Sabha
Participative
Democracy
Palli Sabha
Convergence Mode
(Self Employment & Wage Employment Prog.)
General Devolution
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Officials “accountable”
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Place plan & Scheme for approval
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Can ‘visit’ offices
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Call for report and ensure their
presence in the meetings
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Write about to HoD/Govt.
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Casual Leave to head of office
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Executive officers
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Collector : ZP
BDO
: PS
EO
: GP (VLW/VAW)
Function
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Gram Panchayats, Panchayat Samities and Zilla
Parishads given statutory powers under the
respective Acts and Rules.
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Gram Sabha and Palli Sabha given statutory
recognition.
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Gram Sabha given statutory powers for selections of
beneficiaries under Poverty Alleviation schemes.
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To approve plans, programmes and projects before
implementation by the Gram Panchayats.
Function
...... Cont.
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Gram Sabha empowered in Scheduled areas to
enforce prohibition, control over money lending, have
ownership of minor forest produce and prevent
alienation of land belonging to Scheduled Tribes.
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Government transferred ownership of 67 items of
Minor Forest Produce to the Control of Gram
Panchayats.
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Social audit made statutory. Gram sabha to approve
expenditure and submission of U.C.
Function
...... Cont.
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Gram Panchayat empowered to maintain
assets, remove nuisance, regulate public
utility, impose taxes and provide public
distribution & other services.
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Panchayat Samiti empowered to deal in
P.D.S, look after social security measures,
provide assistance to weaker sections,
implement programmes relating to poverty
alleviation, primary education, primary health,
co-operation and calamity relief.
Function
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Zilla Parishad - Out of 29 subjects required to be
transferred to PRIs as per the 11th schedule of the
constitution, 19 subjects transferred to the control
of Zilla Parishad. However concerned Deptt. have
the option to place fund with Zilla Parishad to
implement their programme or to get the
programme implemented through their district level
officers with the approval of Zilla Parishad.
Functionaries
• Gram Panchayat –
Executive Officer
One Secretary
One peon.
Programme Manpower support
• Panchayat Samiti –
based manpower
Block Development Officer
Junior Engineers
Extension Officers
VLWs
Clerical Staff and Programme
Functionaries
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•Zilla Parishad
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Chief Executive-cum-Collector
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Project Director-cum-Executive Officer
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Addl. P.D-cum-Executive Engineer and
programme-based manpower
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DRDA Office to act as Secretariat of
Zilla Parishad
Funds
Fund is provided to PRIs mainly out of
following sources, namely :
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MGNREGS
BRGF, RGSY
IAY / Mo-Kudia
SGSY/NRLM
GGY/CC ROAD
FCA(TFA)
Grant-in-aid
Own income
Chief Executive Officer
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DM & Collector continue to be the Chief Executive
Officer of the Zilla Parishad.
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Project Director, DRDA and other district level officers
shall continue to function as Executive Officer and
Additional Executive Officer
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Block Development Officer for Panchayat Samiti.
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Village Level Workers (VLW) and Village Agriculture
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Workers (VAW) have been appointed as Executive
Officer of the Grama Panchayat.
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Executive Officer shall perform the functions and duties
as per job chart prescribed by govt. from time to time.
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Sarapanch shall sanction Casual Leave of Executive Officer of
Gram Panchayat.
Accountability
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The district level, Block level and Grama Panchayat level
functionaries of different departments of Government the subjects of
which have been transferred to PRIs will attend the meetings of
PRIS
Remain accountable to respective level of PRI though they shall
continue as employees of their respective department.
They shall place plans and schemes for discussion and approval in
the meeting of respective level of PRI.
The President, Zilla Parishad, Chairman, Panchayat Samiti and
Sarapanch, Grama Panchayat are vested with authority to
supervise the work and function of Govt. functionaries at
respective level, calling for information and report from time to
time. They can submit proposal to the appropriate level about
indiscipline, irregularity and other shortcomings of the District Level
Officers.
Accountability
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Submit suggestions/ recommendations on improvement of
function of these functionaries through appropriate level of PRIs
as well as District Level officers.
The Project Director, DRDA as the Executive Officer of Zilla
Parishad, will call for the report and will place such report
before the President, Zilla Parishad
President of Zilla Parishad can submit report to the Head of
Department as well as to Government.
Such proposals emanating from Zilla Parishad shall be given due
consideration and decision taken thereon shall be
communicated to other PRIs.
People’s Empowerment
through PRIs in Sch. Areas :
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Approval of Plans, Programmes,
Project selection, Selection of
beneficiaries & issue of UCs
Marketing & Ownership of MFP
Enforcement of Prohibition &
Sale of Intoxicant
Regulation of Money Lending
Transfer of Tribal Land
Control of Village Markets
Management of Water bodies
Minor Minerals
Women Empowerment - PRIs
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Pre-73rd CAA Scenario – Mandatory Provision
of Reservation of Women leader at GP, PS &
ZP at the level of Naib Sarapanch, ViceChairman & Vice President respectively.
Women Participation
1/10th : Palli Sabha - Desirable
1/3rd : Gram Sabha – Mandatory
Decentralised Planning
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District Planning Committee – formed in all
districts
PRIs leaders participation – ensured
Consolidation & Integration of Plans of different
line departments, ULBs & PRIs
Provision of Supervisory role - PRIs
Weaknesses……………..
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Lack of political will of political parties for
decentralisation
Lack of public awareness and vigilance
Lack of orientation of officials for working with LGs
Elite capture in highly unequal societies
Bias against women
Bureaucracy has not learnt to work with the local
government
Downward accountability mechanism not yet
developed
Decision-making not yet broad-based
Rules & procedures not adequately framed
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Threats…………………..
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Disparities of caste, class, gender
etc.
Resistance of political class at the
state and national level to share
power
Resistance from the rural elites and
dominating class to share power
with disadvantaged groups
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Clienteles and Patronage
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Four Challenges
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Power
sharing
among
Politicians
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Inconsistency in
implementing directions by
officialdom
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Landlords
and
Feudal
Elements
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Contractors
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Opportunities………………
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People’s participation providing good governance at
grassroots level
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Involvement of people in development
planning
Gender budgeting
Resource mobilization (cash, kind or
labour) for local development
Increasing participation in decision-making
The State and Administration nearer to
people
Democracy extended to grassroots
Poverty eradication
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Strength……………………..
 Constitutional Status
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Constitutional Status for stability and continuity
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Timely Election
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Demand from below
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Representations for weaker sections
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Gram Sabha – Direct Democracy
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CSOs/ Environment demanding decentralization
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Framework for 4 “Fs”
Functions, Functionaries, Funds, Freedom (Autonomy)
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“There is a silent revolution that is taking place in our
countryside – silent only because the media and urban
political opinion are not giving adequate attention to it. It is
the harbinger of new hope for the eradication of rural poverty
and the promotion of rural prosperity.”
Dr. Manmohan Singh, Prime Minister of India
November 22, 2006