Transcript FINANCIAL MANAGEMENT OF GRAMPANCHAYATS

Decentralised Governance
through
Panchayati Raj
in Odisha
AMITA PATRA
FACULTY,SIRD
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
Evolution of panchayatiraj system
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1950:Panchayatiraj Institutions were placed in the Directive
Principle of State policy, as Art-40.
1953: The Balvantarai Meheta Committee was constituted.
1957:recommended
devolution of power.
elected body of three tiers and
1959: Inauguration of first panchayat in the country at
NAGAWAR in Rajastan.
1963:K.Santhanam Committee was appointed to look solely at
the issue of PRI finance.
1977: Ashok Meheta Committee was constituted to suggest
measures to strengthen PRIs.It recommended two tier system
and inclusion of SC/ST.
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1985:G.V.K.Rao Committee was appointed .It recommended
to assign the work of planning,
implementation and
monitoring of RD programme to PRI
1987:L.M.Singhvi Committee was formed It recommended for
the strengthening of GRAM SABHA,GRAM PANCHAYAT and
restructuring of village.
1988:Parliament Sub Committee under the chairmanship of
P.K Thungun recommended for regular and timely panchayat
election.
1989:Proposal introduced to institutionalize the PRIs in 64th
constitutional Amendment bill.
1992:The Panchayats have conferred with constitutional
status through 73rd constitution Amendment Act.
1993:The Act came in to force on April 24th1993 .
1996:Panchayat Act (Extension to Schedule Area) was came
in to force.
Main features of the 73rd Constitutional
Amendment Act
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CONSTITUTION OF PANCHAYAT: Three tier structure
COMPOSITION OF PANCHAYAT: Direct election of all seats except
the chair persons at district and block level
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RESERVATION OF SEATS: SC ,ST (in proportion to population) and
women(33%)
CONSTITUTIONAL STATUS
development & Social justice
TO
GRAM
SABHA:
Economic
DURATION OF PANCHAYAT:Term of 5 years, if dissolve fresh
election within 6 months
DEVOLUTION OF POWER:29 subjects of eleventh schedule of
Constitution
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CONSTITUTION OF STATE FINANCE COMMISSION :Every 5 years
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CONSTITUTION OF STATE ELECTION COMMISSION :
74TH Constitutional Amendment
Act:1992
CONSTITUTION OF DISTRICT PLANNING COMMITTEE:
There would be a District Panning Committee at
district level to consolidate the plans prepare by
the panchayats and municipalities to prepare
development plan for the district as a whole
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,
100862 Elected Representatives.
30 ZPs with
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
2350
214
13
1966-67
3826
307
13
1983-84
4391
314
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1991-92
5263
314
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1997-98
5263
314
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2002-03
6234
314
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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
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
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
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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
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Palli Sabha
Gram Sabha
Gram Panchayat
Panchayat Samiti
Standing Committees
DRDA
District Planning Committee
Zilla Parishad
Standing Committee
State Finance Commission
State Election Commission
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
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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
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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
GGY
FCA
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
Strength
 Constitutional Status
 Constitutional Status for stability and continuity
 Timely Election
 Demand from below
 Representations for weaker sections
 Gram Sabha – Direct Democracy
 CSOs/ Environment demanding decentralization
 Framework for 4 “Fs”
Functions, Functionaries, Funds, Freedom (Autonomy)
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Weaknesses
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Lack of political will of political parties for decentralisation
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Lack of public awareness and vigilance
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Lack of orientation of officials for working with LGs
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Elite capture in highly unequal societies
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Bias against women
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Bureaucracy has not learnt to work with the local government
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Downward accountability mechanism not yet developed
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Decision-making not yet broad-based
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Rules & procedures not adequately framed
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Opportunities
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People’s participation providing good
governance at grassroots level
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
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Poverty eradication
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Threats
 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
 Clientalism
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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“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
THANKS FOR YOUR Kind Attention