[se-decn] CONSOLIDATED REPLY:Inputs to Sumit Bose Committee on Performance Based Payments. Advice.
Tina Mathur
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Solution Exchange for the Decentralization Community
Consolidated Reply
Query: Inputs to Sumit Bose Committee on Performance Based Payments. Advice.
Compiled by Tina Mathur, Resource Person
Issue Date: 28 August 2017
From Ramit Basu, Consultant to the PBP Committee, New Delhi
Posted 15 June 2017
I work as a consultant to the Committee on Performance Based Payments for better outcomes in Rural development programmes (under the Chairmanship of Shri. Sumit Bose, former Finance Secretary to Govt. of India), set up by the Ministry of Rural Development. The objective of the Committee is to examine Human Resource deployment under Rural Development Programmes and suggest a framework for human resource integration at the Panchayat level. The purpose is to strengthen the core functions of the Gram Panchayats which will enable the Panchayat to strengthen the agency function entrusted to it.
It is felt that the implementation of RD programmes could be significantly improved if the human resource available at Gram Panchayat, Block Panchayat and District Panchayat level is organized into horizontal teams accountable to the Panchayats and available for supporting individual beneficiaries, SHGs, and Village Organizations.
Members of the Decentralization Community are requested to provide suggestions on the following aspects of the Terms of Reference of the Committee:
- What should be a composite job profile for a rural development functionary at Gram Panchayat, Block Panchayat and District Panchayat level in the context of the tasks they are expected to carry out?
- What could be the performance criteria for payments to field functionaries under Rural Development programmes, such as MGNREGA, Pradhan Mantri Awas Yojana-Grameen (PMAY-G), Integrated Water Management Programme (IWMP), Deen Dayal Antyodaya Yojana-National Rural Livelihoods Mission (DAY-NRLM), Deen Dayal Upadhyay- Grameen Kaushalya Yojana (DDU-GKY), National Social Assistance Programme (NSAP), National Rural Drinking Water Programme(NRDWP)?
- What can be the training framework for a composite rural development functionary, to function as a multi-tasking resource person?
- What model would you suggest for convergence of vertical (at programme level) and horizontal (at Panchayat level) responsibilities at Gram/Block/District Panchayats?
Please also share any case studies, examples and models on any of the aspects mentioned above that you may have.
Your inputs will enable the Committee to frame strong and practical recommendations for the Government to implement on the ground. The Chairman of the Committee feels that the Committee could benefit considerably from your inputs through Decentralization Community.
Responses were received, with thanks, from
1. Yogesh Kumar, Samarthan-Centre for Development Support, Bhopal
2. Veena Mahor, Aga Khan Rural Support Programme in India [KRSP(I)], Gujarat
3. N.C Saxena, Former Secretary Rural Development, New Delhi
4. B.P Syam Roy, West Bengal
5. Purnima, KHOJ, Melghat, Maharashtra
6. Md. Shahadat Hussain, Jamia Millia Islamia, Mew Delhi
7. D. Rajasekhar, Institute for Social and Economic Change (ISEC), Bangalore
8. Ujjwal Chatterjee, West Bengal
9. Tushar Dash, Vasundhara, Bhubaneswar
10. E. Venkatesu, Hyderabad
*Offline contribution
Further contributions are welcome!
Composite job profile or rural functionaries
Members observed that even though grassroots functionaries are well trained, often they are trained in particular sectors and therefore unable to identify local problems in the field and bring them on a common platform to solve service delivery problems. Some problems can be easily solved by local governments if brought to their notice as cited in an example of ANMs from Gujarat. Similarly, a study in Bihar also revealed that elected representative ran schemes in their own ways. Due to shortage of gram sewak members and consequently their absence from Panchayat, mukhiya and ward members performed most work and charged people for their services. It is necessary to redefine core staff that will always be available even when no other programme is available for PRIs. Members discussed the feasibility for functionaries to be accountable to Gram Sabhas rather than Gram Panchayats to strengthen their accountability.
Presenting another view, a member pointed out that there could not be a composite job profile for rural development functionary as the three tiers of Panchayats worked as independent units and constitutional scheme does not permit the Central Government to determine the role of functionaries. Composite job profile should not be forced. Suggestions can be given to State governments to adopt common minimum functional items. A rural development functionary would not be able to handle the workload of a large number of schemes. Members also suggested that multi-tasking should be considered an added advantage only and not confused with the core functions. Core function expertise is important
Respondents suggested appointment of specialist staff to serve panchayats. These may be in the nature of managers with Social Science /Rural development background, as was being considered in Bihar. One manager may be appointed for a halka or 2-3 neighbouring Panchayats.
Emphasis needs to be given on providing personnel with financial and technical expertise. For this, technical staff like Assistant Sub-Engineers posted at the Block, may be assigned to a group of Gram Panchayats for preparation of their Action Plans and examining their technical feasibility. In States, where the size of the Gram Panchayats is too small to allow independent staff support, common staff support can be provided by grouping the Panchayats, taking care, however, that the staff support is adequate and available as required.
Recruitment and Training
Members suggested that a Panchayat Service Commission (PSC) should be established in each state to be responsible also for transfers, capacity building, reward and incentive system. They agreed on the need for a comprehensive design for recruitment, capacity, career planning and appraisals for panchayat functionaries.
A separate cadre for panchayats may be considered to be appointed. Existing staff should initially be placed under the control of Panchayati Raj Institutions on deputation basis. Some of the willing staff should be absorbed in the cadre of Panchayats. Simultaneously, efforts should be made to fill up vacancies through recruitment as soon as they fall vacant after the retirement of personnel not willing to be absorbed.
All functionaries must be trained in core functions, the core functionaries must also be trained in soft skills. Hiring of staff may be outsource by the Commission to hiring agencies.
The PSC may be responsible for transfer, promotions, conducting appraisal and capacity enhancing initiatives and for designing parameters of recruitment and incentives for all development programmes to maintaining parity in salaries and quality of human resources at village/Panchayat /block and district level.
Performance criteria for payments
Respondents suggested that the implementation of rural development programmes can be significantly improved if the staff available at all three tiers of panchayats is organized into horizontal teams accountable to panchayats and available for supporting beneficiaries, SHGs and Village Organizations.
Members agreed that this has the potential to ensure programme outreach, outcome and put an end to time over run and cost slippage; but further comments require study of depth breadth of each scheme.
While designing local cadres, it may be ensured that opportunities are provided for the good to rise to higher levels. Doing so through time bound and routine promotions reduces the disincentive to perform well. An incentive system may be worked out. For instance, in a study in Karnataka, it was found that hiring local incentivized agents improved knowledge uptake in the context of a health insurance scheme. Studies have shown that incentives positively impact worker productivity.
Convergence of responsibilities
Sharing an experience of a working model of convergence for conservation and management in relation to Joint Forest Management (JFM) programme in Amravati district of Maharashtra, members agreed that convergence should flow from villages upwards.
Conclusion
In conclusion members agreed on the need to have a composite job profile, to focus on core functions instead of multi-tasking and on convergence of responsibilities upwards. They welcomed the suggestion of performance criteria as an innovative solution to strengthen core functions of Gram Panchayats.
Related Resources
Human Resource Intervention at Panchayat Level (from N.C Saxena, Former Secretary Rural Development, New Delhi)
Paper; by N.C Saxena
Available at: http://solutionexchange-un.net.in/ftp/decn/cr/res15061701.pdf (PDF; Size: 175 KB)
Examines the processes through which providing more staff to the panchayats will improve their performance and accountability
From D. Rajasekhar, Institute for Social and Economic Change (ISEC), Bangalore
Motivating Knowledge Agents: Can Incentive Pay Overcome Social Distance?
Paper; Erlend Berg, Maitreesh Ghatak, R Manjula, D Rajasekhar and Sanchari Roy; Centre for Market and Public Organisation, University of Bristol; 2014
Available at: http://solutionexchange-un.net.in/ftp/decn/cr/res15061702.pdf (PDF; Size: 620 KB)
Analyses the effect of incentive pay when agents have pro-social objectives in rural development and information dissemination
Social Security Benefits for Unorganised Workers in Karnataka
Programme Evaluation Report; Erlend Berg, D Rajasekhar, R Manjula; Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ); 2014
Available at: http://solutionexchange-un.net.in/ftp/decn/cr/res15061703.pdf (PDF; Size: 359 KB)
From Ujjwal Chatterjee, West Bengal
Promotion Policy for Gram Panchayat, Samity and ZP Employees
Government Order; Panchayat and Rural Development Department, Government of West Bengal; March 2017
Available at: https://wbxpress.com/promotion-policy-gram-panchayat-samity-zilla-parishad/
Order laying down rules for promotion of employees of panchayats including written test and Annual Performance Report system
From Tina Mathur, Resource Person
The Gram Panchayat Organisation Development Project
Process Document; Avantika Foundation; Bangalore; 2014
Available at: http://www.avantikafoundation.org/uploads/GPOD-Process-Document.pdf (PDF; 20.8 MB)
Details a step-by-step approach for strengthening the organisational capacity of Gram Panchayats, including administrative structure and staff
Model Panchayat Cadre Manual
Manual; Shri Ram Centre For Industrial Relations, Human Resources, Economic & Social Development; New Delhi, for Ministry of Panchayati Raj
Available at:
http://www.panchayat.gov.in/documents/10198/333815/PRI_Manual_by_Shri_Ram_Centre.pdf (PDF; Size: 768 KB)
Study and recommendations on organisational structure, staffing pattern, recruitment / appointment systems in panchayats
Capacity building of extension functionaries through training intervention for enhancing job performance
Article; by Madhu Babu, Sailaja, Jaganmohan Reddy, Venu Gopal Reddy; ICSSR e-Journal of the Social Science Research; 2013.
Available at: http://www.myjurnal.my/public/article-view.php?id=94382
Study on skills acquired through extension education training programmes , utilization of acquired knowledge and skills and assessment of level of knowledge of participants
Health worker preferences for performance based payment scheme in a rural health district in Burkina Faso
Paper; by Maurice Ye et al.,
Available at: https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4703797/ (PDF; Size 733 KB),
Discusses positive impacts of performance based incentives in improving performance of healthcare providers
Yogesh Kumar, Samarthan-Centre for Development Support, Bhopal
It is heartening to know that MoRD has set up a committee to develop a framework for human development for the PRIs at different levels. The questions posed in the query are quite relevant to address the perpetual problem of inadequate staff and low rewards for the PRI functionaries. I would like to submit to the Committee the following for kind consideration:
- It should be recognised that there is a large workforce working within the jurisdiction of PRIs either directly accountable to PRIs or appointed under various development programmes. The human resource management of the PRIs to play agency functions need to be looked in a holistic manner. There is a need for comprehensive design for recruitment, capacity building, career planning and appraisals. Currently, the view is very narrow to hire staff for getting some of the programmes implemented. There is a need to define core staff that will always be necessary for the PRIs to function as local government for utilisation of Finance Commission grants, MGNREGS and self -generated income, even when there is no other programme available for the PRIs. The contractual staff will grow or shrink with the availability of the programme funds.
- There is a need to establish a Panchayat Service Commission (PSC) in each state to ensure recruitment of PRI staff at the district level and below. The PSC should also be responsible for organising regular transfers and promotions, conducting appraisals and co-ordinating capacity enhancement initiatives for the staff. All development programmes of the national or state government should go through the PSC to design parameters of recruitment and rewards/incentives so that parity is maintained at the village/Panchayat/block and district level salaries as well as quality of human resources.
- The PSC can hire professional agencies of the Government or non-governmental for capacity building of the staff for performing functions as required in their job description. The PSC will also design annual performance appraisal system and monitor its application.
The questions as posed in the query cannot be addressed properly in absence of any systematic mechanism of hiring, firing, reward system and promoting human resources, pegged with an institutional mechanism. Multiple programmes, multiple reward systems and multiple supervisors are adding more complexity in implementation of programmes at the district level and below.
Veena Mahor, Aga Khan Rural Support Programme in India [KRSP(I)], Gujarat
I would like to offer the following suggestions to the Sumit Bose Committee:
Composite job function:
If we learn from the existing model of capacities of grassroots functionaries, we realize that they are well trained in respective field / sector (health, education, administration, etc), however, what is lacking is the ability to personalize the service delivery to the beneficiaries. Another thing lacking is the attitude to be accountable and work hand in hand with Local Governments (elected representatives) in context to improve service delivery. Most of the functionaries view Local Governments in a negative light and hence are unable to identify problems in field and bring them on a common platform because of which service delivery suffers. Narrating an example from the field - conversation with one of the Auxiliary Nurse Midwives (ANMs) reflected that she does not visit the village as per schedule because the State Transportation bus which was available to her to commute was stopped. She has a feeding child at home, if she visits the village as per her duty, she has no vehicle to commute back home. Such problems and challenges faced by frontline service delivery providers can be easily advocated by the Local Governments and solutions can be sought.
As Yogeshji mentions, a core team of well-trained functionaries should be available to the Local Governments, the job function of this team, apart from leading the sectoral interventions should also include involving Local Governments in interventions, hence bringing realization of their role which will in turn also develop capacity of the Local Governments. ‘Involving Local Governments’ does not mean inviting them for ribbon cutting or speech during functions, involving means supporting them in developing strategies to fill the gaps in interventions and identifying the regulations for implementation of these strategies.
Training framework:
Multi-tasking is a good thought but it also means that focused tasks get diluted. The functionary needs to have a core function of expertise (trained in it) and the primary accountability should be for the core function. Apart from this, the functionary can have knowledge and skills for multi-tasking for allied functions which can be an added advantage to the PRIs. Training of this core team should also include training in soft skills like team building and functioning, communication, leadership, stress management, etc.
N.C Saxena, Former Secretary Rural Development, New Delhi
I am pleased to share a detailed note that answers the issues raised in the query.
This paper argues that the implementation of RD programmes could be significantly improved if the human resource available at Gram Panchayat, Block Panchayat and District Panchayat level is organized into horizontal teams accountable to the Panchayats and available for supporting individual beneficiaries, SHGs, and Village Organizations. This note examines the processes through which providing more staff to the panchayats will improve their performance and accountability. The note is divided in two parts: the first part deals with the general issues that are responsible for poor performance of panchayats, and the second part discusses how these constraints can be overcome through better human resource allocation.
The complete note may be accessed at http://solutionexchange-un.net.in/ftp/decn/cr/res15061701.pdf .
B.P Syam Roy, West Bengal
I am sorry that I hold a different view, as against the comments received so far, on the queries posed to the Decentralization Community on behalf of the Sumit Bose Committee and would like to respond to query no-1 and query no-2 in the following manner :
Query 1. What should be a composite job profile for a rural development functionary at Gram Panchayat, Block Panchayat and District Panchayat level in the context of the tasks they are expected to carryout?
The question is confusing but interesting. It is confusing in the sense that there is hardly any scope for a rural development functionary(s) to be connected with 3-tier Panchayats at the same time at the level of Gram Panchayat, Block Panchayat and District Panchayat, which institutions, by constitutional mandate, happen to be separate units of local government altogether. It is interesting to see if such an exogenous rural development functionary could curve out a functionally relevant role among the 3-tiers of Panchayat within a defined function/scheme.
2.The given question has several dimensions, linked as it is with the constitutional scheme of devolution under Article 243G, Seventh schedule and Eleventh Schedule of the Constitution.
3. a) Article 243G does not permit concurrent jurisdiction over functional items among the tiers of Panchayats when it requires “the Legislature of a State may by law endow the Panchayats with such powers and authority as may be necessary to enable them to function as institution of self-government and such law may contain provisions for the devolution of powers and responsibilities upon the Panchayats, at the appropriate level”. In other words, the devolution of powers and responsibilities would be distinct for Gram Panchayat, Intermediate Panchayat or Zill Panchayat and there cannot exit any concurrent or overlapping functional items among them.
b) As per Seventh Schedule, functions relating to local governments (Panchayats) fall within the jurisdiction of the State List at sl no 5. There is no entry of this subject either in the Union List or in the Concurrent List which precludes any role of the Central Ministry, including the Ministry of Rural Development in the functioning behaviour of the 3-tier Panchayats. c)The Eleventh Schedule of the Constitution enumerates the list of broad functional items within which the Legislature of a State has to decide on devolution on to the tiers of the Panchayats.
4.As mentioned at paragraph- 2, the Seventh Schedule enjoins powers and responsibilities to the State on several items either under the State List or under Concurrent List .The subject of recommendation of the Sumit Bose Committee falls on schemes which belong to Centrally Sponsored Schemes(CSS) namely, MGNREGA, Pradhan Mantri Awas Yojana-Grameen (PMAY-G), Integrated Water Management Programme (IWMP), Deen Dayal Antyodaya Yojana-National Rural Livelihoods Mission (DAY-NRLM), Deen Dayal Upadhyay- Grameen Kaushalya Yojana (DDU-GKY), National Social Assistance Programme (NSAP), National Rural Drinking Water Programme(NRDWP). The related nodal Ministry of these CSS cannot decide the terms of its execution unilaterally. It has to be mutually settled between the Union government and the State governments on cost-sharing. Understandably, there is no scope or role of the tiers of Panchayats in such consultation or being a partner of it. Usual practice in the government is that such (CSS) schemes, once formulated, are to be implemented by the departments of the state government or by its agencies.
A disturbing confusion has, however, crept in the CSS implementation process in the country ever since the publication of Report of the Task Force on Devolution of Powers & Functions upon Panchayati Raj Institutions, Government of India: New Delhi, Krishi Bhawan, 2001. The devolution has turned out almost equal to assignment of functional responsibilities for implementation of CSS scheme(s). The real story of devolution thereafter for the tiers of Panchayats in the states of India has been ‘assignment ‘and not devolution. Devolution has become illusory as a functional practice now.
5. a) In this very background, the query relating to ‘ composite job profile for a rural development functionary at Gram Panchayat, Block Panchayat and District Panchayat level ’ presupposes that there does not exist any panchayat in the states of India as defined at Article 243 and Article 243B and it is even possible to work out any informal system of ‘rural development functionary’ among the tiers of Panchayats for the implementation of rural development (CSS) schemes by the Rural Development Ministry of GoI. Conceptually, it is not tenable, in practicable terms, it is simply not workable.
b) Further, a rural development functionary is too insignificant a work-aide to handle the volume of load (including domain knowledge) of a large number of schemes (CSS) with different and distinct implementation programme schedule simultaneously for a number of GPs, IPs and a ZP at the same time. This would be a disastrous experiment, to say the least. This would also destroy the concept of ‘self-government’ of Article 243(d) and roll back whatever decentralization has been achieved in the country so far.
c) Agency function of any particular scheme can be assigned to the tiers of Panchayat by the concerned state government only, through a formal notification. The nodal Union Ministry in the GoI has, in fact, no role in assigning any scheme or part of it to any tier of Panchayat. Needless to mention, however, that seldom does any state government assign any non-devolved function/scheme through formal notification. This is a big void area. The usual practice of the Ministry to issue notification for providing earmarked role of Gram Panchayat Intermediate Panchayat or Zilla Panchayat is not a good substitute action. In my opinion it would create in the process a lot of conceptual confusion.
6. In short, the query-1 relating to ‘composite job profile for a rural development functionary at Gram Panchayat, Block Panchayat and District Panchayat level’ is unusual. Such a mechanism may not be forced upon the Gram Panchayat. Intermediate Panchayat and. Zilla Panchayat. For the sake of emergence of a uniform pattern of functioning among the GPs,IPs and ZP in the states of India, the Committee may instead suggest to the state government to agree a common minimum functional items for each of the tiers of Panchayat across the country (after working out detailed functional mapping of the 29 items of the Eleventh Schedule) for consideration and adoption by the state legislature.
Query-2 What could be the performance criteria for payments to field functionaries under Rural Development programmes, such as MGNREGA, Pradhan Mantri Awas Yojana-Grameen (PMAY-G), Integrated Water Management Programme (IWMP), Deen Dayal Antyodaya Yojana-National Rural Livelihoods Mission (DAY-NRLM), Deen Dayal Upadhyay- Grameen Kaushalya Yojana (DDU-GKY), National Social Assistance Programme (NSAP), National Rural Drinking Water Programme(NRDWP)?
This item is indeed exceptionally innovative in that it would ensure, in the end, programme outreach as well as programme outcome and put an end to time over-run and cost-slippage. Without going through the depths and breadths of each of the schemes from the angle of programme implementation process, its timelines, working hours, soil conditions ,climatic and seasonal variability, personnel required and actually in position, standard quality norm, relative compensation for each of such functionaries elsewhere, including those in the government, norm set by the National Productivity Council on productivity for such categories of workers etc., it would be unwise to comment on performance criteria for payment, superficially. It might however, be useful to suggest to digitize the functional components in minute details, validate them in field situations in a number of locations and then take decision on them.
Hopefully, this path-breaking model would be useful for other sectors, including those in the government and elsewhere to set in motion performance- based remuneration/compensation system in the country and ultimately to take shape in National Wage Policy.
Purnima, KHOJ, Melghat, Maharashtra
We would like to add that the functionaries in tribal or PESA areas be accountable to Gram Sabhas of the Village rather than the Gram Panchayats as provided under PESA for Scheduled Areas.
Secondly, convergence should flow from the village upwards and a working model of convergence evolved in Maharashtra and more specifically from Amravati district through the JFM programme and then flowed into the post FRA Convergence Committees at the district level that helped in the implementation of the Conservation and Management plans of the Village. These Convergence Committees are now to be set up in all the districts.
Md. Shahadat Hussain, Jamia Millia Islamia, New Delhi
1. I would like to share my experience of Bihar particularly of eastern Bihar that schemes are performing too poorly (MGNREGS, JSY, IAY). Reasons are that there is no people's participation, no awareness about entitlements among common people. As a result, elected representatives run the schemes their own way. There is one gram sewak usually for 3 panchayats, who rarely comes to panchaytas. Most of the work has to be done by the Mukhiya/Pradhan and Ward Members. For almost every activity be it issuing of birth certificate, death certificate, attestation of income certificate, residential proof certificate Mukhiya charges everyone some amount, they say they are occupied with panchayat work most of the time and unable to pursue another vocation.
2. So my opinion is that first optimize the available resources- ensure the availability of gram sewak on panchayat on time. Fix some salary for the Mukhiya, if possible a modest amount for ward members also and then they may be held accountable for the schemes they are implementing. Above all, awareness among common citizens needs to be raised regarding their rights, like right to question, dissent, and entitlements etc.
3. Some time back Bihar government planned to appoint Managers in panchayats with Social Sciences/Rural development background. But it has not been done yet. It may be considered immediately- one manager may be appointed for a halka or 2-3 neighboring panchayats.
D. Rajasekhar, Institute for Social and Economic Change (ISEC), Bangalore
We have undertaken two studies which experimented the impact of performance based incentives on rural development in Karnataka. These two studies may be accessed at http://solutionexchange-un.net.in/ftp/decn/cr/res15061702.pdf and http://solutionexchange-un.net.in/ftp/decn/cr/res15061703.pdf . I will be happy to provide any further assistance in this regard.
Ujjwal Chatterjee, West Bengal
I would like to thank MoRD for undertaking this type of initiative. It is very much important at present condition of PRI system in India. MGNREGA has helped improving rural incomes and create sustainable assets. PRIs however get funds on allotment basis. All fund should be performance based, a good example of this is the current West Bengal Panchayat allotment system based on Performance for Untied fund for the FY 2016-17. All panchayats of West Bengal are set on an examination which is conducted by State Government by third part agency. This the Annual Performance Assessment (APA) and Disbursement Link Indicators (DLIs). There were five MMC (minimum Mandatory Condition) which are applicable for all GPs if any GP qualifying all those conditions then they are eligible for fund which is depend on APA score. The process is facilitated by ISGPP (Institutional Strengthening of Gram Panchyate Program)- a World Bank supported programme. Some of the challenges and recommendations for panchayats are as follows:
· Here a huge task for last tier Panchayats and other PRI bodies is the need for specialist staff with proper remuneration. My recommendation is Central Govt provide some specialist staff for PRI body- one for each Block and two for Zilla Parisad , 2 or more for State control Unit according to programme strength. It is recommended that the specialist must be qualified in HR skills on mobilization.
· There is a need to establish a Panchayat Service Commission (PSC) in each state to ensure recruitment of PRI staff at the district level and below but preference for rural youth because older candidates are not too feasible for rural office. The State Government transfer commission should also be responsible for organising regular transfers (every 3 years) and promotions, conducting appraisals and co-ordinating capacity enhancement initiatives for the staff and at the same time arrange capacity building training and stress management by the expert. All development programmes of the national or state government should go through by the PSC to design parameters of recruitment and rewards/incentives so that parity is maintained at the village/Panchayat/block and district level salaries as well as quality of human resources.
· A strong MIS process like Plan plus, GPMS (West Bengal), GRMS, ME etc. and strong Dashboard for development monitoring may be considered.
Tushar Dash, Vasundhara, Bhubaneswar
I am addressing your last question on models for convergence of vertical (at programme level) and horizontal (at Panchayat level) responsibilities at Gram/Block/District Panchayats.
We have released study reports on ten years of Forest Rights Act in India which are called Promise and Performance Reports. The national report and state reports are available in the website http://fra.org.in/ and http://www.cfrla.org.in/. The study highlights that the bare minimum estimated potential forest area over which community forest rights can be recognized in India (excluding five north-eastern states and J&K) is approximately 85.6 million acres (34.6 million ha). Rights of more than 200 million STs and OTFDs in over 170,000 villages are estimated to get recognized under FRA. In 10 years, only 3 per cent of the minimum potential of CFR rights has been achieved. The study also highlights that recognition of rights over land and community forest resources has created immense potential for livelihoods and employment generation for tribals and forest dwellers through convergence of programs and schemes like MGNREGA, Livelihoods programs. These early gains, observed in few districts of Maharashtra, Odisha, Gujarat, show great potential for replication in other areas. There are many successful examples of Gram Sabhas preparing community based plans for conservation and development of forest lands linking with govt programs and schemes in a convergence mode. Many of these programmes are being implemented by the Rural Development Departments. However, there is a need for developing more effective models for linking Forest Rights Act with programs implemented by RD dept. The potential linkage of Forest Rights Act in RD programs should be included in the training framework and convergence approach.
E. Venkatesu, Hyderabad
For the purpose of getting some ideas and inputs about the human resource integration at Panchayat level, please read a chapter on Functioning of Standing Committees in PRIs, which is a chapter in the book on 'Democratic Decentralisation in India, Experiences, Issues and Challenges edited by E. Venkatesu, published by Routledge, 2016.
Many thanks to all who contributed to this query!
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