Chapter-1 Overview of Gram Panchayats in the State

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Table of Content Sl. No Subject Page Number 1 Chapter 1: Overview of Gram Panchayats in the State 3-16 2 Chapter 2: Profiles of Gram Panchayats 17- 40 3 Chapter 3: Functions Performed by Gram Panchayats 41-69 4 Chapter 4: Process Mapping of Gram Panchayat Functions 60- 90 5 Chapter 5: Functionaries in the Gram Panchayats

91-111

6 Chapter 6: Time and Work sheet of the key functionaries 112-116 7 Chapter 7: Insights from Focus Group Discussions 117-1118 8 Chapter 8: Summary of recommendation 119-125

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Chapter-1 Overview of Gram Panchayats in the State

Section 1: Introduction 1. Introduction to the Time and Work (TAW) Study

The National Institute of Rural Development and Panchayati Raj (NIRD& PR), an apex organization in training, research and policy advocacy in Rural Development and Panchayati Raj related activities, with the support of Ministry of Panchayati Raj has undertaken time and work study for strengthening the Panchayati Raj system. Study methodology, tools and processes in the study were finalized in consultation with the partner organizations egagaged by NIRD & PR. For study in Haryana, Jharkhand Foundation has conducted the study in 8GPs in Haryana. Based on the findings of the study, NIRD& PR will prepare a consolidated volume of reports which would be submitted to the Government of India for making appropriate provisions in the 15th Finance Commission. The insights from the Focus Group Discussions (FGDs) and the interpretation of the data gathered through the schedules are presented underneath along with a separate chapter on suggestions and recommendations.

2. Objectives of the Study: The main objective of the study is to assess the staff requirement at Gram Panchayat (GP) level for performing core functions of GP effectively and efficiently’. The sub-objectives of the study are as follows: To map functions and responsibilities of GPs and related functionaries as per the State Act which

may fall under the following categories (Schedule-1, 2 &3); o Functions devolved by State PR Acts o Functions for which government orders to operationalize the management of devolved

functions (de-jure functions) o Functions which are actually performed by the GPs (de-facto functions).

To map the processes for each of the functions identified above integrating the responsibilities, including those performed by the Line Departments functionaries at the GP level (Convergence) (Schedule-4);

To study the existing GP staffing pattern, qualifications, experience, competencies and skill sets (Schedule-1 &5);

To examine the work as it is done through “Time and Work” study and quantify the work load and ideal requirement of manpower (Schedule 4 & 6);

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Assess and map for process re-engineering (simplification of process and procedure re-engineering) capacity building, and use of ICT by which the work outputs / outcomes can be improved (Schedule-4& FGDs);

Identify the work that can be done through proper outsourcing (Schedule-4& FGDs); Assess and prescribe additional human resources required for effectively handling the work load

estimated by “Time and Work” study, after accounting for improvement in work due to process re-engineering and outsourcing (Schedule-5& FGDs);

Job profile of additional human resources, ideal form of recruitment, qualifications and career path (Schedule-5& FGDs);

Assess quality of services provided by the GPs (FGDs with Citizens); Estimated additional cost for additional manpower and possibilities of meeting such costs

innovatively.

3. Approach to the Study a) Sample – The ‘Time and Work’ study is being carried out in 29 states across the country.

8 GPs from these states were selected by NIRDPR in consultation with Institute of Rural Management Anand (IRMA) based on the nature and size of the GP. Selected GPs were of the mixed category that included PESA, award winning, and aspirational, largely populated, moderately populated, low populated, coastal, urbanized, hilly, or tribal area. Institutions / Organization from each state were chosen by NIRD&PR to undertake the said study in the selected 8 GPs. Jharkhand Foundation has conducted the ‘Time and Work’ study for selected 8 GPs from the state of Jharkhand.

In Haryana, 8-gram panchayats from three districts have been selected randomly applying the criteria adopted nationally. Please find below the list of GPs:

Sl. No. Name of Gram Panchayat Block District Category 1. Bhainsru Kalan Sampla Rohtak Award winning 2. Kahanaur * Kalanaur Rohtak Award winning 3. Karountha * Rohtak Rohtak Highest Population 4. Dhani Laxman Loharu Bhiwani Award winning 5. Pahadi Loharu Bhiwani Hilly area 6. Jharwai* Bhiwani Bhiwani Less population 7. Khurdban Radaur Yamuna Nagar Award wining 8. Damla Jagadadhri Yamuna Nagar Highest population

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b) Data collection tools The tools used for the data collection under the study included FGDs with the Elected Representatives, Employees, NGOs, SHGs and the citizens. FGDs with elected representatives and employees focused on the functions performed and workload whereas the FGDs with SHGs and citizens were based on the quality of services delivered by the GPs. The schedules designed by NIRD& PR for gathering the data were of 6 types namely; a) Information regarding GPs in the state office b) Profiles of GPs c) Functions performed by GPs d) Process mapping of the functions e) Functionaries in the GPs f) Time and workload in the GPs. c) Data collection process

Primary data was collected from Panchayat offices by using the tools designed by NIRD&PR. FGDs were conducted with elected representatives, citizens, SHGs, NGOs etc. Several rounds of interaction with elected representatives and functionaries were done. For the data collection from state level, state election commission and directorate of Panchayati Raj were contacted.

d) Analysis of the data 1. Notes on FGDs and findings were recorded. 2. Entry of primary & secondary data were made in the format provided by NIRD &PR ; 3. Data gaps filling based on interaction of the functionaries and elected representatives

of the respective GPs. 4. Statistical analysis and interpretation of data 5. Preparation and submission of final report.

Section 2: Profile of Gram Panchayats 1. Demographic details Table 1.1: Demographic Details (2011 census)

2.1 State Population

Male 13,494,734 53.24 % Female 11,856,728 46.76 % Total Rural 16509359 65.12%

Urban 8842103 34.88% Total 25351462 2.2 ST

Population Male NA Female NA

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2.3 SC Population

Male 1973294 53% Female 1746815 47%

2.4 BC Male 6800712 53.18% Female 5988538 46.82%

2.5 OC Male 4720728 53.39% Female 4121375 46.61%

From table 1.1 which details out the demographic details of Gram Panchayats, the following inferences can be drawn:

State population, we can see gender wise males are in majority as compare to females. Male population is 53.26% while female population is 46.74%. In last few decades, sex ratio in the state has deteriorated and it has been a concern for everyone. The sex ratio is also similar in all social categories i.e. SC, BC and Other castes. Local governance institutions must think how to check this gender imbalance. Though some data which government published recently shows that child sex ratio has improved due to the efforts of ‘Beti Bachao and Beti Padhao’ initiatives, real picture will come out in the next census only.

Literacy rate of the state is 76.64% male literacy is 84.06% while female literacy is 65.94%. Around 20% literacy gap is consistent from last four decades.

Around one third population lives in urban areas, this shows a rapid urbanization in the state. By next census the urban population may increase close to 40 %. This has also reflected in the sample that out of 8 GPs selected two had to be changed as one of the GPs are now part of a expended municipal corporation and other GPs has become municipal committee.

Caste distribution showcases that backward class category is in majority than schedule caste category. BC population in the state is more than 50% but their representation in the governance both in terms of politics and jobs is much less as compare to the population.

Haryana does not have any ST population. The population of other castes represents the castes falls in general categories which counts

about 35%.

2. Panchayats in the State a. No. of Panchayats:

There are 6186 Gram Panchayats in the state. b. Size of the Panchayats –

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The following pie chart showcases the classification of gram panchayats on the basis of population. The classification is divided among 6 categories and if we the ranking according to population wise:

Highest population density is in the categories 1001-3000 (3309), 3001-5000 (1156), 500-1000 (909) and 5001-10000 (584).

Lowest population is among category of Below 500 (132) and Above 10000 (114). This showcases that population is in between 500-10000 in majority of gram

panchayats.

c. Income Status of the Panchayats – The pie chart details out the annual income-based classification of gram panchayats.

It was observed that majority of gram panchayat had income status among four categories, Up to 0.50 (1907), 1.1-5.0 (1464), 5.1-10.0 (1134) and 10.01-25.0 (1064).

Only few gram panchayats are under the categories of income status: 25.1-50.0 (332), 0.50-1.0 (158) and 50.1-100 (146).

It was also observed that no gram panchayat had income above 101.0

132

909

3309

1156

584114

Population Classification of Panchayats

Below 500500-10001001-30003001-50005001-10000Above 10000

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3. Governance – Table 1.2: Details of Elected Representatives

Elected Representatives by Category (Number)

Particulars OC SC ST OBC+BC

Transg

ender

Men

Wome

n Me

n Wo

men

Men

Wome

n

Men

Wome

n Ward Members 6941 8110 - - 4121 2159 - Sarpanch 1781 1298 836 600 - - 413+597

= 1010 244+417= 661 -

Panchayat Samit 829 582 405 379 - - 499 288 - Zila Parishad 118 91 46 50 - - 54 20 -

*Nomenclature as followed in the State may be used According to the above table 1.2, following inferences can be made:

Ward members, only Schedule Caste and OBC categories presence was there. While in Schedule Caste women are higher in number (8110) and if we look at OBC category male are in majority (4121).

Sarpanch, Other Caste category had the highest number with 1761 men and 1296 women followed by Scheduled Caste with 836 men and 600 women and OBC with 413 men and 246 women.

1907

1581464

1134

1064

332146 0

Income Status of Panchayats

Up to 0.500.50-1.01.1-5.05.1-10.010.01-25.025.1-50.050.1-100101.0 and +

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Panchayat Samiti had 829 men and 582 women in Other Caste category, 405 men and 379 women were Schedule Caste; 499 men and 288 women in OBC category.

Zila Parishad, highest is among Other Caste (118 men, 91 women), OBC (54 men, 20 women), SC (46 men, 50 men).

No data available about the transgender there in any of the elected representatives. Section 3: Human Resources in the gram Panchayats

1. Staff strength Table 1.3: Details of Gram Panchayat Staff in the State (table represents the details of human resource in gram panchayat in the state)

Sl#

Regular Contract Deputation

Name o

f Post/C

ategor

y

Sanctio

ned

Vacant

Scale /

Honor

arium

Staff A

ppointe

d by (C

ode *)

Paid b

y

Sanctio

ned

Vacant

Sca

le / Ho

norariu

m Sta

ff Appo

inted b

y (Code

*)

Paid b

y

Sanctio

ned

Vacant

Sca

le / Ho

norariu

m

Staff A

ppointe

d by (C

ode *)

Paid b

y

1 Gram Sachiv 2237 642 5200-20200+1900GP SSC Dept. Development & Panchayats

2 Chowkidar - - - - - No - - - - 7017 - Rs. 3500/- Home Depart

Dept. Development & Panchayats 3 Tube well Operator - - - - - Yes - - GPs GPs - - - - - *Code: State Public service commission (SPSC) -1, District Collector / ZP -2, District Panchayat officer(DPO) -3

1. Gram Sachiv is a regular job post, sanctioned around 2237 (642 are still vacant). This post’s

recruitment is done by SSC and paid by Department Development and Panchayats. 2. Chowkidar- works as messenger in the Panchayats. Be it to provide information to elected

representatives about the meeting or dissemination of information to the larger village population through drum beating / announcements, this person has an important role in the village. This post is a traditionally filled by Home department and attached to police stations but in present context, they are working in development and panchayat department. The total sanctioned posts are 7017 and no seat is vacant, this post is paid Rs 3500 by Department Development and Panchayats. They are appointed by Home Department.

3. Tube well Operators, they are appointed and paid by gram panchayat on contract basis. There are three kind of tube well operators working in the gram panchayats. First, are regular

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positions appointed by the Public Health Engineering Department (PHED) through department of Drinking Water and Sanitation on regular basis. The second kind of persons are appointed by Gram Panchayats on contract basis. Third category of staff is appointed through contractors empanelled by the PHED. The Development and Panchayats department could not provide the information about the posts.

Staff qualifications and recruitment Table 1.4: Details of GP Staff Qualifications and Skills

Sl. No

Name of Post/Category

Minimum Qualification

Recruitment Authority (Code *)

Skills Required

Skills Possessed

1 Deputy Commissioner IAS UPSC

2. Additional Deputy Commissioner cum Chief Executive Officer, Zila Parishad

IAS/ HCS

UPSC/HPSC

3 District Development and Panchayat Officer (DDPO)

Bachelor or Master’s Degree in any stream

HPSC

4. Block Development and Panchayat Officer (BDPO)

Haryana Civil Services

HPSC

5 Social Education and Panchayat Officer (SEPO)

Bachelor Degree

Development and Panchayat Department through HPSC

6 Gram Sachiv 10+2 State Selection

Commission Knowledge of Computers

Knowledge of Computers

According to table 1.4, it showcases the required qualifications and skills of staff in gram panchayats. Deputy Commissioner is and ex officio head with regards to Panchayati Raj empowered through the Haryana Panchayati Raj Act., 1994. The Deputy Commissioners commonly posted from the IAS cadre

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and recruited by UPSC. District Development Panchayat Officer (DDPO) requires Bachelor/Masters’ degree in any stream. Currently the position is filled with the State Civil Services which is HCS. In some cases, the promoted officers in the Development and Panchayat department are also posted as DDPO preferably who worked as BDPOs. Lastly, Gram Sachiv requires 12th pass out as minimum qualification and are recruited by State Selection Commission. This post also requires computer knowledge as well. However, the other two posts do not specify any special requirement. Deputy Commissioner (DC) do not have much of the role in the operational affairs of gram panchayats but has been granted powers in the State Panchayati Raj act for disciplinary actions against the elected representatives as well as the officials. The DC is also responsible for conducting the election by-elections of panchayats in the direction of State Election Commission in the district. Additional Deputy Commissioner cum CEO Zila Panchayat is the key person in the operational affairs of Panchayati Raj. The post is hold generally by an IAS cadre officer or by a senior state civil services officer. In the chain of administrative approval and sanction of development projects of PRIs, CEO Zila Panchayat is the main authority for all rural development programmes.

2. Capacity building and performance improvement practices a. Capacity building: Table 1.5: from Schedule-1: VI.

Table 1.5: Training for Capacity Development during Last Year Training Area (Subject/theme) Institute(s)

Where Category/Post Number

a) Sustainable Development Goals HIRD, Nilokheri Elective Representative (other than Sarpanch) 769

b) State Level Workshop on GPDP HIRD, Nilokheri Sarpanch 3787 c) Budgeting and Accounting – PFMS

HIRD, Nilokheri Sarpanch 143 d) Women's issues and empowerment and Social Security

HIRD, Nilokheri Women Sarpanches 113 e) Basic computer Training & PES HIRD, Nilokheri Gram Sachivs 281 f) Budgeting and Accounting-PFMS HIRD, Nilokheri Gram Sachivs 560 g) Basic Functional / Refresher Programmes

HIRD, Nilokheri Zila Parishad 100 Total funds Apportioned for Capacity Building

Details not available with the state Funds utilised Details not available with the state

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The above table (1.5) showcases the Training conducted last year for Capacity Development. All the training’ conducted at HIRD, Nilokheri.

It can be observed that different post officials were given training on different themes. Elected Representatives (769) were given training on Sustainable Development Goals (SDGs).

Training on state level workshop on GPDP was done with 3787 Sarpanch. While 143 sarpanch were trained in Budgeting and Accounting-PFMS, the same training was

also conducted with 560 Gram Sachivs. They (gram sachivs) were further trained in basic computer training and PES but only 281 sachivs. Zila Parishad (100) were given training on Basic Functional/Refresher Programmes.

However, data not available on total funds allocated for Capacity Building and funds utilized. b. Other Trainings and Capacity Building Interventions Required to Build Competency

was conducted with Rural Development Senior Management officials. It was training of the trainers (ToTs) to build their competency and enhance capacity to train further.

c. Career paths: Activities for Enhancing Staff Performance and Productivity, no data was available.

d. Outsourcing of activities: no data was available regarding this. Though the HIRD has empanelled trainers and engage them for training on various thematic areas. It has pool of trainers’ district wise.

3. Assuring quality of public services

Table 1.6: State Initiatives towards Assuring Quality of Public Services

Guarantee of Services to Citizens (Within stipulated time)

Status (Exist -1, Doesn’t exist -2 )

Number of Applications received

Applications resolved

Citizen charter 2 Not available Not available RTI 1 Not available Not available Service Delivery Act 2 Not available Not available

Table 1.6 indicates the states initiatives towards assuring the quality of public services. These public services are provided by Government to citizen to protect their rights. However, except RTI (Right to Information) no other services were in existence in gram panchayat. No data was available regarding the number of applications received against particular public service and the cases/applications that were resolved.

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4. GP Functions (Table 1.7: from Schedule-1: X. GP functions in Flagship Programs)

Table 1.7: GP Functions in Flagship Programs

Source Programs Role assigned to GP Role Performed by GP

Work Load (Low -1, Moderate -2, Heavy -3 )

Centrally Sponsored Fourteenth Finance commission (FFC)

Monitoring & Execution of Works

Monitoring & Execution of

Works 1

State Sponsored

1. State Finance Commission

2. Haryana Gram Vikas Fund

3. HRDFA board fund

Monitoring & Execution of Works

Monitoring & Execution of

Works 3

Others (e.g., externally funded projects; CSR projects, etc)

NA NA NA NA

According to the table 1.7, following inferences can be drawn

The role assigned and performed by gram panchayat was monitoring and execution of work, which was same for programs sponsored by both central and state government.

Though the role was same but the work load differs as it was heavy in state sponsored programs as compared to centrally sponsored programs.

Lastly, there was only one central sponsored program i.e. FFC which the GP was assigned to execute while state sponsored programs were State Finance Commission, Haryana Gram Vikas Fund and HRDFA board fund, for which GP was assigned the roles.

5. Needs and priorities for improving performance of GPs: Narrative/description of data from Schedule-1: Part 3: GP functions and HR related issues (To be filled based on thorough discussion with State level officials)

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Table 1.8: GP functions and HR related issues Area Needs & Priorities GP Functions Related Preparation of annual plans for the development of the Panchayat area.

Preparation of annual budget and submission thereof to grant gram Sabha in its meetings for consideration.

Power for mobilizing reliefs in natural calamities. Removal of encroachments on public place. Organizing voluntary labour and contribution for community works. Maintenance of essential statistics of villages.

HR Related Gram Panchayats recommends name of functionaries such ASHA worker, Anganwadi worker, Chowkidar and Sweepers to be appointed by the various departments.

Policies Related to PRIs The policies of Haryana Panchayati Raj Act 1994, applies to PRI.

GP Functions – Core Functions under Haryana Panchayati Raj Act 1994, is followed by Gram Panchayats.

GP Functions – Optional

The gram panchayats also take up social issues which are not entrusted to them directly by law such as disputes among the citizens etc, which are related to police and no function performed under home department is in the list of functions to be devolved to the PRIs.

GP Functions – Devolved to GP

There are 29 functions to be devolved to Gram Panchayat. Till now, 4 Departments have devolved their 3Fs to Gram Panchayats namely Health Department, Women and Child Development Department, Forest Department and Transport Department.

GP Functions – Centrally Sponsored Schemes

The fund received through Fourteenth Finance commission (FFC) to GPs are utilized by GPs for rural development works which includes construction of streets, Pavements, repair works etc.

According to the above Table 1.8, there are multiple needs and priorities of Gram Panchayat functions for example preparing annual plans for development and annual budget for considerations, mobilizing power, removal of unlawful encroachment on public land, voluntary labour and as per the labour law given by the Indian Government, maintaining the village statistics.

As per the state government there is no HR issues but data shows that for 6186 GPs, there are only 2237 sanctioned posts for Panchayat Secretary which is a key functionary, further 642

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posts are vacant which practically provides average one secretary for 4 GPs with 25% of the time of a secretary is available to GPs which is huge constraint in the functioning of the GPs. Secondly secretary not only have the administrative responsibilities but also handles the financial responsibilities. But the qualification of the GP secretary does not match with requirement of accounting function. The Sarpanch has to run around to get time from the secretary.

The Haryana Panchayati Raj Act, 1994 applies to PRI and the functions under the Act are followed by Gram Panchayats. There are 29 functions to be devolved to Gram Panchayat and till now Health Department, Women and Child Development, Forest and Transport Department have devolved selected functions to the Gram Panchayat.

Rural Development works such as construction of streets, pavements etc. are done by Gram Panchayat through the funds given by FFC (Fourteenth Finance Commission). These development works and schemes carried out by Gram Panchayat are centrally sponsored.

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Chapter 2: Profiles of Gram Panchayats Section 1: General Information 1. Give brief description of the number of GPs in the State, and if possible, details of different

types of GPs as per criteria used in the study, and how the GPs are selected for this study. Table 2.1: Details of Sample GPs

Table 2.1: Details of Gram Panchayats

Sl. Gram Panchayat GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1.1 Gram Panchayat Code A H S A L A A L 1.2 Gram Panchayat Dhani Luxman Pahari Jharwai Bhainsru Kalan Karountha Kahnaur Khurdban Damla

1.3 Year of Creation of Gram Panchayat 1978 1957 1987 1952 1952 1956 1957 1952

1.4 No. of Revenue villages under the Gram Panchayat 1 6 1 1 1 1 1 1

1.5 Revenue Villages under the Gram Panchayat Dhani Luxman Pahari Jharwai Bhainsru Kalan Karountha Kahnaur Khurdban Damla

1.6 Block/ Mandal Panchayat Loharu Loharu Bhiwani Sampla Rohtak Kalanaur Radaur Jagadhari 1.7 Zilla Panchayat Bhiwani Bhiwani Bhiwani Rohtak Rohtak Rohtak Yamunanagar Yamunanagar 1.8 Type of GP ( PESA -1, General -2) 2 2 2 2 2 2 2 2

1.9 Does GP function from its own building (Yes- 1, No - 2)

2 1 1 1 1 1 1 2

1.10 Geographical area of GP (in sq. Kms.): 2.61 Sq. Km 20 Sq. Km 8.11 Sq. Km 13.5 Sq. Km 20 Sq. Km 27.62 Sq. Km 4.73 Sq. km 10 km

1.11 Year of last GP election held 2016 2016 2016 2016 2016 2016 2016 2016

1.12 Category of the Panchayat (as per methodology of the study)

Award Winning Hilly Area Less Population

Award Winning Highest Population Award Winning Award Winning Highest Population

Table 2.1 represents the details of 8 selected Gram Panchayats. Majority of the Gram Panchayats such as Kahnaur, Pahari, Dhani Luxman and Jharwai were formed in 1956 while in 2016 namely Khurdban and Damla were formed. Out of eight, seven Gram Panchayats has only one revenue village while one

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Gram panchayat has six revenue villages under it. Three panchayats belong to Bhiwani and Rohtak districts each while other two belong to Yamuna Nagar. It can be observed that Kahnaur is the only Gram Panchayat with widespread geographical area among others. It has 27.62 Sq. Km and with smallest area of 4.73 Sq. km of Khurdban. Furthermore, majority (6 GPs) of the Gram Panchayats function from its own building. The last election was held in 2016 in all the Gram Panchayats. According to the methodology of the study, Dhani Luxman, Bhainsru Kalan and Kahnaur fall under award winning category while Pahari GP belongs to Hilly area. Jharwai GP belongs to less populated category whereas Karountha comes under highly populated category.

2. Details of population from section-2 of Schedule-2 Table 2.2: Caste Wise and Gender Wise Distribution of Population of Sample GPs

Particulars GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average OC- Male 222 973 421 1319 2343 2024 139 NA 1063 OC- Female 208 804 394 1199 1632 1794 127 NA 880 OC- Total 430 1777 815 2518 3975 3818 266 NA 1943 BC- Male 98 472 19 98 253 685 570 NA 314 BC- Female 96 405 14 82 550 560 548 NA 322 BC- Total 194 877 33 180 803 1245 1118 NA 636 SC- Male 120 349 72 255 581 1967 436 745 566 SC- Female 134 342 68 254 498 1705 420 634 507 SC- Total 254 691 140 509 1079 3672 856 1379 1072 Total – Male 439 1873 512 1470 3159 4676 1145 5521 2349 Total – Female 439 1765 476 1246 2643 4059 1095 3138 1858 Transgender, if any 0 0 0 0 0 0 0 0 Total Population 878 3638 988 2716 5802 8735 2240 8659 4207

Table 2.2 indicates the details of population distributed caste wise and gender wise across 8 Gram Panchayats. According to population strength and gender composition below inferences can be drawn: Population rank wise we can see the order as 1. Kahnaur (8735), 2. Damla (8659), 3. Karountha

(5802), 4. Pahari (3638), 5. Bhainsru Kalan (2716), 6. Khurdban (2299), 7, Jharwai (988) and 8. Dhani Luxman (878).

Gender distribution showcases that the Gram Panchayats with less than 50 percent of women are 1. Damla (3138 females over 5521 males). 2. Kahnaur (4059 females over 4676 males) 3. Karountha (2643 female over3159 male) 4. Pahari Gram panchayat (1765 number of female and 1873 males) 5. Bhainsru Kalan (1246 females over 1470 males) 6. Khurdban (1038 females and 1216 males). The least populated panchayat are Jharwai and Dhani Luxman.

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Caste wise distribution among the sampled Gram Panchayats. Kahnaur panchayat have OC caste (3818), SC caste (3672) and BC caste (1245). Pahari panchayat OC (1777), BC caste (877) and SC caste (691). Jharwai Gram Panchayat OC caste (815), SC caste(140) and BC caste (33, lowest among all). The lowest is the Dhani Luxman (430 OC caste, SC caste with 254 and BC caste 194). However, Khurdban and Damla don’t provide any such details regarding caste. Thus, the total population is the only number available for these two.

Inferences: Interestingly, It was observed that given the fact that Supreme Court has declared third gender as part of society- neither of the gram panchayats reported about any transgender population being present in their jurisdiction.

Another observation was that there was no presence of population under Scheduled Tribes. Table 2.3: Caste Wise and Gender Wise Literacy Percentage of Population in Sample GPs

SN Particulars GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average 1 OC Male NA 94 NA NA NA NA NA NA

OC Female NA 90 NA NA NA NA NA NA OC Total NA NA NA NA NA NA NA NA

2 BC Male NA 92 NA NA NA NA NA NA BC Female NA 90 NA NA NA NA NA NA BC Total NA NA NA NA NA NA NA NA

3 SC Male NA 90 NA NA NA NA NA NA SC Female NA 87 NA NA NA NA NA NA SC Total NA NA NA NA NA NA NA NA

4 Total Literacy %: Male 74 92 80 84 81 73 70 66.02 77.50

Total Literacy %: Female 48 89 65 63 59 58 30 56.27 58.53

Total Literacy %: Total 60.93 90.5 73 74 70 66 67.33 62.48 70.53

According to above Table 2.3 the literacy percentage with reference to caste and gender can be seen. It was observed that:

Partial Data -Damla Panchayat provided data for OC caste male category only. Data available- Pahari Gram Panchayat provided all data according to gender and caste. According to the data, Dhani Luxman 74 percent male were literate and only 48 percent

female, Jharwai 80 percent male and 65 percent female, Bhainsru Kalan 84 percent male were literate and 63 percent female, Karountha 81 percent male and 59 percent female were literate, kahanaur had 73 percent literate male and 58 percent female who were literate,

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Khurdban 70 percent male and 30 percent female only, Damla had 74 percent male and 64 percent female literacy rate

It can be inferred that data collection and monitoring of literacy rate are areas where improvement is required.

For Pahari Gram Panchayat it was noted that around 90 percent of its population in all caste categories – OC, BC and SC were literate. 90 percent of women in OC and BC and 87 percent of SC category were found to be literate which indicates that they were almost at par with men literacy percentage.

Except for Pahari, all other gram panchayat has significant gap among male and female literacy.

Table 2.4: Caste Wise and Gender Wise Number of Voters in Sample GPs SN Particulars GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average 1 OC : Male 223 900 300 NA NA NA NA NA

OC : Female 209 693 280 NA NA NA NA NA OC : Total 432 1593 580 NA NA NA NA NA

2 BC : Male 20 300 NA NA NA NA NA NA BC : Female 18 327 NA NA NA NA NA NA BC : Total 38 627 NA NA NA NA NA NA

3 SC : Male 96 320 30 NA NA NA NA NA SC : Female 104 206 40 NA NA NA NA NA SC : Total 200 526 70 NA NA NA NA NA

4 Total Voters: Male 339 1520 330 1157 2363 3319 854 3864 1718 Total Voters: Female 331 1226 320 950 1987 2881 728 2198 1328 Total Voters: Total 670 2746 650 2107 4350 6200 1582 6062 3046

The table 2.4 gives the details regarding number of voters in sampled Gram Panchayats, caste wise and gender wise distribution is given for further details.

According to the data, the highest numbers of voters in Kahnaur (6200 with 3319 male and 2881 female), followed by Damla 6063 ( 3864 Male & 2198 Female), Karountha 4350 (2363 male & 1987 female), Pahari (2746 with 1520 male and 1226 female), Bhainsru Kalan (2107 with 1157 male and 950 female only).

Dhani Luxman panchayat and Jharwai panchayat had lowest number of voters. Interestingly SC category across different panchayats has a greater number of female voters

than male. Panchayat like Khurdban and Damla had not any details regarding the voters’ distribution

across their area.

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Table2.5: Caste Wise Distribution of House Holds in Sample GPs SN Particulars GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average 1 Number of Households: OC 106 607 120 484 NA 771 NA NA 417.6 2 Number of Households: BC 21 247 6 40 NA 249 NA NA 112.6 3 Number of Households: SC 28 106 32 102 NA 737 173 276 201 4 Number of Households: Total 155 960 158 626 1192 1757 448 1643 884.12

Table 2.5 details out the caste wise distribution of households among the panchayats. Dhani Luxman Panchayat with 155 households is lowest panchayat followed by Jharwai

panchayat (158) Pahari gram panchayat has 960 households, Kahnaur has 1757 households, Bhainsru Kalan

(626) and Karountha with 1192 households. Damla panchayat had highest number of households (1800) but the distribution among caste

category was not available. Followed by Khurdban panchayat (425 total households). Karountha GP did not provide any bifurcation details of caste wise household. No household of ST population in either of the panchayats.

Table 2.6 Caste breakup of Ration Card holders

SN Particulars GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Number of Ration Cards: OC 100 690 NA NA NA NA NA NA 2 Number of Ration Cards: BC 20 84 NA NA NA NA NA NA 3 Number of Ration Cards: SC 27 26 NA NA NA NA NA NA 4 Number of Ration Cards: Total 147 800 152 76 1172 2365 425 1800

Table 2.6 indicates the ration card holders (caste-wise) in the selected Gram Panchayats. Highest number of ration card holders was in Kahnaur with 2365, followed by Damla with

1800. However, Kahnaur and Damla do not provide the details of caste wise distribution and so was

Khurdban Panchayat (425), Karountha (1172), Jharwai panchayat with 152. Lowest card holder was in Bhainsru Kalan GP with 76 with no details of caste wise distribution. Pahari and Dhani Luxman panchayat do provide the details.

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Table 2.7: Profile of Elected Representatives of Gram Panchayat SN Parameter GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8 Average 1 Gender – Male

Male 5 8 5 5 9 10 5 14 7.62 Female 3 4 3 6 8 10 6 7 5.87

2 Age (in years) < 35 6 9 4 5 9 13 8 7 7.62 36 – 60 2 3 3 5 8 7 3 5 4.5

60 0 0 1 1 0 0 0 0 0.25 3 Qualification

Up to 10th 7 9 4 9 14 15 7 16 10.12 Inter & Degree 1 3 4 1 0 5 2 3 2.37 PG & Professional 0 0 0 0 0 0 2 2 0.5

4 Caste Category SC 2 2 2 2 4 7 5 5 3.62 BC 1 2 1 2 2 7 3 17 4.37 OC 5 6 5 5 11 0 0 0 4

5 Reservation Category SC 2 2 2 2 4 7 5 5 3.62 BC 6 10 1 1 1 2 3 14 4.75 Transgender 0 0 0 0 0 0 0 0

6 Sarpanch OC 1 - - - 1 - - - 0.25 BC - - - - - - - 1 0.125 SC - 1 1 - - - - - 0.25 Transgender - - - - - - - - -

7 Committee Chair OC 4 8 5 5 10 0 0 0 4 BC 1 2 1 2 2 7 3 13 3.87 SC 2 1 1 2 4 7 5 5 3.37 Transgender 0 0 0 0 0 0 0 0

8 Total Committees 5 5 5 6 5 6 - 5 4.62 Table 2.7 represents the profile of elected representatives of Gram Panchayat.

Kahnaur gram panchayat had highest number of representatives (10 male and 10 females) followed by Damla with 14 males and 7 females.

Pahari and Dhani Luxman were among the lowest number of representatives with 5 males and 3 females.

Overall, Gram panchayats had around 8-20 representatives which were at least qualified up to 10th, few were qualified till 12th and degree and very little had professional/PG degrees. On the caste basis, mostly belonged to BC caste followed by SC caste and few were of OC caste.

Schedule Tribe caste was none in caste basis and reservation basis as well.

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No presence of transgender population. Section 22 of Haryana Panchayati Raj Act, 1994 provisions to constitution of sub committees for effective delegation and devolution of powers and functions within the Panchayati Raj System. Three committees are constituted in all the gram panchayats. The local committee is formed in the villages of a GP has more than one revenue villages as pert of the GP. Details of Sub Committees

Name of the committee Membership Function /subject Remarks Production Sub Committee

Five members with Sarpanch being ex-officio Chairperson Agriculture production, Rural Industries, Animal husbandry, Only on paper, no other records found

Social Sub Justice Committee Five members with any members elected as Chairperson, one women member and SC member must

Promotion of Socio, economic, political, and other interests of SC, BC and other weaker sections Protection of these communities from social injustice Welfare of women and children

Only on paper, no other records found

Amenities Sub Committees Five members with Sarpanch being ex-officio Chairperson

Health, education and public works Only on paper, no other records found Local Committee Elected ward member of concerned villages and Sarpanch being the ex-officio Chairperson

Local planning and monitoring of development works in the villages as part of GP. Not formed in any of the GP as none of the GP in sample has more than one villages as part of the GP.

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Table 2.8 indicates the resource mapping of Gram Panchayats. 50 percent of the Gram Panchayat spent the allocated money as granted by Government of

India and are spent on XIV FFC Funds and MGNREGS only. Apart from the mentioned two categories, there was no expenditure on any other. Kahnaur panchayat was the panchayat who spent more in actual (overall) than the grant given

to them i.e. they were given 26 lacs and their total actual expenditure was 41 lacs. The extra 7 lac was spent on MGNREGS. Followed by Karountha with 20 lacs grant and spending 21 lacs.

Khurdban panchayat did not provide any details regarding the actual spent.

Table 2.8: Gram Panchayat Resource Mapping: Grants from Government of India (2016-17) (Amount in Rupees) SN Details of Grants from GoI

GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8 Average

1 XIV FFC Funds: Allocation 14 lacs 2.65 lacs 1.54 lacs 10.8lacs 20.4 lacs 26.8lacs 10.08 lacs 32 lacs

XIV FFC Funds: - Actual Receipt 14 lacs 2.65 lacs 1.54 lacs 10.8 lacs 20.4 lacs 34.8 lacs 10.08 Lacs 32 lacs

% of Receipts in Allocation

2 BRGF: Allocation 0 0 0 0 0 0 NA NA

BRGF: - Actual Receipt 0 0 0 0 0 0 NA NA


3 MGNREGS Allocation 6.5 lacs 3.68 lacs 1.46 lacs 12.1 lacs 0 0 NA NA

MGNREGS- Actual Receipt 6.5lacs 3.68lacs 1.46lacs 0 0 7.06lacs NA NA


4

NRLM Allocation 0 0 0 0 0 0 NA NA

NRLM - Actual Receipt 0 0 0 0 0 0 NA NA


Any other Allocation 0 0 0 0 0 0 0 NA

Any other Receipt 0 0 0 0 67243 0 0 NA

Total Allocation 2050000 633000 3002000 2290000 2040000 2680000 1008000 3200000 2112875 Total - Actual Receipt 2050000 633000 3002000 2290000 2115000 4190000 1008000 3200000 2311000

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Table 2.9: Gram Panchayat Resource Mapping: Grants from State Government (2016-17) (Amount in Rupees)

SN Details of Grants from State Government

GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8

1

SFC Funds Allocation 1.76lacs 4.6lacs 6lacs 2.9 lacs 3.4 lacs 0 Info not Provided Info not Provided SFC Funds - Actual Receipt 1.76lacs 4.6lacs 6lacs 2.9 lacs 3.4 lacs 12.6 lacs Info not Provided Info not Provided % of Receipts in Allocation Info not Provided Info not Provided

2

Incentive Grants Allocation 0.5lac 1.5lac 0 3 lac 2lac 3lac Info not Provided Info not Provided Incentive Grants - Actual Receipt

0.5 lac 1.5lac 0 3 lac 2lac 3lac Info not Provided Info not Provided % of Receipts in Allocation Info not Provided Info not Provided

3

Surcharge on Stamp duty Allocation 0 6lacs 0.4 lac 0 0 0 Info not Provided 14 lacs Surcharge on Stamp duty - Actual Receipt

0 6lacs 0.4lac 0 0 9.3lac Info not Provided 14 lacs


4 Any other Allocation 0 0 3.5lacs 4.1lac 3.3lacs Info not Provided Info not Provided Info not Provided Any other - Actual Receipt 0 0 3.5lacs 4.1 lac 3.3lacs 16.8lacs+ 20lacs+ 10.9lacs

Info not Provided Info not Provided Table 2.9 details out resource mapping of the grants from state government.

Majority of the gram panchayats (6 GPs) spent the allocated grant in different areas namely SFC Funds, Incentives, Surcharge on stamp duty etc.

Khurdban panchayat detailed out not applicable to all categories. Kahnaur panchayat provided that the SFC fund and surcharge on stamp duty did not have any

allocation but still there was expenditure in these two areas.

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Table 2.10: Gram Panchayat Resource Mapping: - Potential and Actual Collection of Revenue from Own Sources (2016-17) SN Details of Revenue from Own Source GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8

1

House/ Property Tax - Potential 3050 0 2960 - 0 20000 30000 Info not Provided House/ Property Tax - Actual 40 800 0 1200 0 15840 Info not Provided Info not Provided

2

Water Tax - Potential 0 0 - - 0 0 Info not Provided Info not Provided Water Tax - Actual 0 0 - - 0 0 Info not Provided Info not Provided

3

Professional Tax - Potential 0 0 - - 0 0 Info not Provided Info not Provided Professional Tax - Actual 0 0 - - 0 0 Info not Provided Info not Provided

4

Drainage Tax - Potential 0 0 - - 0 0 Info not Provided Info not Provided Drainage Tax - Actual 0 0 - - 0 0 Info not Provided Info not Provided

5

Fines on stray cattle - Potential 0 0 - - 0 0 Info not Provided Info not Provided Fines on stray cattle - Actual 0 0 - - 0 0 Info not Provided Info not Provided

6

Certificates issue fees - Potential 0 0 - - 0 0 Info not Provided Info not Provided Certificates issue fees - Actual 0 0 - - 0 0 Info not Provided Info not Provided

7

Trade Licence Fee - Potential 0 0 - - 0 0 Info not Provided Info not Provided Trade Licence Fee - Actual 0 0 - - 0 0 Info not Provided Info not Provided

8

Rents/auctions/leases - Potential 0.56lac 0 - 9.9 lacs 0.37 lac 6.8 lacs Info not Provided Info not Provided Rents/auctions/leases - Actual 0.56lac 0 - 9.9 lacs 0.37 lac 12.7 lacs Info not Provided 7.5 lacs

9 Library cess - Potential 0 0 - - 0 0 NA NA

Library cess - Actual 0 0 - - 0 0 NA NA

10

Royalty on minor minerals - Potential 0 0 - - 0 0 NA NA Royalty on minor minerals - Actual 0 0 - - 0 0 NA NA

11

Market fee (cattle, agriculture etc) - Potential 0 0 - - 0 0 NA NA Market fee (cattle, agriculture etc) - Actual 0 0 - - 0 0 NA NA

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12

Vehicle tax/Pollution cess - Potential 0 0 - - 0 0 NA NA Vehicle tax/Pollution cess - Actual 0 0 - - 0 0 NA NA

13

Minor forest produce cess - Potential 0 0 - - 0 0 NA NA Minor forest produce cess - Actual 0 0 - - 0 0 NA NA

14

Toll tax and bridge tax - Potential 0 0 - - 0 0 NA NA Toll tax and bridge tax - Actual 0 0 - - 0 0 NA NA

15

Quarrying and mining - Potential 0 0 - - 0 0 NA NA Quarrying and mining - Actual 0 0 - - 0 0 NA NA

16

Donations - Potential 0 0 - - 0 0 NA NA Donations - Actual 0 0 - - 0 Labour in Kind NA NA

17

Entertainment tax - Potential 0 0 - - 0 0 NA NA Entertainment tax - Actual 0 0 - - 0 0 NA NA

18 Others - - Potential 0 0 - - 0 0 NA NA

Others - - Actual 0 0 - - 5239 20586 NA NA Table 2.10 details out the potential and actual revenue collection from own sources of gram panchayats:

50 percent of gram panchayat generate revenue from rents/auctions/leases. Revenue through house/property tax: Dhani Luxman GP potential revenue is 3050 and actual

is 40, Khurdban GP potential is 30000 while actual is Not Applicable while Pahari GP is total reverse of Khurdban potential is 0 and actual revenue is 800.

Thus, the difference can be seen among gram panchayats and within potential and actual revenues.

Only Kahanaur GP collects revenue through donation (labor in kind). Karountha (5239) and Kahanaur GP (20586) have other sources of revenue as well.

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Table 2.11: Availability of Infrastructure Facilities with Gram Panchayats (2016-17) Sl.No Infrastructure Facilities GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8

1

Ownership of Building - Own Yes Yes Yes Yes Yes Yes Yes Yes Ownership of Building - Rented No No No No No No No No

2

Type of Building – Pacca Yes Yes Yes Yes Yes Yes Yes Yes Type of Building – Kacchha No No No No No No No No

3 Seating Capacity of Meeting Hall 50 150 100 120 30 500 60 500

4 Number of Computers 0 0 0 0 1 0 1 1

5 Having Internet Connection No No No Mo No No Yes No

6

Number of Printers: Inkjet 0 0 0 0 1 0 NA Number of Printers: laser 0 0 0 1 0 0 1 1 7 Number of Projectors 0 0 0 0 0 0 NA NA

8

Details of software Packages (Insert rows s required) 0 0 - 0 0 0 NA NA 9 Number of two wheelers 0 0 0 0 0 0 NA NA 10 Number of cars/jeeps 0 0 0 0 0 0 NA NA 11 Number of Trucks 0 0 0 0 0 0 NA NA

12

Schools with Students Strength: Primary 62 67 14 63 133 327 100 NA Schools with Students Strength: Secondary 0 120 12 - 140+46 483 NA 250 Schools with Students 36 0 - 149 59+74 345 400 NA

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Strength: High School

13 Number of Fair Price/PDS Shops 1 1 1 1 2 3 1 3

14 Number of Anganwadis 1 5 1 4 8 11 3 7 15 PHC Sub Centre 0 0 0 1 1 1 NA 1 16 Number of Bank Branches 0 0 0 1 1 2 NA 3 17 Number of Cooperatives 0 0 0 0 0 1 1 1

18

Number of SHGs 0 5 1 10 0 20 NA NA Total Membership in SHGs 0 56 10 111 0 242 NA NA

19

Seating Capacity of Village Community Hall 0 0 1 & 150 3 & 300 3 1 & 500 1000 1 20 Community Library 0 0 0 0 0 1 NA NA

21 Any others (specify)

SC, BC Choupal & Varadh Ashram - MSSK-1 8 8 NA NA According to the data in Table 2.11 shows the infrastructure facilities available, following inferences can be drawn:

All gram panchayats have their own pacca building. Most of the GPs were missing library, computer and internet facility, SHGs, anganwadi etc.

Seating capacity ranges from 30-500; 30 seats being lowest of Karountha GP, Dhani Luxman (50), Khurdban (60), Jharwai (100), Bhainsru Kalan (120), and Pahari (150). Kahanaur and Damla GP had highest seating capacity with 500.

Only Karountha, Khurdban and Damla had computer facility available (one each) and Khurdban GP is the only panchayat with internet facility.

Inkjet Printer only in Karountha, Laser printers in only Bhainsru Kalan Khurdban and Damla GP.

None of the GPs had projectors, software packages, two wheelers, car/jeep or truck facility.

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Kahanaur GP has the highest number of students at primary (327), secondary (483) and high school level (345) and only GP to havr a community library.

Damla GP had presence of only secondary level schooling details while Khurdban and Bhainsru Kalan doesn’t have details on secondary level. Jharwai also missing out the high school level details.

Five GPs (Dhani Luxman, Pahari, Jharwai, Bhainsru Kalan and Khurdban) have one PDS shop each, two GPs (Kahanaur and Damla) have three PDS shops and one GP (Karountha) have two PDS shop.

Number of aaganwadis highest to lowest: Kahanaur (11), Karountha (8), Damla (7), Pahari (5), Bhainsru Kalan (4), Khurdban (3) and Dhani Luxman & Jharwai with 1 aaganwadi each.

50 percent GPs (four GPs) have PHC sub centers and SHGs. Four GPs have bank branches and three have cooperatives set up in the area.

Kahanaur (20 & 242) and Bhainsru Kalan (10 & 111) had highest number of SHG and membership while Dhani Luxman, Karountha, Khurdban and Damla details out the absence of SHG and membership.

Table 2.12: Details of Expenditure of Sample GPs (2016-17) (Amount in Rupees) SN Items of Expenditure GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8 1 Staff salary 0 0 0 0 0 0 NA NA 2 Assets creation- roads, sanitation, drinking water etc

46000 0 146000 0 2427999 10000000 NA NA

3 Maintenance and Operational expenses

0 0 0 1091778 264815 500000 NA NA

4 Honorarium / expenses for elected representatives

0 0 0 94908 0 0 NA NA

5 Administration/ establishment costs 0 0 0 0 40921 0 NA NA

6 Others 0 0 32200 0 51787 1071926 NA 7 Latest Audit Certificate (for the Year _______)

2016-17 No 2016-17 2016-17

Table 2.12 represents the expenditure details of GPs:

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50 percent of GPs; Dhani Luxman (46000), Jharwai (146000), Karountha (2.4 lacs) and Kahanaur (1cr) were the only GPs spent on assets creation like roads, sanitation etc.

Bhainsru Kalan (10.9 lacs), Karountha (2.6 lacs) and Kahanaur (5 lacs) spent on maintenance and Operational expenses.

Bhainsru kalan GP is the only one to spent on Honorarium and Karountha is he only GP to spent on administration.

Only three GPs disclosed their last year of audit (2016-17); Dhani Luxman, Bhainsru kalan and Karountha.

Dhani Luxman spent only on asset creation and Khurdban GPs showed their expenditure as ‘other’ category, rest there are no expenditures shown.

Staff salary expenditure is not disclosed by any of the GPs. Pahari and Damla GPs have not disclosed any expense details.

Table 2.13: Functionaries Mapping of Gram Panchayats (2016-17) SN Particulars of Functionaries


1

Designation Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gender (Male-1; and Female-2 )

1 1 1 1 1 1 1 1

Nature of Appointment 1 1 1 1 1 1 1 1 Working with this GP since (MM/YYYY)

Sep-17 Aug-15 Dec-17 Mar-18 Feb-16 Jan-18 2015 Jan-16

2

Designation Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Gender (Male-1; and Female-2 )

2 1 1 2 1 2 1 1


06. 10.11 8 08.08 6 .09.16 Apr-06 March-05 Aug-06 Sep-17 Aug-05

3

Designation Pump Operator Pump Operator

Pump Operator Pump Operator



Gender (Male-1; and Female-2 ) 1 1 1 1 1 1 1 1

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Oct-16 Apr-08 Sep-16 Apr-16 Mar-05 Apr-17 2015 Dec-17

4

Designation Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Gender (Male-1; and Female-2)

1 1 1 1 1 1 1 1


Mar-07 Feb 11 Dec-11 Jan-16 Apr-94 May-07 Mar-16 2014

Table 2.13 showcases the functionaries of Gram Panchayats such as their designation, nature of appointment, gender, joined GP:

80 percent of GPs (six GPs) have Gram Sachiv while the other two GPs did not have Gram Sachiv.

All the Gram Sachiv was male and no female is seen at this position thus, females are not seen at higher positions.

It is inferred that females are not at lower position but also their presence is missing at higher position as well.

Table 2.14: Positions/Posts Sanctioned and Actual in Position in Gram Panchayats (2016-17) SN Position of Posts Sanctioned and Vacant


1

Position /Post Gram Sachive Gram Sachive

Gram Sachive Gram Sachive



Designation of recruiting authority HPSC HPSC HPSC HPSC HPSC HPSC HPSC HPSC

Sanctioned Strength 1 1 1 1 1 1 1 1 Actual number in position Part time Part time Part time Part time Part time Part time Part time Part time Vacant Positions 1 1 1 1 1 1 1 1

2

Position /Post Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Designation of recruiting authority

Home Dept. Home Dept. Home Dept. Home Dept. Home Dept. Home Dept. Home Dept. Home Dept.

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Sanctioned Strength 1 1 1 1 1 1 1 1 Actual number in position 1 1 1 1 1 1 1 1 Vacant Positions 0 0 0 0 0 0 0 0

3

Position /Post Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Designation of recruiting authority

Gram Panchayat Gram Panchayat




Sanctioned Strength 2 5 2 5 6 10 5 10 Actual number in position 1 4 2 4 4 6 4 8 Vacant Positions 1 1 0 1 2 4 1 2

4

Position /Post Pumb Operator Pumb Operator

Pumb Operator Pumb Operator



Designation of recruiting authority PHED+ GP PHED+ GP PHED+ GP PHED+ GP PHED+ GP PHED+ GP PHED+ GP PHED+ GP

Sanctioned Strength 3 3 1 3 3 4 2 4 Actual number in position 1+2 1 0 1+2 1+2 2+2 0 2 Vacant Positions 0 2 1 0 0 0 2 2

Table 2.14 showcases the posts and position sanctioned and the actual position in Gram Panchayat, this will help in understanding the lack of Human resource and the gaps that needs to be bridged.

1. Panchayat Sachiv is main functionary in the GP. None of the GP has a dedicated Panchayat secretary. All the GP Secretary have charge average 3 additional GPs. The government must fill the vacancy of GP Secretary to ensure that all GPs have exclusive secretary.

2. Sweepers are appointed based on the population strength of the village, except one, all other GPs have vacancy for Sweepers. Since they have to be recruited by GP only, they have recruited as per the availability of funds.

3. Chowkidar is one position for each GP no matter how small or big the GPs is. This position also needs rationalisation in the GPs based on the size of GP.

4. Pump operators required in the GPs where there is a water work. Three type of arrangements are there in the GPs, one a regular government functionary, the second is sourced by the GPs and third types are hired through contractor. In the sample GPs, Khurdban and Pahari don’t have an exclusive pump operator, it comes from the near by GP. Kahanaur has two PHED regular employees and two sourced through contractor. Dhani Laxman, Karountha and Bhainsru Kalan has one regular PHED employee and two hired by GPs themselves. The

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government should provide funds to GPs for hiring the pump operators rather sourcing through contractor.

Table 2.15: Working Status of Panchayat Secretary in Gram Panchayats (2016-17) SN Working Status of Panchayat Secretary GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8

1 Does the GP have a full time Secretary? Yes – 1, No – 2 2 2 2 2 2 2 2 2

2 If No, then how many other GPs the Secretary is associated with?

3 3 3 3 1 2 4 10

Total population of those GPs 11314 11314 6625 21246 7269 17600 3200 9000 3 Number of times Secretary visits the GP in a week

1 2 1 2 2 2 4-5 visits/GP/monthly once or twice in a month

Table 2.15 indicates the working status of secretary in gram panchayat. None of the GPs have a full-time secretary which infers the lack of human resource at this

position for full time assistance. The appointed secretary is associated with at least 2 or more-gram panchayats at a time

except Karountha GP. The population estimation of those GPs secretary is associated with ranges from 3000-18000. Most of the secretary visit once or twice only except for Kahanaur, secretary visits 4-5 per

gram panchayat every month.

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Table 2.16: Fact Sheet on GP Functions, Services and Amenities during 2016-17 SN Details GP 1 GP 2 GP 3 GP 4 GP 5 GP 6 GP 7 GP 8 A Governance Number of Gram Sabha Meetings 4 5 4 8 5 6 6 4

Number of GP Meetings 24 27 15 28 33 39 15 24 Number of Constitution and facilitation of FCs meetings 1 1 2 1 1 8 NA 6 GPDP Preparation (Number of days per year) 22 1 20 35 40 90 1 2

B Civic services: Number of Different certificates issued per year 0 0 0 0 0 NA NA

C Amenities Drinking water sources: Overhead tanks (Yes-1; No-2 and Partial-3) 1 2 2 1 1 1 1 2

Drinking water sources: Number of Bore wells 2 6 2 3+200 2 4 1 4 Drinking water sources: Supply by tanker No. times per week 0 Nil No 0 0 0 NA NA

Drinking water sources: Number of HH with tap connection 150 0 158 626 1100 1860 450 Almost all HH Piped water supply: (Given-1; not given-2) 1 1 1 1 1 1 1 1 Piped water supply: Frequency of supply (Daily-1; Alternated days-2; Weekly-3)

1 1 2 1 3 2 1 1

Piped water supply: Number of hours for above frequency 2 hrs 6 hrs ½ hr 20 min 20 min ½ hr 2 hrs 4 hrs

Sanitation: Number of IHHLs with sanitation facility 170 950 158 626 1168 1477 450 NA Sanitation: Number of Community Units 1 2 0 2 0 9 4 NA Sanitation: Frequency of garbage collection (Daily-1; Alternated days-2; Weekly-3)

1 3 3 2 3 1 3 3

Sanitation: Existence of dump yard (Yes=1, No=2; Partial=3) 1 3 3 3 3 1 2 1

Sanitation: Existence of liquid waste treatment facilityTank (Yes=1, No=2, Partial=3) 2 2 2 1 1 3 2 3

Cleaning of roads and drains: Daily (Done -1, Not done -2) 2 2 2 2 2 2 2 2

Cleaning of roads and drains: Weekly (Done -1, Not done -2) 1 2 1 2 2 1 2 2

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Cleaning of roads and drains: Monthly (Done -1, Not done -2) 2 1 2 1 1 2 2 2 Cleaning of roads and drains: On Special Occasions (Done -1, Not done -2)

1 1 1 1 2 1 1 1

Preventive health related activities (Yes-1; No-2) 2 1 2 1 1 1 1 2 Street lights: (Yes -1, No -2, Partial-3) 1 1 2 3 3 1 1 1 Burial ground: (Yes -1, No -2) 1 1 1 1 1 1 1 3

D Tax Collection Permissions given to houses, shops and establishments: (Yes -1, No -2) 2 2 2 2 2 2 2 2

Collection and remittance of various kinds of taxes: (Yes -1, No -2) 2 2 2 2 2 2 2 2

Management of shandies: (Yes -1, No -2, Not existing-9) 2 2 9 9 9 2 9 2 E Development / Welfare functions Selection of beneficiaries through gram sabha (Yes-1, No-2) 1 1 1 1 1 1 1 2

Welfare functions including various types of pensions implemented: (Yes-1, No-2) 1 1 1 2 1 1 1 2

Other development programs (including flagship programs such as MGNREGS, PMAY, Swacch Bharatetc) implemented: (Yes-1, No-2)

1 1 1 1 1 1 1 1

G Whether functioning of schools, Anganwadi centres, etc are monitored? (Yes -1, No -2) 1 1 1 1 1 1 1 1

H Books and records (Existing -1,Not Existing -2) 1 1 1 1 1 1 2 1 I e-governance: (Adopted -1,Not adopted -2) 1 2 1 1 1 1 1 2

Table 2.16 indicates the functions, services and amenities of gram panchayat during the year 2016-17 A. Governance:

Most of the GPs had held Gram Sabha meetings at least 3-5 times, only Kahanaur held six and Bhainsru Kalan held 8 meetings in one year.

Gram panchayat meetings range between 15-40 in a year, with highest number of meetings held by Kahanaur GP and lowest by Khurdban.

50 percent of GPs (Dhani Luxman, Pahari, Bhainsru kalan, Karountha) had one constitution and facilitation while Damla had 6 and Kahanaur had 8.

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GPDP preparation: Khurdban and Pahari only spent a day while the highest number of days spent by Kahanaur GP.

B. Amenities: 50 percent of GPs had overhead tanks as drinking water source while others had bore wells

in the area, HH with tap connection. However, piped water supply is given but only 50 percent had daily supply of water while others alternatively or weekly. Inferring that drinking water which is the most basic and one of important needs of people. This data indicates the situation of drinking water in gram panchayats.

Sanitation, one of the big projects of political parties remains the sanitation. The situation as showcased through the data is garbage was collected weekly in most of the GPs while the existence of Dump area was partial in majority of GPs. Cleaning of roads is not done on daily or weekly basis, sometimes monthly basis or on special occasions.

Majority of GPs had burial grounds however if we look at street lights 50 percent had but rest were either not having or the lights are partially there.

C. Tax Collection: none of the GPs had collection of various kinds of taxes and permission to houses shops etc.

D. Development/Welfare function: Beneficiaries are selected through gram sabha in 80 percent of GPs. Only five GPs had welfare functions. Except for Khurdban panchayat rest other panchayat had development programs implemented in their area.

E. All GPs had functioning of schools, Anganwadi centres monitored and books and records are kept. F. In the era of digital world and country moving towards digitization; all other panchayat had

adopted e-governance except for Damla. Summary of Results The study was conducted to assess the staff requirement at Gram Panchayat (GP) level for performing core functions effectively and efficiently. This Chapter throw some light on the profile of gram panchayats, geographically, population-wise, gender and caste differentials within, literacy rate, voters and ration card holder, household details, resource mapping and revenue collection, infrastructure, expenses and other amenities available, functionaries and post details. Starting of with the details of gram panchayat. Majority of gram Panchayats were formed in 1956 while others in 2016. Out of eight seven Gram had only one revenue village while one Gram panchayat had six revenue villages under it. Majority (6 GPs) of the Gram Panchayat function from its own building.

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The last election was held in 2016 in all the Gram Panchayats. Population wise it can be further distributed in caste wise and gender wise across 8 Gram Panchayats. According to population strength it can be seen that the range is between 800-9000 for these GPs and gender composition shows that female ratio is lower than the male in all the selected gram panchayats. Interestingly, it was observed that given the fact that Supreme Court has declared third gender as part of society- neither of the gram panchayats reported about any transgender population being present in their administration. However, there was no presence of population under Scheduled Tribes which is another major observation throughout the study. Not only at gender ratio but at literacy ratio females are lacking, Table 2.3 indicated the literacy percentage with reference to caste and gender can be seen. It was observed that data collection and monitoring literacy rate are areas where improvement is required. Except for Pahari, all other gram panchayat has a significant difference among male and female literacy. Further in Gram panchayats elected representatives’ profile, panchayats had around 8-20 representatives which were at least qualified up to 10th, few were qualified till 12th and degree and very little had professional/PG degrees. Looking at the caste-wise distribution, firstly household’s distribution among the panchayat area. Dhani Luxman Panchayat had lowest and Damla panchayat had highest number of households. No household of ST population in either of the panchayats. Further if we look at the profile of elected representatives of Gram Panchayat. On the caste basis, mostly belonged to BC caste followed by SC caste and few were of OC caste. As said above no Schedule Tribe caste was there in caste basis and reservation basis as well and No presence of Transgender population as well. Voting is another right provided to every citizen of India irrespective of caste, class, creed, religion. If we look at the number of voters in sampled Gram Panchayats. Dhani Luxman panchayat and Jharwai panchayat had lowest number of voters. Interestingly SC caste category across different panchayats had more number of female voters than male. Moreover, ST population was seemed to be missing from the voters’ number as well. Panchayat like Khurdban and Damla had not any details regarding the voters’ distribution across their area. Further, services that are being provided to people in India, ration-card is one of them. The ration card holders (caste-wise) in the selected Gram Panchayats. Highest number of ration card holders was in Kahnaur followed by Damla. However, Kahnaur and Damla do not provide the details of caste wise distribution and so was Khurdban Panchayat, Karountha, Jharwai panchayat. Lowest card holder was in Bhainsru Kalan GP with no details of caste wise distribution. Pahari and Dhani Luxman panchayat do provide the details. Moving on to the resource allocation and expenditure within the panchayats given by central or state government. 50 percent of the Gram Panchayat spent the allocated money as granted by Government

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of India and are spent on XIV FFC Funds and MGNREGS only. Apart from the mentioned two categories, there was no expenditure on any other. Further, Table 2.9 details out resource mapping of the grants from state government. Majority of the gram panchayats (6 GPs) spent the allocated grant in different areas namely SFC Funds, Incentives, Surcharge on stamp duty etc. Table 2.10 details out the potential and actual revenue collection from own sources of gram panchayats. 50 percent of gram panchayat generate revenue from rents/auctions/leases. The difference can be seen among gram panchayats and within potential and actual revenues. Table 2.12 represents the expenditure details of GPs. Staff salary expenditure is not disclosed by any of the GPs. Pahari and Damla GPs have not disclosed any expense details and only three GPs disclosed their last year of audit (2016-17) Fifty percent of GPs spent on assets creation like roads, sanitation etc, two or three GPs spent on maintenance and Operational expenses. Bhainsru kalan GP is the only one to spent on Honorarium and Karountha is he only GP to spent on administration. Infrastructure wise, panchayat have detailed out the structure of their building, libraries, school and other amenities. All gram panchayats have their own pacca building. Seating capacity ranges from 30-500. However, most of the GPs were missing library, computer and internet facility, SHGs, anganwadi etc. Only three GPs had computer facility available and one GP had the internet facility. Printer facility was also in few of the GPs. None of the GPs had projectors, software packages, two wheelers, car/jeep or truck facility. Few panchayat were missing the details on Secondary and high school level, which are very important stages of education as India’s one of the major issues is education and government has been working on it since ages. Next most basic and important amenity is water, the study discusses about the sources of water that are supplied to the houses in the area. 50 percent of GPs had overhead tanks as drinking water source while others had bore wells in the area, HH with tap connection. However, piped water supply is given but only 50 percent had daily supply of water while others alternatively or weekly. Inferring, that drinking water which is the most basic and one of important needs of people. This data indicates the situation of drinking water in gram panchayats. Another major issue is sanitation. It has been one of the big projects of political parties. The situation as showcased through the data is garbage was collected weekly in most of the GPs while the existence of Dump area was partial in majority of GPs. Cleaning of roads is not done on daily or weekly basis, sometimes monthly basis or on special occasions. Majority of GPs had burial grounds however if we look at street lights 50 percent had but rest were either not having or the lights are partially there.

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This shows the situation of these areas, when the world is moving at fast pace towards a digital arena, such areas are still struggling with such issues. The human resource at gram panchayat is another aspect of the study which is very important as the gaps that are there needs to come out in public domain. Table 2.13 showcases the functionaries of Gram Panchayats such as their designation, nature of appointment, gender, joined GP. Eighty percent of GPs had Gram Sachiv. All the Gram Sachiv was male and no female is seen at this position thus, females are not seen at higher positions. However, Table 2.14 showcases the posts and position sanctioned and the actual position in Gram Panchayat, this will help in understanding the lack of Human resource and the gaps that needs to be bridged. However, none of the GPs have provided any details regarding this. Further, the working status of secretary in gram panchayat. None of the GPs have a full time secretary which infers the lack of human resource at this position for full time assistance. The appointed secretary is associated with at least 2 or more gram panchayats at a time except Karountha GP. The population estimation of those GPs secretary are associated with ranges from 3000-18000. Most of the secretary visit once or twice only except for Kahanaur, secretary visits 4-5 per gram panchayat every month. Further throwing light on the functions of gram panchayat during the year 2016-17: Governance, most of the GPs had held Gram Sabha meetings at least 3-5 times in one year while the Gram panchayat meetings range between 15-40 in a year; Tax Collection: none of the GPs had collection of various kinds of taxes and permission to houses shops etc. Development/Welfare function: Beneficiaries are selected through gram Sabha in 80 percent of GPs. Only five GPs had welfare functions. Except for Khurdban panchayat rest other panchayat had development programs implemented in their area. All GPs had functioning of schools, anganwadi centres monitored and books and records are kept. In the era of digital world and country moving towards digitization; all other panchayat had adopted e-governance except for Damla. To sum up the gram panchayat lacks human resource, basic amenities, participation and engagement of all sections, gender balance and equal opportunity to women. India was and is still fighting with these issues. Thus, this study details out the scenario in gram panchayat only.

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Chapter 3 Functions Performed by Gram Panchayats

Introduction Provide introduction to the functions performed by the GPs, including a reference to the public services Act; how the data for this section was collected. Article 243G of the constitution recognized PRI as institution of local government and mandates to prepare plans for economic development and social justice, implement and monitor the plans. 73rd Constitutional Act, 1993 through XI Schedule listed the functions which shall be performed by the PRIs and related functionaries and funds should be devolved to the PRIs at appropriate level. Gram panchayats are basic and fundamental unit of PRIs. The section outlines the functions devolved by law, government order (GO) issued and actually performed by the GPs. The data was collected by meeting with Sarpanch and secretary of GP. It has taken 3 to 4 meetings with GP officials mainly the Sarpanch and secretary. Table 3.1 Governance Functions Performed by GPs

Sl#

GP/Fun

ction Con

ducting

Gra

m Sabh

a me

etings

Conduc

ting

GP GPDP

Prepar

ation

Prepar

ing

shelf

of GPD

P imp

lement

ation

and

Ann

ual

budget

pre

paratio

n Ma

intenan

ce

of ess

ential

Adminis

trative fun

ctions

of For

mation

of Con

ducting

me

etings

of the

GP

GP-1 Devolved 11 72 2015-16 no Yes Yes 2014-15 yes 2014-15 yes yes Yes 2014-15: 0

GO s Issued Yes 72 2016-17 yes Yes Yes 2015-16 yes

2015-16 yes yes Yes 2015-16: 1 Actually performed 9 54 2017-18 yes

2 Yes 2016-17 yes 2016-17 yes yes 5 2016-17: 1

GP-2 Devolved 11 54 2015-16 no 4 Yes 2014-15: 0 2014-15 no 3 5 2014-15: 0 GO s Issued Yes Yes 2016-17 yes

4 Yes 2015-16: 0 2015-16 no Yes 5 2015-16: 2 Actually performed 12 60 2017-18 yes

13 Yes 2016-17 yes 2016-17 no 3 5 2016-17: 2

GP-3 Devolved 11 54 2015-16 no 3 Yes 2014-15 yes 2014-15 yes yes 5 2014-15 no

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GO s Issued 11 54 2016-17 yes 3 Yes 2015-16 yes

2015-16 yes yes 5 2015-16 yes Actually performed 15 50 2017-18 yes

3 Yes 2016-17 yes 2016-17 yes yes 5 2016-17 yes

GP-4 Devolved 11 54 2015-16 no Yes Yes 2014-15 yes 2014-15 yes yes 5 2014-15 no

GO s Issued 11 72 2016-17 yes Yes Yes 2015-16 yes

2015-16 yes yes 5 2015-16 yes Actually performed 13 62 2017-18 yes

18 Yes 2016-17 yes 2016-17 yes yes 6 2016-17 yes

GP-5 Devolved 11 54 2015-16 no Yes Yes 2014-15 yes 2014-15 yes Yes 5 2014-15: 0

GO s Issued 11 72 2016-17 yes Yes Yes 2015-16 yes

2015-16 yes Yes 5 2015-16: 1 Actually performed 8 65 2017-18 yes

18 Yes 2016-17 yes 2016-17 yes yes 5 2016-17: 1

GP-6 Devolved 11 54 2015-16: 0 8 Yes 2014-15 yes 2014-15 yes Yes 5 2014-15: yes

GO s Issued Yes Yes 2016-17: 1 Yes Yes 2015-16 yes 2015-16 yes Yes 5 2015-16: yes

Actually performed 16 92 2017-18: 1 8 Yes 2016-17 yes 2016-17 yes yes 6 2016-17: yes

GP-7 Devolved 4 24 NA 3 Yes 2014-15: NA 2014-15: NA 16 3 NA

GO s Issued 4 24 NA 3 Yes 2015-16: NA 2015-16: NA 16 3 NA

Actually performed 6 15 2 2 Yes 2016-17: 2 2016-17: 2 16 5 3 GP-8 Devolved 4 24 NA 3 Yes 2014-15: NA

2014-15: NA 16 3 NA

GO s Issued 4 24 NA 3 Yes 2015-16: 1 2015-16: NA 16 3 2 Actually performed NA NA NA 2 Yes 2016-17: 1 2016-17: NA NA 5 8

Total Devolved 74 390 0 21 35 31 0 GO s Issued 41 318 1 13 32 31 6

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Actually performed 81 415 3 81 19 42 15 Table 3.1 indicates the governance functions performed by the Gram Panchayats.

Majority of the GPs had performed the GOs issued number of gram sabha and gram panchayat meetings. In few GP actual meetings are held more than the number given by the government. Total devolved gram sabha meeting was 74, GOs issued was 41 and actually performed was 81. Similarly, gram panchayat meetings in total were 390, 318 were issued by government and 415 that were actually held.

Interestingly, last three years details regarding GPDP preparation, annual budget, maintenance of statistic, GP committee meetings were given. There were no directions issued by government in this regard. Majority of the GPs had disclosed the details in either yes or no.

Similarly, Administrative functions of GPs: the details are provided in yes or no format and not in figures.

Formation of committees were done as per they were devolved and government issued. It can be inferred that Implementation and monitoring are the important aspect which seems

to be missing from this. No details were given regarding the GPDP implementation and monitoring. As seen, most of the ideas are planned well but if they are not implemented and monitored can cause the idea to fail.

Lack of details in figure mask the actual picture. As yes or no does not give us the required information while figure data provides a solid evidence.

Table 3.2: Details of Number of Different Certificates Issued During Last 3 Issuing Sl#

GP/Fun

ction Birt

h Cer

tificate

Dea

th Cer

tificate

Ma

rriage

Certific

ate

Owner

ship

Certific

ate

Other

Certific

ates

GP-1 Devolved NA NA NA NA NA GO s Issued NA NA NA NA NA Actually performed NA NA NA NA NA




GP-5 Devolved NA NA NA NA NA GO s Issued NA NA NA NA NA

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Actually performed NA NA NA NA NA GP-6 Devolved NA NA NA NA NA

GO s Issued NA NA NA NA NA Actually performed NA NA NA NA NA



Total Devolved NA NA NA NA NA GO s Issued NA NA NA NA NA Actually performed NA NA NA NA NA

Table 3.2 represents the details of number of different certificates issued in last three years. As certificates such as birth, death, marriage etc are one of the important documents for any person. Similarly, the records of these certificates are important for panchayat/state/nation to keep a track of population and other details. Interestingly, gram panchayats have not been given any role in issuing any of these certificates. For certificates such domicile, caste and income, it is mandatory to have verification from the GPs on the application form, Sarpanch provides signatures and seal but no record of the application is kept at GP level. While interacting with sarpanches, some of them realized to have records of the application certificates verified by them. Table 3.3: Details of Functions Related to Providing Amenities

Sl#

GP/Fun

ction

Drinkin

g wat

er supp

ly Gar

bage

collect

ion

public

latrine

s HH

latrine

s Cle

anline

ss of r

oads

Cleanl

iness

of drain

s Pre

ventive

hea

lth car

e Swa

cha

Bharat

Mosqu

ito con

trol

Streetli

ghts HH

Electric

ity Bur

ial Gro

unds

Dispos

al of

dead b

odies

Control

ling

Street

GP-1 Devolved - - - - - - - - - - - - - - GO s Issued - - - - - - - - - - - - - - Actually performed

- - - - - - - - - - - - - -


- - - - - - - - - - - - - -

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- - - - - - - - - - - - - -


- - - - - - - - - - - - - -


- - - - - - - - - - - - - -


- - - - - - - - - - - - - -


- - - - - - - - - - - - - -


- - - - - - - - - - - - - -

Total Devolved - - - - - - - - - - - - - - GO s Issued - - - - - - - - - - - - - - Actually performed

- - - - - - - - - - - - - -

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Table 3.3 showcases the functions related to providing amenities. An amenity like drinking water is the basic need of any human being. None of the GPs have disclosed any details. Similar is the case with other services like garbage collection, toilets, cleaning of drains etc. Swachh Bharat being a biggest project of Government of India and no data available regarding that and toilets and cleanliness is a step back. As data would have provided a picture of the situation in Gram Panchayat. Further, no details regarding street lights and burial ground as well. Table 3.4: Details of Functions Related to Amount Spent on Creation of Infrastructure Facilities during Last 3 Years (in INR)

Sl#

GP/

Functio

n

Amoun

t on

Roads

Amoun

t on

Commu

nity

Halls

Amoun

t on

Other

Buildin

gs Am

ount o

n Ma

rket

Yards

Amoun

t on

Drinkin

g Wa

ter

GP-1 Devolved 2750000 GO s Issued Actually performed 2750900 0 188000




GP-5 Devolved 7254374 GO s Issued Actually performed 0 12602


GP-7 Devolved NA GO s Issued Actually performed NA NA NA

GP-8 Devolved NA GO s Issued Actually performed NA NA 125 hand pumps

Total Devolved GO s Issued Actually performed 3244448

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Table 3.4 provides the details regarding the functions related to amount spent on creation of infrastructure facilities in last three years. The details are regarding roads, community hall and other buildings, market yards and drinking water.

Dhani Luxman spent: 27.5 lacs each on construction of roads and infrastructure of community hall and other buildings and 1.8 lacs on sources of drinking water infrastructure. Pahari: 45.7 lacs on construction of roads and 5.5 lacs on drinking water infrastructure. None is being spent on community hall and other buildings; Jharwai: 2.1 lacs on roads, 4.8 lacs on community hall and buildings and 1.8 lacs on drinking water; BhainsruKalan: spent 85.1 lacs on construction of roads, 2.35 lacs on community hall and building and 4.05 lacs on drinking water infrastructure; Karountha: spent 72.5 lacs collectively on roads, community hall and other buildings, and a small amount (12602) on drinking water infrastructure; Kahanaur: spent 1.7 cr on roads, 1.06 cr on community hall and buildings and 19 lacs on drinking water infrastructure.

Kahanaur is the gram panchayat spending huge amounts on these amenities. None of the GPs have spent any amount on the infrastructure of markets. Khurdban and Damla panchayat have not disclosed any data regarding this, except for Damla

had just provided the details of 125 hand pumps for the source of drinking water supply in the area.

Table 3.5: Details of Functions Related to Amount of Taxes Collected during Last Year (in INR) and Number of Permissions Issued during Last 3 Years

Sl#

GP/Fun

ction

House/

Pro

perty T

ax Lice

nse

fee

from Sho

ps Tax

from

Sha

ndies

Marke

t Cess

License

Fee

Water

Tax

Electric

ity Cha

rges

Tax on

Cattle

Sale

Oth

er Taxe

s Per

mission

s for

House

Permis

sions

for Lay

outs

Permis

sions

for Sho

ps GP-1 Devolved Yes Not available

Not available Not available





GO s Issued Yes Not available Not available





Not available Actually performed

1320 0 0 0 0 0 0 0 0 0 0 0

GP-2 Devolved Yes Not available Not available





Not available GO s Issued Yes Not available






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Actually performed 0 850000 0 0 0 0 0 0 0 0 0 0
















































Actually performed 15840 NA NA NA NA NA NA NA NA NA NA NA












Actually performed 0 NA NA NA NA NA NA NA NA NA NA NA






Not available

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GO s Issued Yes Not available Not available





Not available Actually performed

0 NA NA NA NA NA NA NA NA NA NA NA

Total Devolved Yes Not available Not available











Actually performed 22,420 850000 0 0 0 0 0 0 0 0 0 0

Table 3.5 shows the details of functions related to amount of taxes collected during last year and number of permissions Issued during last 3 years.

Only three GPs have collected tax through house/property, namely Dhani Luxman (1320), BhainsruKalan (5260) and Kahanaur (15840).

Pahari is the only GP which collected tax through license fees from shops. Rest none of the GPs collected any tax in last year although Tax being a big source of revenue. Similarly no permissions were issued to any GPs for house, layouts and shops The bifurcation for Devolved and GOs Issued is not provided by any of the GPs.

Table 3.6: Details of Functions Related to Selection of Beneficiaries and Implementation of Development Programmes during Last Year

Sl#

GP/Fun

ction PDS

Ben

eficiari

ePen

sioners

Hou

se Allo

tees

Health

Cards

MGNEG

S Wa

ge Days

MG

NREGS

Amoun

t NRH

M Ben

eficirie

s NRH

M Am

ount

SSA

Amoun

t Num

ber o

f Toi

lets

Others

GP-1 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available GO s Issued Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available Actually performed

108 187 0 42 140 350000 146 10000 0 7 0

GP-2 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available

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GO s Issued Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available Actually performed

800 506 1 Nil 560 368000 246 20000 0 8 0


90 108 0 0 0 0 26 10000 No 36 -


76 279 0 120 2036 1831801 840 7200 970500 3 -


300 450 0 0 1170 303030 NA NA NA 0 -


527 929 0 0 1440 456000 27775 22914066 NA 170


0 0 10 0 0 0 0 0 0 17 NA

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0 0 0 0 0 0 0 0 0 0 NA

Total Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available GO s Issued Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Not available Actually performed

1901 2459 11 162 5346 3308831 29033 22961266 970500 241 0

Table 3.6 represents the functions related to selection of beneficiaries and implementation of development program in last year.

PDS Beneficiaries (highest to lowest): Pahari (800), Kahanaur (527), Karountha (300), Dhani Luxman (108), Jharwai (90) and Bhainsru Kalan (76).

Pensioners: Kahanaur with highest number i.e. 929, Pahari (506), Karountha (450), Bhainsru Kalan (279), Dhani Luxman (187) and Jharwai with 108.

Only Pahari (1) and Kahanaur (10) were the only GPs with house allotters. Dhani Luxman (42) and Bhainsru Kalan (120), only GPs with Health Card beneficiaries. No other

GPs were having beneficiaries under this. Huge amounts are spent on implementation of development programs by the Government.

Two specific area where the amount and details of program have been disclosed are MGNREGS and NRHM.

MGNREGS: Bhainsru Kalan spent 18.3 lacs and 2036 days; Kahanaur spent 4.56 lacs and 1440 days; Pahari spent 3.68 lacs and 560 days; Dhani Luxman spent 3.5 lacs and 140 days and Karountha with 3.03 lacs and 1170 days.

NRHM: Kahanaur with highest 2.29 cr with over 27000 beneficiaries; Pahari with 20,000 impacting 246 beneficiaries and Dhani Luxman (146 beneficiaries) & Jharwai (26 beneficiaries) spent 10,000 each and the lowest expenditure was Bhainsru Kalan spent 7200 with 840 beneficiaries.

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Number of toilets, as clean india is one of the main agenda of the political party. Kahanaur (170 toilets), Jharwai (36 toilets), Khurdban (17 toilets), Pahari (8 toilets), Dhani Luxman (7 toilets) and Bhainsru Kalan (3 toilets).

Khurdban apart from house allotting and toilets provided no data regarding beneficiaries and developmental programs.

Damla however did not disclose any details. No details on Sarv Shiksha Abhiyan program was provided by any GPs except for Bhainsru

Kalan, that spent 9.7 lacs. The bifurcation for Devolved and GOs Issued is not provided by any of the GPs.

Table 3.7: Details of Functions Related to Monitoring Institutions and Prevention of Atrocities (Number) during Last 3 Years

Sl# GP/Function Monitoring Prevention of Relief

Anganw

adi

School

(s)

Fair pri

ce Shop

s

PHC/Su

b Cent

er

SSA

Planta

tions

Number

of

Atrocit

ies aga

inst SC/

ST Num

ber

of Atr

ocities

against

Num

ber

of Fam

ine,

etc.

Relief

GP-1 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes GO s Issued Not available





Actually performed Yes Yes Yes NA Yes 110 0 0 0 GP-2 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes

GO s Issued Not available Not available




Not available Actually performed Yes Yes Yes No Yes 2200 0 0 0






Actually performed Yes Yes Yes - Yes 466 0 0 0 GP-4 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes





Not available Actually performed Yes Yes Yes Yes Yes 8100 0 0 0 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes

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GP-5 GO s Issued Not available Not available




Not available Actually performed Yes Yes Yes Yes Yes 1150 0 0 0






Actually performed 11 3 3 1 0 5110 NA NA NA GP-7 Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes





Not available Actually performed 3 3 1 1 NA 1000 NA NA NA






Actually performed 25 24 10 12 NA - NA NA NA Total Devolved Yes Yes Yes Yes Yes Yes Yes Yes Yes





Not available Actually performed 39 30 14 14 - 18136 - - -

Table 3.7 indicates functions related to monitoring institutions and prevention of atrocities during last 3 years.

Aaganwadi: 5 GPs namely Dhani Luxman, Pahari, Jharwai, Bhainsru Kalan and Karountha provided that they do monitor the aaganwadi however, no number was disclosed. GPs like Kahanaur (11 times), Khurdban (3 times) and Damla (25 times) got their aaganwadi monitored.

Schools: Similarly the case was here. Monitoring of schools were done by kahanaur (3 times), Khurdban (3times) and Damla (24 times); rest other GPs did not provide any data.

Fair price shop: Kahanaur (3 times), Khurdban (1 time), Damla (10 times) PHCs/Sub centres: Kahanau and khurdban GP one time each and Damla 12 times got PHCs

monitored. BHainsru Kalan and Karountha get PHC monitored (no details in number). Dhani Luxman, Pahari and Jharwai denied the monitoring being done on PHCs.

SSA: 5 GPs agreed to the monitoring of SSA (Dhani Luxman, Pahari, Jharwai, Bhainsru Kalan and Karountha). Rest other GPs do not monitor.

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Plantation: apart from Damla all other GPs provided the detail on number of times it is being monitored with highest Bhainsru Kalan (8100) and lowest Dhani Luxman (110).

Interestingly, no data was available on prevention of atrocities and relief beneficiaries. Further, the bifurcation for Devolved and GOs Issued is not provided by any of the GPs.

Table 3.8: Details of Functions Related to Supporting Other Departments Sl#

GP/Fun

ction

Agricul

ture

AH & D

airy

Fisherie

s Hor

ticultur

e Lan

d Min

or Irrig

ation

Social/

Farm

Forest

ry Min

or For

est Sm

all / M

icro

Indust

ries

Non-

Conven

tional

Library

Cul

tural

Activit

ies Wo

men &

Child

Welfar

e PDS

GP-1 Devolved Yes Yes Yes Yes Yes

Yes Yes Yes Yes Yes Yes

Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed Yes No No No No No No No No No No No Yes Yes



Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed GP No No No No No No No No No No No Yes Yes

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Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed Yes Yes No No No No Yes No No Yes No No Yes Yes



Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed Yes No Yes Yes Yes

No Yes No Yes No No Yes-3 Yes-2 No



Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed Yes 0 0 0 Yes

0 Yes 0 0 0 0 Yes Yes 0

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Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed Camp Organise, Environment Creation, Soil Test

Camp/ Milk Competetion

NA Camp NA NA Plantation

NA No Repair Tube

Inverter

Competition Awareness Program

Yes



Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed NA NA 3 - NA NA NA NA NA 5 Sanctioned

2 NA NA



Yes Yes Yes

GO s Issued Not available Not avai Not av

Not avNot

Not avNot av

Not Not av

Not avai Not aNot available

Not available Not ava

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lable ailable ailable

available

ailable ailable

available

ailable

lable vailable

ilable

Actually performed NA NA 6 NA NA NA NA NA NA 150 solar lights

NA Twice a year NA NA

Total Devolved Yes Yes Yes Yes Yes


Yes Yes Yes


Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available

Not available


Not available

Actually performed

According to data in Table 3.8, details are provided on supporting other departments.

Dhani Luxman and Pahari GPs provide support to agriculture, PDS and women and child welfare department.

Jharwai extend its support to agriculture, AH & dairy, social/farm forestry, non-conventional energy, women & child welfare and PDS department.

Bhainsru Kalan: agriculture, fisheries, horticulture, land improvement, small/micro industries, social/farm forestry, cultural activities and women & child welfare department.

Karountha supported departments of agriculture, land improvement, social/farm forestry, cultural activities and women & child welfare.

Kahanaur was the only panchayat that provided details other than just a yes. Details are given how they extend their support to other departments.

Khurdban and Damla GPs were the panchayat who were supporting less departments in comparison to others.

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The bifurcation for Devolved and GOs Issued is not provided by any of the GPs. Summary of Results The study explores the functioning of Gram Panchayats and public service acts. Through various data available it can be seen data was either missing or figures are not disclosed by the gram panchayats which did not provide us the actual picture of the area. Lack in details and figures, no disclosure by any GPs regarding certificates of birth, death etc. as the records of these certificates are important for panchayat/state/nation to keep a track of population and other details. No details regarding the amenities provided like street lights burial grounds etc. Further the details regarding the functions related to amount spent on creation of infrastructure facilities in last three years. The details are regarding roads, community hall and other buildings, market yards and drinking water. Kahanaur is the gram panchayat spending huge amounts on these amenities. However, none of the GPs have spent any amount on the infrastructure of markets. Tax being a big source of revenue only few GPs collected and no permissions were issued to any GPs for house, layouts and shops. Similar was the case with beneficiaries and implementation of development program and monitoring institutions and prevention of atrocities, missing data at most of the places. Details regarding support to other departments most GPs were seen involved in agriculture and women & child welfare the most. Agriculture being one of the main sources of earning of rural India. Further, women and child have always been in focus regarding the development. However, the missing data and amenities/services that are promised to the people further no monitoring and implementation gaps of development program. This shows that India still has a long way to achieve its goals of development. These areas still need to be looked and improved in order to achieve the ultimate goal of development. The 29 functions listed in the 11the schedule of constitution through 73rd amendment, have also been listed in the section 21 of the Haryana Panchayati Raj Act, 1994. State government has also signed MoU with Ministry of Panchayati Raj, Government of India to take initiatives on devolution of functions to strengthen the Panchayati raj. A notification for devolution of functions from the 10 departments was issued but the activity mapping was not completed and government orders were not issued by the concerned departments to actually devolve those functions. In the scope of study, the local level functionaries such as gram sachiv and elected representatives are not aware of any of the developments in the Panchayati raj and functions in routine manner.

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Chapter 4 Process Mapping of Gram Panchayat Functions Introduction The process mapping of gram panchayat functions was done with Sarpanch and Panchayat Secretary together. It was also done with the selected functionaries of the GP. There has been two categories of functionaries in the GP. One is dedicated staff reporting to the GP, the other is functionaries working in the GPs but do not have any reporting relation with the GP. The distinction was made in the study while capturing the details. The functionaries dedicated staff of the GPs are 1. Panchayat Secretary*, Chowkidar and Safai Karmchari / Sweepers. These are the functionaries though paid by the department but reports to the GP. The second categories of the functionaries are pump operator (PHED) teacher (education) AWW (ICDS) ANM (Health dept.) etc. Results None of the GP has a full-time dedicated secretary. The secretary is responsible for 3-4 GPs and mostly available in the block office. They come to GP as per the need, on an average a day in week or 4 days in a month is spent in one GP. Sarpanch has to run around the secretary to get the minutes recorded, resolution passed or cheque to be signed for payments etc. Even during the study, secretary could not give two hours at stretch in the GP. In case of Khurdban and Damla GPs of Yamuna Nagar district, the secretaries could not turn out to GPs. Most of the data was collected from Sarpanch, secretary met in the block office only. The chowkidar is kind of office assistant to the GPs. GP office practically function from Sarpanch’s house. He is available on the call and mostly found at the house of Sarpanch whenever you visit. The sweepers the only functionaries who works daily. Though there have been complaints from citizens about their work but they are from the village and Sarpanch and ward members monitor their work. The second category of functionaries do not really relate themselves with the panchayats. But in most of the cases sarpanches visits the schools on weekly or monthly basis and support in case any problems.

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Anganwadi workers functions as per the schedule of AWC. They spent less time in the centers and hardly made home visits. They are more engaged in the administrative works. Table 4.1: Details of Governance Processes during Last 3 Years in Sample GPs

Gram Panchayat GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

Averag

e

1 a) Number of Gram Sabha meetings 9 12 15 13 8 16 4 8

b) Functionary who conducted them

1 1 1 sarpanch 1 1 BDPO 1

Average time spent/year 2.5 hrs/ event

2 hrs/ event

2 hrs/ event

5-6 hrs/ event 3.5 hrs/ event

3 hrs/ event

2 hrs/ event 4 hrs/ event

c) Other functionaries who assisted 1 1 1 1 1 1 Secretary 1

Average time spent/year

20 mins/ event

1 hr/ event 30 mins/ event

2 hrs/ event 1.30 hrs/ event

2 hrs/ event

1 hr/ event 1 hr/ event

2 Number of GP Meetings 54 56 50 62 65 92 24 80

Functionary who conducted them

1 1 1 1 1 1 Sarpanch& Secretary 1

Average time spent/year 2 hrs/ event

2 hrs/ event

1 hrs/ event

3 hrs/ event 1.30 hrs/ event

3 hrs/ event


c) Other functionaries who assisted 1 1 1 1 1 1 Secretary 11 junior engineer


20 mins/ event

20 mins/ event

20 mins/ event

3 hrs/ event 30 mins/ event

1 hr/ event 40 mins/ event 1 hr/ event

3 a) Number of GPDPs 2 2 2 2 2 2 2 3

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b) Functionary who prepared them

1 1 1 sarpanch 1 1 Working grp+GP 1

Average time spent/year 10 days 20 days 2 hrs 1 day 7 days 30 hrs 2 hrs/ event 1 month

c) Other functionaries who assisted 1 1 1 11 – Sarpanch

1 1 11- BDPO 11- BDPO

Average time spent/year 1 day 1 day 3 hrs/ event

1 day 14 hrs/ event

2 hrs/ event


Table 4.1 indicates the details of Governance processes during last 3 years in GPs. Number of gram sabha meeting across eight gram Gram Pchayats ranges from 4-16 however details of functionaries who conducted and assisted in the process were not clear. Similar was the case with gram panchayat meetings which ranges from 24-80 and GPDPs but the functionaries details were missing. Further, the time spent by each functionary per year was given clearly. The time of Gram sabha meetings across eight GPS were 2-6 hours while average time spent by functionaries in Gram panchayat meetings were 1-3hours. Table 4.2: Details of Processes Related to Civic Services during Last 3 Years in Sample GPs

(Time in HH:MM)

Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 a) Number of Birth Certificates NA NA NA NA NA NA NA NA b) Functionary who received applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 2 a) Number of Death Certificates NA NA NA NA NA NA NA NA b) Functionary who received applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 3 a) Number of Marriage Certificates NA NA NA NA NA NA NA NA

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b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 4 a) Number of House Ownership Certificates NA NA NA NA NA NA NA NA b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 5 a) Number of Caste Certificates NA NA NA NA NA NA NA NA b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 6 a) Number of Income Certificates NA NA NA NA NA NA NA NA b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year(in HH:MM)

NA NA NA NA NA NA NA NA 7 a) Number of Residential Certificates NA NA NA NA NA NA NA NA b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA 8 a) Number of All Other Certificates NA NA NA NA NA NA NA NA b) Functionary whoreceived applications NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA c) Functionary who issued certificate NA NA NA NA NA NA NA NA Average time spent/year NA NA NA NA NA NA NA NA

Table 4.2 details out the processes related to Civic Services during last 3 years in GPs. The table clearly shows that no civic service is performed by the GPs. These are the basic and yet very important services provided by government to Indian citizens. For the issuance of certificates, GP is supposed to do verification OR identification of the person applying for the certificates. Sarpanch in all the cases

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of certificate issuance does the verification. Though its important function but practically it is not considered as a function. Hence no data / record is being kept by the GPs on all such verification applications. Table 4.3: Details of Processes Related to Operation and Maintenance of Amenities Services during Last 3 Years in Sample GPs

Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Drinking water supply a) Functionary responsible for Operating motors, attending to pipelines maintenance & repairs


Pump Operator Pump Operator Beldar Pump Operator



2hrs/day 730 hrs

10hrs/day 3650 hrs

1hr/day 365 hrs 4hrs/day 1460 hrs

6hrs/day 2190hrs

2hrs/day 730 hrs

Twice/day 8hrs/day 2920 hrs

Quality of service 3 3 4 1 3 2 4 3

b) Functionary responsible for new tap connection

Junior Engineer Junior Engineer

Junior Engineer Junior Engineer Junior Engineer Junior Engineer

Pump Operator Junior Engineer


3 hrs 2 hrs 1 hr 2hrs 1 hr 3 hrs 15 days 1 month


c) Functionary responsible for


Pump Operator Pump Operator Beldar Pump Operator


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chlorination and cleaning of sumps Average time spent/year

1hr/ day 365 hours

1 hr/ day 365 hours

1 hr/ day 365 hours 30 min/ day 182 hours

30 min/ day 182 hours

2 hrs/ day 730 hours

monthly sometime


d) Functionary responsible for RO plant

NA NA NA NA NA NA NA NA



Quality of service NA NA NA NA NA NA NA NA

e) Functionary responsible for purchase of material

JE JE JE JE JE JE NA NA


1 day 1 day 3 hrs 3 hrs 1 hr 4 hrs NA NA

Quality of service 3 3 3 3 2 3 0 NA

2 Sanitation a) Functionary responsible for collection, transport of garbage

SafaiKaramchari NA Sweeper Safaikarmi NA Sweeper Sweeper Sweeper


3 hrs no weekly Daily NA daily daily NA

Quality of service 3 no 4 2 NA 2 3 NA

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b) Functionary responsible for segregation and composting

SafaiKaramchari NA Sweeper Safaikarmi NA No NA NA


2 hrs/ day 730 hrs

no 3-4 hrs/ day 2000hrs

weekly NA no NA NA

Quality of service 2 no 2 3 NA no 0 NA

c) Functionary responsible for construction and monitoring of toilets

1 Sarpanch GS/Sweeper GP GS sarpanch sarpanch Sarpanch NA


1 day As per need Daily 3-4 hrs 6 months As per work daily daily NA


3 Cleanliness of roads and drains a) Functionary responsible for cleaning roads & drains

SafaiKaramchari

SafaiKaramchari

Sweeper SafaiKaramchari SafaiKaramchari

Sweeper NA NA


2 hrs/ day 730 hrs

8 hrs/ day 2920 hrs

1 day 6 months 4hrs/ day 3 months NA NA

Quality of service 3 3 3 3 3 2 NA NA

b) Functionary responsible for repair of roads & drains

1 1 sweeper GP GP GP NA NA

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2 days As per work 1 day 1 month As per work As per approval NA NA

Quality of service 2 3 3 2 2 3 NA NA

4 Preventive Health a) Functionary responsible for spraying and fogging

NA NA NA NA NA No Sarpanch/GP Chowkidar


0 0 NA NA NA No Yearly NA

Quality of service 0 0 NA NA NA No 1 NA

b) Water quality testing & monitoring

3 ANM ANM mphw NA No Sarpanch/GP NA


30 mins 3 hrs monthly 1day NA No 1 NA

Quality of service 3 2 2 2 NA No 1 NA

c) Functionary responsible for personal hygiene

NA ANM ANM mphw ANM/ASHA WSSO/ANM NA NA


NA Quarterly Weekly quarterly Daily quarterly NA NA

Quality of service NA 3 3 3 3 3 1 NA

5 Street lights a) Functionary responsible for fixing, monitorin

1 GP 6 GP GP GP Lineman Lineman

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Table 4.3 details out the processes related to operation and maintenance of amenities services during last 3 years in GPs.

Providing drinking water to the people is a function both devolved by the law and also by the G.O. But since the functionary employed for the function i.e. pump operator in most GPs recruited by the Public Health Engineering Department (PHED) , paid by the department is hardly accountable to GP. The functionary is responsible for Operating motors, attending to pipelines maintenance & repairs and chlorination and cleaning of pumps was Pump Operator across almost all the gram panchayats however, the time spent for this activity ranges from an hour to 10 hours per day. Functionary responsible for new tap connections and purchase of material in the area of majority of gram panchayat was Junior Engineer.

Sanitation where the political parties also focus on. The situation of sanitation in these gram panchayats were that majorly sweepers were responsible for collection, transport of garbage and its segregation and composting as well. The construction and monitoring of toilets was the responsibility of sarpanch of the panchayat or the gram sabha. However, still open defecation continues in the country after the implementation of the scheme and construction of toilets.

g & maintenance of street lights Average time spent/year

1 day 2 hrs/ day 730 hrs

As per need As per need 30 mins/ day 182 hrs

As per need NA NA


b) Functionary responsible for annual maintenance, if outsourced

1 NA GS NA NA NA NA NA


2 days NA NA NA NA NA NA NA

Quality of service 3 NA 1 NA NA NA 1 NA

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Another aspect is cleaning of roads and drains. The functionary responsible was safai karamchari and sweeper for it and the repairing responsibility was of Gram Panchayat to maintain it and repair if damaged. However, every year there are still complaints of road garbage and blockage of drains especially in rainy season. The situation in country is still far from the picture government promised.

Personal hygiene, ANM was majorly responsible for water testing and hygiene purposes. But the timeliness of the activity varies and that too for a long duration monthly to quarterly.

Inferring that the basic needs and demands are still not met and the data absence from the table against gram panchayats shows a different reality.

Table 4.4: Details of Processes Related to Creation of Infrastructure Facilities during Last 3 Years in Sample GPs

Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Resolutions of GPs for creation of infrastructure Number of resolutions 12 6 8 342 61 49 11 NA Number of resolutions not acted upon

partially Partially partially Partially Partially Partially Fully NA

Functionary responsible 1 1 6 1 1 1 1 & 11 (Sarpanch) NA Average time spent/year 7 days 6 days 50 days 24 days 12 days 3 days NA

2 Tender/Nomination 0 NA NA NA NA NA NA NA Number of works through nominations in last 3 years

nil nil 1 nil NA NA NA

Functionary responsible NA NA 1 NA NA NA NA Time spent/year nil nil nil 1 nil NA NA NA

3 Number of works through tender during last 3 years nil nil nil 1 nil NA NA NA

Functionary responsible nil nil nil 1 nil NA NA NA Time spent/year nil nil nil 1 nil NA NA NA

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Payments - sanctions 4 Number of sanctions during last 3 years

4 10 15 6 30 55

Functionary responsible Time spent/year

5 Payments – MB recordings 3 3 3 4 3 4 NA 55 Functionary responsible JE/SDO SDO 3 1 JE/GS GS/JE NA AE+SDO Time spent/year 3 days 10 days

15 days 6 days 10 days

NA NA

Table 4.4 Show the details of processes related to creation of infrastructure facilities during last three years in the gram panchayats. The number of resolutions ranges from 5-342 among six gram panchayats. Number of resolutions that were not acted upon was partial in most of the gram panchayats (6 GPs). On behalf of the GPs the functionary responsible was Gram Sachiv. In tenders/nominations except for Number of sanctions during last 3 years and payments- MB recording, functionary, timeliness data (adequate) was provided by only 6 gram panchayats. Table 4.5: Details of Tax Collection and Remittances in Sample GPs during Last 3 Years

(Time in HH::MM)

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Number of permissions given for houses /layouts in last 3 years NA NA 1 NA NA NA NA NA

a) Functionary responsible for Receiving & scrutiny of applications NA NA NA NA NA NA NA NA

Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA b) Functionary responsible for on-site verification NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA

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c) Functionary responsible for Forwarding to DTPC & issuing technical permission NA NA NA NA NA NA NA NA

Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA 2 Number of permissionsgiven for Shops & other establishments in last 3 years

NA NA

a) Functionary responsible for Receiving & scrutiny of applications NA NA NA NA NA NA NA NA

Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA b) Functionary responsible for on-site verification NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA c) Functionary responsible for Forwarding to DTPC & issuing technical permission


Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA d) Functionary responsible for issuing license for shops NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA Reaction time NA NA NA NA NA NA NA NA 3 a) Functionary responsible for tax fixation/assessment NA NA NA NA NA GS NA NA Time spent/year NA NA 1/ activity NA NA 2days NA NA Reaction time NA NA 4hrs NA NA 2hrs NA NA b) Functionary responsible for issuing notices to tax payers NA NA 2 NA NA GS NA NA Time spent/year NA NA 1/ activity NA NA 2days NA NA Reaction time NA NA 30mins NA NA 2hrs NA NA c) Functionary responsible collection of taxes & remittance I treasury

1 0 0 NA NA GS NA NA

Time spent/year 2days 0 1 day/ activity NA NA 6days NA NA Reaction time 1hr 0 1hr NA NA 2hrs NA NA

No tax is being collected by the GPs. In few cases house tax collection is reported by the GPs. But unfortunately, no data or details were available with the GPs. In the cases of award-winning GPs, while applying for the award they have shown in the form that they have collected house tax 100% but

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actually no house tax was collected. The amount was deposited in the bank account but no tax collection receipts were found in the records. The dilemma for the study team was how to report. We have taken the view that it should not be considered as tax collection since no records were available and also off the record admission that the amount was deposited by the Sarpanch. Table 4.6: Details of Development and Welfare Functions in Sample GPs during Last 3 Years

(Time in HH::MM)

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Number of implementation of government programs

5 3 3 2 6 MNREGA NA

a) Functionary responsible for NRHM ANM ANM ANM MPHW ANM+MPHW

ANM/ASHA ANM ANM

Time spent/year weekly weekly daily daily Daily daily Weekly Weekly

Reaction time 2 2 2 2 2 2 NA NA

b) Functionary responsible for SarvaShikshaAbhiyan

Headmaster Teacher Teacher

Principal Principal Teachers Principal Head Teacher Time spent/year

daily daily saily daily As per need 8hrs Daily Daily

Reaction time 2 2 8hrs 2 2 2 NA NA

c) Functionary responsible for Others SBM/Motivator

SBM/Motivator 2 NRLM - NA

Time spent/year weekly campaign NA 4hrs NA

Reaction time 2 2 NA 2 - NA NA

2 Selection of beneficiaries for government programmes

a) Number of beneficiaries selected for PDS

9 12 6 300 527 NA NA

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Functionary responsible for Receiving, scrutiny & forwarding of applications

Sarpanch\ GP member

GS/ sarpanch GS/ sarpanch


Secretary NA

Time spent/year

5hrs 6hrs 2days&As per norms

30mins&As per norms

5hrs 8months NA

Reaction time 5hrs 5hrs 5hrs 4hrs 6hrs 5hrs 1hr NA

b) Number of beneficiaries selected for Pensions

16 22 20 8 450 430 NA NA


Sarpanch, GP member


Sarpanch / Secretary

GS/ sarpanch

GS/ sarpanch Secretary Sarpnch

Time spent/year


30mins&As per norms

5hrs 8months NA

Reaction time 5hrs 5hrs 5hrs 4hrs 6hrs 5hrs 1hr NA

c) Number of beneficiaries selected for Health Cards

nil nil 18 60 0 0 NA NA


Sarpanch, GP member


GS/ sarpanch

GS/ sarpanch Secretary NA

Time spent/year


30mins&As per norms

5hrs 8months NA

Reaction time 5hrs 5hrs 5hrs 4hrs 6hrs 5hrs 1hr NA d) Number of beneficiaries

0 NIL NIL - - 26 10 housing NA

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selected for Housing

3 Functionary responsible for Receiving, scrutiny & forwarding of applications

Time spent/year

Reaction time

e) Number of beneficiaries selected for other programs

0 NIL NIL - - 26 10 housing NA


Sarpanch, GP member


GS/ sarpanch

GS/ sarpanch Secretary Sarpanch

Time spent/year

5hrs 6hrs 2 day& As per norms

30 mins& As per norms

5hrs 8months NA

Reaction time 5hrs 5hrs 5hrs 4hrs 6hrs 5hrs 1hr NA Table 4.6 details out the Development and Welfare Functions in gram panchayats during Last 3 years. The number of implementations of government programs in gram panchayats ranges from 2-6. The functionary responsible for NRHM in the gram panchayat was mostly ANM in majority of the GPs along with ASHA or MPHW in some places. Similarly, for Sarv Shiksha Abhiyan the responsible functionary was teachers (three GPs), principal (two GPs) and headmaster (one GP). For other programs most of GPs did not disclose any information, few detailed out SBM/Motivator as functionary that was responsible for it. Further, the selection of beneficiaries for government programmes the data for this was provided by only five-gram panchayats. Under this, there are various types such PDS, pension beneficiaries etc and the responsible authority for each type is different. For PDS the beneficiary ranges from 6-527 and the functionary responsible was sarpanch or gram sachiv majorly. In pensions the beneficiaries range from 8-450 across six-gram panchayats and the responsible functionary in majority of gram panchayat was

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sarpanch and gram sachiv. At certain place secretary and GP member was also the facilitator. However, the details regarding beneficiaries for Health cards, housing and other programs, the data provided by gram panchayat was inadequate and some of them did not even disclosed any information regarding any of the beneficiary of development program namely, Khurdban and Damla. Table 4.7: Details of Monitoring Institutions and Their Functionaries in Sample GPs during Last Year

(Time in HH::MM) Sl# Gram Panchayat GP

1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Functionary responsible for Anganwadi centre

Sarpanch / committee No visit sarpanch - maintained sarpanch AWW Sarpanch/GP

Time spent/year 1hr No visit 0 - 30mins 20mins monthly Monthly

Timeliness of visits 1 No visit 30mins - 1 3 1 1

2 Functionary responsible for Schools(s)

Sarpanch / committee No visit sarpanch - sarpanch sarpanch principal Sarpanch/GP Time spent/year

1hr/visit No visit - 1hr/ visit 20 mins/visit monthly Monthly


3 Functionary responsible for fair price shops

Sarpanch/comittee No visit sarpanch - sarpanch sarpanch Ration distributor Sarpanch/GP

Time spent/year 1hr No visit - 10min 20min monthly Monthly


4 Functionary responsible for PHS/sub-centre

NA No visit NA - sarpanch sarpanch ASHA worker Sarpanch/GP

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Time spent/year 0 No visit NA - 1hr 20mins monthly monthly

Timeliness of visits 0 No visit NA - 1 2 1 1

5 Functionary responsible for SarvaShikshaAbhiyan

Sarpanch/comittee No visit sarpanch - sarpanch principal NA NA

Time spent/year 1HR NO VISIT

- 15mins 2hrs NA NA

Timeliness of visits 1 No v isit 30min - 2 2 NA NA

6 Functionary responsible for other institutions

0 No visit 0 - - - NA NA

Time spent/year 0 No visit 0 - - - NA NA

Timeliness of visits 0 No visit 0 - - - NA NA

According to the Table 4.7, this details out the information regarding monitoring of institutions and their functionaries during last 3 years. Anganwadi centres, schools, PHCs, fair price shops etc in areas are one of the important aspects for the development of community as it provides support education and health wise to the vulnerable section of the society i.e. children and women. Proper monitoring of such institutions and functionaries is of utmost importance. Most of gram panchayats, anganwadi centre was monitored and fifty percent the functionary responsible for it was Sarpanch and rest two of the panchayats did not disclosed any information and one panchayat had AWW as a monitoring personnel. Similar was the case of schools, PHCs and fair shops. However, the data is insufficient as the visits made were not clear. Time spent was also for a shorter duration.

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Table 4.8: Details of Implementing Development Works through Other Funds in Sample GPs during Last Year

(Time in HH::MM)

Sl# Gram Panchayat GP

1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 MGNREGS (Number of shelf of works identified in last year 30 13 33 18 8 1 NA

a) Number of applications received and issued job cards

Functionary responsible sarpanch GS/ sarpanch 2 sarpanch

sarpanch GS/ sarpanch GP/ sarpanch

NA

Time spent/year(per activity) 15mins 1hr 2hr 2hr 2hr 20 mins 15days NA

Timeliness of issue of job cards 2days 2days 15days 2days 2days 2days NA NA

b) Identifying/selection of works

Functionary responsible

Gram sabha Gram sabha GP/ GS Gram sabha

Gram sabha

GP/ GS NA NA

Time spent/year (per activity) 1day 1day 2days 1day 1day 1day NA NA

Timeliness of selection of works 2hrs 2hrs 2hrs 2hrs 2hrs 2hrs 1hr NA

c) Execution of works and submission of progress reports

Functionary responsible GP GP GP GP GP GP NA NA

Time spent/year

As per work As per work As per norms

As per norms

As per timeline NA NA

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Timeliness 2 2 As per sanction

2 2 2 1 NA

d) Conducting social audit

Functionary responsible sarpanch Social AuditUnit

SAU GP SAC

GP SAC SAC NA NA

Time spent/year (per activity) 2hrs 1day 2 4hrs 4hrs 3hrs NA NA

Timeliness of conducting social audit 2 2 3hrs 1 1 2 NA NA

2 Swachch Bharat(Number of toilets completed during last year)

147 7 18 12+9 0 17 NA

a) Survey and listing out households without toilets

Functionary responsible GP member

G. sachiv GS, AWW

GS, AWW

Govt. dept. NA

Time spent/year weekly 1day 30mins 1day 30min NA NA

Timeliness of issue of the survey 2 1 1 2 2 NA NA

b) Identification of place for toilets

Functionary responsible GP/Individual Beneficiary

N/A 2 N/A N/A N/A Sarpanch/GP

Time spent/year 30MINS 0 NA NA NA NA 6mons Timeliness of identification

2 NA NA NA NA NA 2

c) Monitoring of work progress/ quality check

Functionary responsible GP NA NA 1 1 NA NA

Time spent/year 1day 0 1hr 1hr 30min NA NA

Timeliness of quality check 2 NA 30min 2 2 1 NA

d) Payment to the beneficiary

Functionary responsible SBM Co-ordinator Gram Sachive DRDA DRDA SBM

DRDA NA NA

Time spent/year 1DAY 1DAY 2 6MON 7DAY NA NA

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Timeliness of payment 2 1 7DAY 1 2 1 NA

e) Submitting progress report to officials

Functionary responsible Gram Sachive Gram Sachive 2 GS SBM Team

GS SBM Team GP NA

Time spent/year 2HRS 2HRS 1hr 1DAY 1HR On demand

NA

Timeliness of sending progress reports 2 2 1 2 2 1 NA

Table 4.8 indicates development works that were being implemented in the sampled gram panchayat through other funds. Different functionaries were responsible for different areas of work for the implementation of development program. Following are the two development programs that were implemented in these gram panchayats during last year.

MGNREGS the functionary responsible in majority of the gram panchayat (6 GPs) was sarpanch for application received and issue of job cards. For identification and selection of work gram sabha was the functionary responsible. Similarly, for execution of work and submission of progress report functionary responsible was gram panchayat and for conducting social audit, the functionary was mostly social audit units. The time spent by the functionaries was given per activity per year.

Swachh Bharat functionary responsible for survey and listing out households without toilets were gram sachiv in three panchayats, sometimes supported by Anganwadi worker. Two of the panchayats namely Dhani Laxman with GP member as functionary and Khurdban government department takes care of it. However, the remaining two panchayats (Jharwai and Kahanaur) did not disclose functionary details. Similarly, for identification of place for toilets only two panchayats provided the information regarding the same, Dhani Laxman with responsibility given to GP and individual beneficiary and Damla with responsibility given to GP and sarpanch. Monitoring of work progress/ quality check only Dhani Laxman panchayat had disclosed proper data and no other panchayat provided the adequate data. Payment to the beneficiary and submitting progress report to officials, only 5 out of 8 gram panchayats had disclosed the data regarding functionaries’ responsible, time spent and

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timeliness of quality check, namely Dhani Laxman, Pahari, Jharwai, Bhainsru Kalan and Karountha.

Table 4.9: Details of Works Related Software and Their Maintenance in Sample GPs during Last Year (Time in HH::MM)

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Names of software PRIASoft PRIASoft PRIASoft PRIASoft PRIASoft PRIASoft PRIASoft PRIASoft Functionary responsible for marinating/updating the software

1 1 1 1 1 1 1 1

Time spent/year(per activity) 2hrs 3hrs 2hrs 2day 2 1hr daily

2 hrs 3 hrs

Quality of maintenance 2 2 2 2 2 3 2 2 2 Number of books and records to be maintained 15 12 22 16 10 20 20 22

Functionary responsible for marinating/updating the software 1 1 1 1 1 1 1 1

Time spent/year

2hrs 4hrs diff 7day/month

2hrs daily

4hrs weekly

4 hrs 5 hrs/ day Quality of maintenance 2 2 2 2 2 2 2 2

Table 4.9 details out the work-related software and their maintenance in gram panchayats during last year. The name of the software used is PRIASoft which functions for e-panchayat, gram Jyothi, m-assets, plan plus, U-BD, DCB, action plan and others. The functionary responsible for maintaining and updating the software was Gram Sachiv in most of the gram panchayats. Number of books and records to be maintained by the functionary of gram panchayats ranges from 12-22 and only five panchayats disclosed the data. The responsibility given was to Gram Sachiv in three GPs, Junior Engineer in one and Secretary in another GP. While interview with Secretaries, it has been observed that they are not well versed with the IT systems and what actually they practice is that they take support from the data entry operators

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working in the block office either on weekly basis or monthly basis. The need for having a data entry operator has been realised and also raised by the Sarpanches to have exclusive data operators in the GPs. At the same time, single GPs does not have much of the work so instead of exclusive operator, the option of having a data entry operator can be explored on a cluster of 5 GPs so that one day in a week, the service of IT assistant is available to the GP. Table 4.10: Details of Other Functions Performed by Sample GPs during Last Year

(Time in HH::MM)

Sl# Gram Panchayat GP

1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

Averag

e

1 Number of cases of prevention of atrocities against SC / ST NA NA NA NA NA NA NA NA Functionary responsible NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA 2 Number of cases of prevention of atrocities against women/children NA NA NA NA NA NA NA NA Functionary responsible NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA 3 Number of cases/beneficiaries for provision of relief against famine, etc. NA NA NA NA NA NA NA NA Functionary responsible NA NA NA NA NA NA NA NA Time spent/year NA NA NA NA NA NA NA NA

There are various functions and responsibilities that a gram panchayat has and needs to fulfil however, the Table 4.10 which details out the other functions performed by the gram panchayats. The 73rd CAAA and Haryana Panchayati Raj act has entrusted the function to the GPs, the social justice committee formed under section 22 of the state Panchayati raj act has mandated to ensure social justice for SC, ST and women & children but the committees are not functional. The reporting of cases under Prevention of Atrocities against SC and ST is nil, even GPs don’t know what to do. Hence no one comes to GP. According to the data it can be inferred that no reporting has been done regarding the cases of atrocities against SC/ST, women and child and no cases/beneficiaries for provision of relief against famine, etc by any of the gram panchayats.

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The lack of data indicates the seriousness of the situation in gram panchayats regarding the SC/ST group or women and child or the beneficiaries of relief/disaster. The real fact is that the elected representatives and other functionaries of PRIs don’t know that it’s their role. Though Sarpanch has to go police station / has to attend the cases and spent time but they don’t record the cases. The understanding of legal and statutory functioning is lacking in the ERs. Table 4.11: Details of Support to Other Department Other Functions Performed by Sample GPs during Last Year

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

Averag

e

1 Number of events/cases supporting agriculture department 2 2 6 1 6 3 N A N A

Functionary responsible ADO ADO ADO ADO ADO Sarpanch N A N A

Time spent/year

2hr/ event 4 hours

2hr/ event 4 hours

1hr/ event 6 hours

2hr 1hr/event 6 hours

1hr/ event 3 hours

N A N A

2 Number of events/cases supporting AH & dairying department 1 1 2 NA 2 2 N A N A

Functionary responsible VLDA VLDA VLDA NA VLDA Sarpanch N A N A

Time spent/year 2hr/ event 2hours

2hr/ event 2 hours

2hr/event 4 hours

NA 2hr/event 4 hours

1hr/ event 2 hours

N A N A

3 Number of events/cases supporting Fisheries department NA NA 1 NA 1 N A N A

Functionary responsible NA NA NA FO NA Sarpanch N A N A

Time spent/year NA NA NA 1HR/ event 1 hour

NA 1HR/ event 1 hour

N A N A

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4 Number of events/cases supporting Horticulture department NA NA NA 1 NA NA N A N A

Functionary responsible NA NA NA BHO NA NA N A N A

Time spent/year NA NA NA 1.30hr/event NA NA N A N A

5 Number of events/cases supporting land/soil conservation department

NA NA NA 1 NA NA N A N A

Functionary responsible NA NA NA ASCO NA NA N A N A

Time spent/year NA NA NA 2hr/event NA NA N A N A

6 Number of events/cases supporting Minor irrigation department NA NA NA NA NA NA NA NA

Functionary responsible NA NA NA NA NA NA NA NA

Time spent/year NA NA NA NA NA NA NA NA

7 Number of events/cases supporting social & farm forestry department NA NA NA NA NA NA NA NA



8 Number of events/cases supporting minor forest produce department NA NA NA NA NA NA NA NA



9 Number of events/cases supporting small & micro industries department

1 1 NA NA NA NA NA NA

Functionary responsible GM GM NA NA NA NA NA NA

Time spent/year 1hr/event 1hr/event NA NA NA NA NA NA

10 Number of events/cases supporting non-conventional energy department


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11 Number of events/cases supporting Library department NA NA NA NA NA NA NA NA



12 Number of events/cases supporting culture activities department 2 2 4 3 3 3 N A N A

Functionary responsible DPRO DPRO APRO DPRO/ GP DPRO Sarpanch NA NA

Time spent/year 1hr/event 2hours

1hr/event 2hours

2hr/event 8hours

3hr/event 9hours

2hr/event 6hours

2hr/event 6hours

NA NA

13 Number of events/cases supporting women & child welfare department

6 3 6 2 5 1 N A N A

Functionary responsible CDPO/ Supervisor

CDPO/ Supervisor

CDPO NRLM AWW CDPO Sarpanch NA NA


2hr/event 6hours

3hr/event 18hour

2hr/event 4hours

3hr/event 15hour

1hr/event 1 hour

NA NA

14 Number of events/cases supporting PDS department 4 2 1 NA 1 NA N A N A

Functionary responsible DFSC DFSC Depot Holder NA FSO NA N A N A


3hr/event 6hours

1hr/event 1hour

NA 1hr/event 1hour

NA N A N A

Table details out the support to other department other functions performed by GPs during last year

Agriculture: functionary responsible was ADO and number of cases ranges from one to six, time spent 2-3hrs per event.

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AH & dairying department: functionary responsible was VLDA and number of cases one to two, time spent 1-2hrs per event.

Fisheries department: functionary responsible was FO/sarpanch and number of cases one each, time spent 1 hour per event. Only two GPs namely Bhainsru Kalan and Kahanaur provided the details rest no other GP disclosed information.

Horticulture department: only Bhainsru Kalan GP provided the details of BHO functionary responsible with one case/event and one and half hours spent. Further, land/soil conservation department details were also provided by this GP with ASCO as functionary and one event.

Minor irrigation department, social & farm forestry department, minor forest produce department, non-conventional energy department and library department: no GP provided any data.

Small & micro industries department: only Dhani Laxman and Pahari GP provided the information, functionary responsible-GM and one case and one hour spent on average.

Culture activities department, women and child development department & PDS department: six GPs namely, Dhani Laxman, Pahari, Jharwai, Bhainsru Kalan, Karountha and Kahanaur were the GPs that provided the information.

These departments are very crucial and needs to be taken care of however the missing data and lack of functionaries makes it difficult to maintain these departments.

Table 4.12: Details Adequacy of Staff in Sample GPs

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Number of functionaries with primary responsibility for Governance 1 1 1 1 1 1 1 1

Staff adequacy 3 3 3 3 3 3 3 3 Number of functionaries with support responsibility for Governance

3 3 3 3 3 3 3 3

Staff adequacy 2 2 2 2 2 2 2 2 2 Number of functionaries with primary responsibility for Civil Services

1 1 1 1 1 1 1 NA

Staff adequacy Number of functionaries with support responsibility for Civil Services

3 3 3 3 3 3 3 1

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Staff adequacy 2 1 2 2 2 2 Full time NA 3 Number of functionaries with primary responsibility for Amenities 1 1 1 1 1 1 1 1 Staff adequacy Number of functionaries with support responsibility for Amenities 3 3 3 3 3 3 3 3 Staff adequacy 2 1 2 2 2 2 Full time 1

4 Number of functionaries with primary responsibility for Infrastructure 1 1 1 1 1 1 1 1

Staff adequacy 2 1 2 2 2 2 Full time 1

Number of functionaries with support responsibility for Infrastructure 3 3 3 3 3 3 3 3

5 Number of functionaries with primary responsibility for Tax Collection 1 1 1 3 1 1 NA NA

Staff adequacy 2 1 2 2 2 2 NA NA Number of functionaries with support responsibility for Tax Collection

3 3 3 1 3 3 NA NA

6 Number of functionaries with primary responsibility for Development/Welfare Functions 1 1 1 1 1 1 1 1

Staff adequacy Number of functionaries with support responsibility for Development/Welfare Functions

3 3 3 3 3 3 3 3

Staff adequacy 2 1 2 2 2 2 1 1 7 Number of functionaries with primary responsibility for Monitoring Institutions

1 1 1 1 1 1 1 1

Staff adequacy Number of functionaries with support responsibility for Monitoring Institutions

3 3 3 3 3 3 2 2

Staff adequacy 2 2 2 2 2 2 1 3

8 Number of functionaries with primary responsibility for Development Works Through Other Funds

3 1 1 1 1 1 1 NA

Staff adequacy

Number of functionaries with support responsibility for Development Works Through Other Funds

1 3 3 3 3 3 3 NA

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Staff adequacy 2 1 2 2 2 2 1 NA 9 Number of functionaries with primary responsibility for Disasters/Atrocities Management

1 1 1 1 1 1 1 NA

Staff adequacy Number of functionaries with support responsibility for Disaster/Atrocities Management

3 3 3 3 3 3 3 NA

Staff adequacy 2 1 2 2 2 2 1 NA 10 Number of functionaries with primary responsibility for Books & Records Keeping

3 3 3 3 3 3 1 NA

Staff adequacy Number of functionaries with support responsibility for 0 1 1 1 1 1 3 NA Staff adequacy 1 1 2 2 2 2 1 NA 11 Number of functionaries with primary responsibility for Finance & Admin Functions

1 1 1 1 1 1 1 1

Staff adequacy Number of functionaries with support responsibility for Finance & Admin Functions

3 3 3 3 3 3 3 3

Staff adequacy 12 Number of functionaries with primary responsibility for Other Functions


Staff adequacy NA NA NA NA NA NA NA NA Number of functionaries with support responsibility for Other Functions

NA NA NA NA NA NA 3 3

Staff adequacy NA NA NA NA NA NA 1 1

Table 4.12 details out the adequacy of staff in the Gram Panchayats. The number of functionary responsible for various functions like books & records, finance & admin, monitoring institutions, development work etc, ranges from 1-3 across 8 gram panchayats and are secretaries or sarpanches looking at this. However, the staff adequacy differs from the type of function and also across different gram panchayats and some of the GPs have no data available. The Sarpanch who, in the current role should not performing executive function, has been taking many of the function due to inadequacy of staff the respective function. For example, none of the GP has full time secretary and hardly 25% of secretaries time is available for a GPs. For all practical

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purposes, the secretary is available once a week at GP level. Sarpanch in turn has to perform many of the function informally .

Table 4.13 Total Time Spent by Different Functionaries in Sample GPs during Last Year

Sl# Gram Panchayat

GP 1

GP 2

GP 3

GP 4

GP 5

GP 6

GP 7

GP 8

1 Total time spent by Functionary - 1 Gram Sachiv 8 hrs 8 Hrs 8 hrs 8 hrs 8 hrs 8 hrs 8 hrs 8 hrs As per time and work observation 7 hrs 6 hrs 5 hrs 5 hrs 5 hrs 7 hrs 3 hrs 4 hrs 3 Total time spent by Functionary -3 Pump Operator 8 Hrs 8 Hrs 8 Hrs 8 Hrs 8 Hrs 8 hrs 8 Hrs 8 Hrs As per time and work observation 4.5 hrs 6 hrs 6 hrs 4 hrs 6 hrs 6 hrs 4 hrs 6 hrs 5 Total time spent by Functionary - 5 Safai Karamchari 8 Hrs 8 Hrs 8 Hrs 8 Hrs 8 Hrs 8 hrs 8 hrs 8 hrs As per time and work observation 5 Hrs 6 Hrs 6 hrs 6 Hrs 6 Hrs 6 hrs 5 hrs 8 hrs 8 Total time spent by Functionary - 8 Chowkidar No fix time

No fix time No fix time



No fix time As per time and work observation 4 Hrs 4 hrs 6 hrs 4 hrs 5 hrs 7 hrs 4 hrs 3 hrs

Task performed and time taken by GP functionary. However, no details are provided by any gram panchayat. No task and time spent on them are disclosed anywhere for any of the functionaries. There are certain tasks that are mentioned to be performed by functionaries however, no task is disclosed by any GPs. The data gap makes it difficult to study the task performed in actual. The study maps the process of Gram Panchayats. Through the above tables it can be seen data was either missing or figures are not disclosed by the gram panchayats which did not provide us the actual situation to analyze and explore the possibilities and gaps. Lack in details and figures, no disclosure by any GPs regarding certificates of birth, death etc as the records of these certificates are important for panchayat/state/nation to keep a track of population and other details. No details regarding the amenities provided like street lights, etc. Further the details regarding the functions related to amount spent on creation of infrastructure facilities in last three years. The details are regarding roads, community hall and other buildings, market yards and drinking water. Tax being a big source of revenue only few GPs collected and no permissions were issued to any GPs for house, layouts and shops. Similar was the case with beneficiaries and implementation of development program and monitoring institutions and prevention of atrocities, missing data at most of the places. Details

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regarding support to other departments most GPs were seen involved in agriculture and women & child welfare the most. Agriculture being one of the main sources of living and earning of people in rural India. Further, women and child have always been in focus regarding the development. However, the missing data and amenities/services that are promised to the people further no monitoring and implementation gaps of development program. This shows that India still has a long way to achieve its goals of development. These areas still need to be looked and improved in order to achieve the ultimate goal of development.

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Chapter 5 Functionaries in the Gram Panchayats

Introduction Provide a brief description of types of functionaries in the gram panchayats and how they are recruited, etc. Also briefly describe how the data for this section was collected.

None of the GP has a full-time dedicated secretary. The secretary is responsible for 3-4 GPs and mostly available in the block office. They come to GP as per the need, on an average a day in week or 4 days in a month is spent in one GP. Sarpanch has to run around the secretary to get the minutes recorded, resolution passed or cheque to be signed for payments etc. Even during the study, secretary could not give two hours at stretch in the GP. In case of Khurdban and Damla GPs of Yamuna Nagar district, the secretaries could not turn out to GPs. Most of the data was collected from Sapranch, secretary met in the block office only.

The chowkidar is kind of office assistant to the GPs. GP office practically function from Sarpanch’s house. He is available on the call and mostly found at the house of Sarpanch whenever you visit.

The sweepers the only functionaries who works daily. Though there have been complaints from citizens about their work but they are from the village and Sarpanch and ward members monitor their work.

The second category of functionaries do not really related themselves with the panchayats. But in most of the cases sarpanches visits the schools on weekly or monthly basis and support

in case any problems. Anganwadi workers functions as per the schedule of AWC. They spent less time in the centers

and hardly made home visits. They are more engaged in the administrative works. Though they reports home visit, but in informal interactions it has been observed that home visits are not made regularly. Also the time spent in the centres is also less, less focus on child development. On the contrary many other works like surveys etc. have been assigned by the government which consume their time.

Table 5.1: Basic Information of Functionary (give designation) in Sample GPs 5.1 (A) Gram Sachiv – Panchayat Secretary

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GP/ Functionary Details GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8

Designation Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv

Gram Sachiv Gender 1 1 1 1 1 1 NA 1 Age in years 45 45 45 29 47 31 NA 57 Qualification 4 4 3 6 6 4 NA 6 Job related skills

Training on Record Keeping

Training on Record Keeping Trainings at HIRD Yes Yes Yes NA NA

Caste 4 4 5 4 4 3 NA 4 Date of joining 10.05.2007 10.05.2007 25.03.1998 11.07.2012 11.5.2007 24.7.12 NA Mar-88 Nature of employment 1 1 1 1 1 1 NA 1 Duration of present contract


Contract commencement date NA NA NA NA NA NA NA NA

Job chart availability 1 1 1 1 1 2 NA 1 Total experience in years

11 11 20 5 11 5 NA 30

Current position in the GP 1 1 1 1 1 1 NA 1

Reporting Authority BDPO BDPO BDPO BDPO SEPO BDPO NA BDPO Staying in the GP Village?

2 2 2 2 2 2 NA 2 If no, transport mode to GP

1 1 1 3 3 3 NA 3 Distance travelled 4km 4km 10km 8km 14km 30 Km NA 30km Salary per Month in INR Rs. 28500/- Rs. 28500/-

Rs. 45400/- Rs. 23714/-

Rs.28600/- Rs. 20000/- 28500/- NA

Periodicity of salary payment 1 1 1 1 1 1 1 1

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Salary paid by BDPO/ Treasury BDPO/ Treasury

BDPO Development & Panchayat

Treasury Development & Panchayat through

Development & Panchayat through

Development & Panchayat through

Table 5.1 (A) detailed out Gram Sachiv’s basic information. All GPs disclosed the data except for Khurdban panchayat. The Khurdban Secretary despite all efforts had not turned up for providing information and his interview could not be taken. Some information regarding GP has been taken from the Sarpanch, who was also not willing to share much of the details. Only males can be seen working as Panchayat Secretary. The state has 33% women sarpanches, how comfortable are women sarpanches working with the secretary, it in the sample GPs, only one GP had women Sarpanch but practically her husband who is retired from Air force is working as Sarpanch, everyone deals with him only. This basic qualification for the position is matriculation, across different gram panchayats with at least 10th standard mostly and one graduate. Most had an experience of 10 years to 30 years of gram sachiv in Damla. The reporting authority was BDPO. All sachiv had to travel ranging between 4-30 kms. 5.1 (B) Chowkidar


Designation Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Gender NA 1 1 1 1 NA NA Age in years NA 62 35 59 43 NA NA Qualification NA 1 4 9 1 NA NA Job related skills NA No NA NA Yes NA NA Caste NA 3 2 2 2 NA NA Date of joining NA Feb.1996 29.1.16 1994 2007 NA NA Nature of employment

NA 2 1 1 1 NA NA

Duration of present contract NA NA NA NA NA NA NA

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Contract commencement date NA NA NA NA NA NA NA

Job chart availability NA 3 3 2 1 NA NA Total experience in years

NA 22 2 23 11 NA NA

Current position in the GP NA Chowkidar 10 Choukidar

10 Choukidar 10 NA NA

Reporting Authority NA Sarpanch Sarpanch Sarpanch Sarpanch NA NA Staying in the GP Village?

NA 1 1 1 1 NA NA

If no, transport mode to GP NA NA NA NA NA NA NA

Distance travelled NA NA NA NA NA NA NA Salary per Month in INR

NA 3500/- Rs. 3500/- Rs. 3500/- 4500/- NA NA

Periodicity of salary payment NA 2 1 1 1 NA NA

Salary paid by NA Dev.& Panchayat

Dev. & Panchayat Deptt.

BDPO Dev. & PR NA NA

According to the data in Table 5.1(B), represents the basic information of chowkidar. Male can be seen only and reports to Sarpanch of the panchayat. The salary is equal for a 2-year experienced of 35 years of age and 23-year experienced person of 59 years old. Salary are either paid by BDPO or Development and panchayat department. The chowkidar could not be interviewed in four GPs. 5.1 (E) Safai karmi


Designation Safai karmi Safai karmi Safai karmi Safai karmi Safai karmi Safai karmi Safai karmi

Safai karmi

Gender 2 1 NA 2 1 2 NA Male Age in years 35 38 NA 44 35 35 NA 26

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Qualification 1 2 NA 1 2 3 NA Primary Job related skills NA No NA 0 0 Yes NA NA Caste 2 2 NA 2 2 2 NA 2 Date of joining 06-10-2011 08.08.2008 NA 2005 2005 2008 NA Aug-05 Nature of employment 2 2 NA 1 2 2 NA Temporary Duration of present contract

NA NA NA NA NA 10 yrs NA NA

Contract commencement date NA NA NA NA NA NA NA NA

Job chart availability 3 1 NA 1 2 Yes NA NA Total experience in years

6 10 NA 13 11 10 NA 13

Current position in the GP 9 9 NA 9 9 9 NA 9

Reporting Authority Gram Panchayat

Gram Panchayat NA Sarpanch Sarpanch Sarpanch NA Sarpanch

Staying in the GP Village? 1 1 NA 1 1 1 NA 1 If no, transport mode to GP

NA NA NA NA NA NA NA Bicycle

Distance travelled NA NA NA NA NA NA NA NA Salary per Month in INR

Rs. 10000/- Rs. 10000/- NA Rs.10000/- Rs.10000/-

10000/- NA 10000/-

Periodicity of salary payment 2 3 NA 2 2 2 NA NA

Salary paid by Development & Panchayat Deptt. Haryana

Gram Panchayat

NA Dev & PR Dev. & PR Dev. & PR NA Dev. & PR

Table 5.1 (e) shows safai karamchari information. Most of the Gram Panchayats have 3-4 Sweepers. All of them are temporary workers. Mostly belongs to SC community and are local from the same GP. They are paid minimum wage. Kahanaur and Kurdban panchayat did not provide any information.

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Gender balance can be seen as both male and female workers are there. Most karamcharis are primary level literate. It was a temporary position with salary based on experience and skills and reported to different officials. Most karamcharis reside in the area itself. 5.1 (g) Pump Operator

GP/ Functionary Details GP-1 Dhani Laxman

GP-2 Pahari GP-3 Jharwai GP-4 Bhainsru Kalan

GP-5 Karountha GP-6 Kahanaur

GP-7 GP-8

Designation Pump Operator Pump Operator Pump Operator Pump Operator

NA Pump Operator NA NA

Gender 1 1 1 1 NA 1 NA NA Age in years 40 32 42 55 NA 56 NA NA Qualification 3 3 3 3 NA 3 NA NA Job related skills Machinery Handling Training

No No No NA Yes NA NA

Caste 3 2 4 2 NA 3 NA NA

Date of joining 06-04-2008 12.8.2015 6.9.2016 10.04.16 NA 04.1.1987 NA NA

Nature of employment 2 4/ Daily Through Contractor

2 3 NA 1 NA NA

Duration of present contract NA NA NA By Contractor

NA NA NA NA

Contract commencement date NA NA NA NA NA NA NA

Job chart availability 1 1 2 3 NA 1 NA NA Total experience in years 10 2.5 1.5 3 NA 31 NA NA Current position in the GP 7 7 7 7 NA 7 NA NA Reporting Authority JE PHED Sarpanch J.E PHED J.E PHED NA J.E. NA NA Staying in the GP Village? 1 1 1 1 NA 2 NA NA If no, transport mode to GP NA NA NA NA NA 3 NA NA Distance travelled NA NA NA NA NA 13 NA NA

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Salary per Month in INR Rs. 4500/- Rs. 2000/-

Rs. 4000/- Rs. 7000/- NA Rs. 37000/-

NA NA

Periodicity of salary payment 1 2 3 1 NA 1 NA NA Salary paid by JE Sarpanch JE PHED JE NA PHED NA NA

Table 5.1 (g) details out the basic information of pump operator. Except one GP i.e. Kahanaur, pump operator is a contractual staff of PHED. The Regular employee receives 10 times salary to the contractual. In on GP i.e. that is Pahari, which is also a hilly remote GP, pump operator is employed by GP and paid directly. He is paid only Rs. 2000 /per month. In three GPs, Karountha, Damla and Khurdban, pump operator could not be interviewed. Khurdban GP neither Sarpanch nor Panchayat Secretary provided support in the study, in their absence OR absence of their instruction, no functionary was ready to give any information. Table 5.2: Functions Being Performed by the Functionary (give designation) in Sample GPs 5.2 (a) Gram Sachiv

Sl# GP/ Functionary's Functions

GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average

1 Designation of the Functionary

1 1 1 1 1 1 1 1

2 Days Spent/ Month on Activity -1

GP Records GP Records

GP Records GP Records

GP Records GP Record NA GP Record

Summer (Mar -Jun) 4 4 3 4 3 5 NA 4 4

Rainy (Jul – Oct) 5 5 3 4 3 4 NA 4 4

Winter (Nov- Feb) 5 5 4 4 3 4 NA 4 4

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Work satisfaction rating 3 3 1 2 2 1 NA 3

3 Days Spent/ Month on Activity -2

Proceeding & Resolutions of GP meeting






NA Proceeding & Resolutions of GP meeting

Summer (Mar -Jun) 2 2 2 3 3 2 NA 2 2

Rainy (Jul – Oct) 5 5 2 2 3 2 NA 2 2

Winter (Nov- Feb) 5 5 2 3 3 2 NA 2 2

Work satisfaction rating 3 3 1 1 2 1 NA 1 1

The Gram Sachiv /Panchayat Secretary are in-charges of 3-4 GPs, all of them give 25 to 30 percent of their time to GPs. The key functions of the secretaries are to write proceedings of the meetings, resolutions of the GPs, updating records and online entry in the three software Planplus, Actionsoft and Priyasoft. They also maintain books of accounts. Sarpanch has to perform many of the task which GS are supposed to in absence of Secretaries. Most of them found satisfactory with their work, some of them are not because of many other tasks of the government are assigned to them by the government. Many political mobilizations have also been reported by the Sarpanches which comes through GS only. This has huge financial burden on the GPs. 5.2 (B) Chowkidar




Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar

2 Days Spent/Month on Messenger Messenger Messenger Messenger Messenger Messenger Messenger Messenger

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Activity -1 Summer (Mar -Jun)

25 24 28 30 30 24 25 26 28

Rainy (Jul – Oct) 20 24 22 23 24 24 24 24 24

Winter (Nov- Feb) 25 24 28 28 30 24 22 24 28

Work satisfaction rating 2 2 2 2 2 2 2 2 2

The Chowkidar in the Gram Panchayat are working as messenger and security in panchayat. The average time chowkidars spent in summer and winter 28; rainy 24. Most of the chowkidars in gram panchayats are satisfied with their work. 5.2 (c) Pump Operator




Pump Operator

Pump Operator

Pump Operator

Pump Operator

Pump Operator

Pump Operator

Pump Operator

Pump Operator

2 Days Spent/Month on Activity -1

30 30 30 30 30 30 30 30 30

Summer (Mar -Jun) 30 30 30 30 30 30 30 30 30 Rainy (Jul – Oct) 30 30 30 30 30 30 30 30 30 Winter (Nov- Feb) 30 30 30 30 30 30 30 30 Work satisfaction rating

1 1 1 1 1 1 1 1 1

Pump operator working in gram panchayat are functioning to supply water to the households. They look at overall supply like connection of taps etc. Thus, water being necessity is an important work to

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be catered. The average time spent by Pump Operator across gram panchayats is 30. Most of the pump operators are happy and satisfied with their work. 5.2 (d) Safai Karamchari




Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper Sweeper

2 Days Spent/Month on Activity -1

Cleaning Cleaning Cleaning Cleaning Cleaning Cleaning cleaning Cleaning

Summer (Mar -Jun) 22 24 25 25 25 25 25 25 24 Rainy (Jul – Oct) 20 22 24 25 25 24 25 25 24 Winter (Nov- Feb) 22 23 23 25 25 8 NA 25 24 Work satisfaction rating

3 1 1 1 1 1 1 1 1

Most safai karamchari have the function of sweeping and cleaning across the gram panchayats. The average time spent by safai karamcharis in gram panchayats is 24 and on an average most of the safai karamchari are satisfied with the work. Table 5.3: Days Spent by Functionaries on Various Functions and Their Work Satisfaction (give designation) in Sample GPs

Sl# Functionary's Functions GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Average 1 Days Spent by Functionary-1 Gram Sachiv 6 6 6 6 6 6 6 6 6 Work satisfaction 3 3 3 1 3 1 1 1 3 2 Days Spent by Functionary-3 Pump Operator 24 24 26 24 30 30 30 30 30 Work satisfaction 1 1 2 1 1 2 1 2 1 3 Days Spent by Functionary-6 Safai Karamchari 24 25 25 26 24 25 26 25 25 Work satisfaction 3 1 2 2 2 2 3 1 2

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4 Days Spent by Functionary-8 Chowkidar 28 30 30 30 30 28 30 30 30 Work satisfaction 1 1 1 1 1 1 1 1 1

According on the data in Table 5.3, days spent by functionaries on various functions and their work satisfaction. The average time spent by gram sachiv is 6 days and the work satisfaction ranges but most sachivs are satisfied with their work. Though sachiv have major responsibilities in the panchayat but if looking at their average time spent is not that satisfactory. Pump operators are working 30 days on an average in panchayats and are averagely satisfied by their work. Safai karamchari are averagely satisfied with their work and average time spent is 25 days by safai karamcharis. The chowkidars are working 30 days on an average and work satisfaction is satisfying. Pump Operators, safai karamchari and chowkidars are only functionaries that spent on an average of 25-30 days. Table 5.4: Change in Work during last 5 Years

Sl# Functionary Designation Change in Work Responsibilities During Last 5 Years

GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Gram Sachiv 1 1 1 1 1 1 NA NA 2 Pump Operator 1 1 1 1 1 1 NA NA 3 Safai Karamchari 1 1 1 1 1 1 NA NA 4 Chowkidar 1 1 1 1 1 1 NA NA

*1 stands for no change Table 5.4 indicates the change in responsibilities of work of functionaries working in gram panchayat during last five years. However, not many times the responsibilities had been changed of functionaries, apart from once in last five years of most functionaries. Though Dhani Luxman and Pahari were the only panchayats to provide the information. Rest other panchayat was missing out this detail.

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Table 5.5: Machinery, Equipment’s, Tools, and Software used by the Functionaries in Sample GPs GP Item No. Item Purpose Whether available? Yes-1, No-2

If available, Is it being used? Yes-1, No-2, NA-9

Is there a need for upgrading the present equipment (s) or any need for advanced equipment? Give details

Designation of the Functionary Mentioning the Item

1 Tasla Pickup collection Yes Yes No Safai Karmi

2 Jhadu Cleaning Yes Yes No 3 Rikshaw Transportation

Yes Yes No

4 Spade Collection Yes Yes No 5 Laptop Record updation

Yes Yes No Gram Sachiv

GP Item No. Item Purpose Whether available? Yes-1, No-2




GP-2

1 Tasla Collection Yes Yes No Safai Karmi 2 Riksahw transportation Yes Yes No 3 Key Open valve Yes Yes No Pump Operator 4 Laptop Record keeping

Yes Yes Window upgade Gram Sachiv

5 Plan plus Yes Yes 6 Actionsoft Yes Yes 7 Priyasoft Yes Yes

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1 Key watersupply Yes Yes No Safai Karmi 2 Laptop Record Precessing

No No Yes Gram Sachiv 3 Printer printing No No Yes





GP-4

1 Tasla Yes Yes No Safai karmi 2 Jhadu Yes Yes No 3 Rikshaw Yes Yes No 4 Belcha Yes Yes No 5 Valve Operator Yes Yes Pump Operator 6 Bleach Powder 7 Laptop Record keeping

Yes Yes Window upgrade Gram Sachiv 8 Plan plus Yes Yes 9 Actionsoft Yes Yes 10 Priyasoft Yes Yes

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GP 5

1. Lathi Yes Yes Chowkidar 2. Torch use in Night Yes Yes 3. Seeti(whistle) use in Night Yes Yes 4. Kassi Yes Yes Safai Karmi

5. Kolachi Drain clean Yes Yes 6. Rehri Garbage collection

Yes NA Yes

7. Panja Pick polythene Yes Yes

8. Laptop Record Keeping Yes Yes Gram Sachiv 9. Printer Printing Yes Yes 10. Govt. PES Yes Yes 11. Software Yes Yes





GP-8 1 Computer NA NA NA NA Gram Sachiv

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According to the data in above tables which showcases the machinery, equipments, tools and software’s used by the functionaries of gram panchayat. Majority of the GPs had same machinery and equipments that were being used by the functionaries as per their job further providing details on whether those equipments need upgradation. Meth/safai karmi using Jhadu, rikshaw etc; Panchayat Secretaries use laptops provided to them by the government. The laptops are used only for software’s, most of the other record keeping is done manually. There is lot of scope of up gradation both at skill level and machinery, equipment and tools. Table 5.6: Measures for Simplification and Reduction in Work Load / Physical Drudgery FO 5.6 (a) Gram Sachiv

Sl. No Measure GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Automation of main functions 1 1 1 2 1 1 1 1 2 Equipment 2 2 2 2 1 2 1 2 3 Capacity building 1 1 1 3 1 1 1 1 4 staff strength 1 1 1 2 1 1 1 1 5 Other measures (specify) 0 0 0 Manpower/2 0 NA NA

Gram Sachiv, to help and reduce their workload the measures available across gram panchayats were automation function, capacity building and staff strength. Five GPs provided the data namely, Dhani Luxman, Pahari, Jharwai, Bhainsru Kalan and Karountha. Rest other GPs were missing these details. 5.6 (b) Safai Karmi

Sl. No Measure GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Automation of main functions 1 1 1 1 1 1 1 1 2 Equipment 1 1 1 1 1 1 1 1 3 Capacity building 2 3 3 3 1 3 3 3 4 staff strength 2 2 1 2 1 4 1 1 5 Other measures (specify) 0 0 0 9 9 0 1 1

According to data in 5.6 (d) only Karountha had all measures available to them, Dhani Luxman was missing capacity building and staff strength; Pahari had automation and equipments; Jharwai had all measures except partial capacity building was there; Bhainsru Kalan had automation function, equipment, partial capacity building measures to help with workload.

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5.6 (c) Pump Operator Sl. No Measure GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8

1 Automation of main functions 1 1 NA NA NA 1 NA NA 2 Equipment 3 1 NA NA NA 1 NA NA 3 Capacity building 1 1 NA NA NA 1 NA NA 4 staff strength 1 1 NA 1 NA 1 NA NA 5 Other measures (specify) 0 0 NA NA NA 0 NA NA

According to above table, only Dhani Luxman and Pahari gram panchayat had the measures available to them while Bhainsru kalan just had staff strength available to them to support pump operator for their work load. No other gram panchayat provided the details. 5.6 (d) Chowkidar

Sl. No Measure GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Automation of main functions NA NA NA NA 1 1 NA NA 2 Equipment NA NA NA NA 1 1 NA NA 3 Capacity building NA NA NA NA 1 1 NA NA 4 staff strength NA NA NA NA 1 1 NA NA 5 Other measures (specify) NA NA NA NA 9 9 NA NA

Table 5.6 (i) infers that only Karoutha had measures for chowkidar and no other gram panchayat had such measures available for Chowkidar position for the workload. Table 5.7: Training Needs and Capacity Building of Functionaries in Sample GPs 5.7 (a) Gram Sachiv

Sl# Required Training Area GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Induction /refresher courses 1 1 2 1 2 1 1 1 2 Technical skills 1 1 2 1 1 1 1 1 3 Personality development 1 1 2 1 1 1 1 1 4 Exposure visits 1 1 2 1 1 1 1 1 5 Others (specify) 0 0 0 0 0 0 0 0

5.7 (b) Safai Karmi

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5.7 (c) Pump Operator


5.7 (d) Chowkidar

Sl# Required Training Area GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 1 Induction /refresher courses 2 2 1 2 2 2 2 2 2 Technical skills 1 1 1 1 2 1 1 1 3 Personality development 1 1 1 1 1 1 1 1 4 Exposure visits 2 2 1 2 1 2 2 2 5 Others (specify)

Table 5.7 (a, b, c, d, e, f, g, h, i) indicates the training needs and capacity building of functionaries. Most of the functionaries across gram panchayat require training regarding induction courses, technical skills, personality development and exposure visits. However not every gram panchayat disclosed the information for different functionaries, especially three gram panchayats Kahanaur, Khurdban and Damla. Table 5.8: Support and Guidance Provided to or Required by Functionaries in Sample GPs

Sl# Required Training Area GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8

1 Functionary designation

Safai Karmi Safai Karmi Safai Karmi Safai Karmi Safai Karmi NA NA

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Do you receive support / guidance from boss?

3 2 1 3 3 NA NA

If the answer to the above is 2 or 3, nature of guidance/ support received

Information work Workplan NA Work places for Duty

Workplan NA

Support received from co-workers

3 3 3 3 3 NA


NA

Support received from subordinate staff

3 3 3 3 3 NA




NA


3 2 1 3 NA


Proper Operation

Technical Support NA Technical NA


3 NA 3 1 NA


NA NA 3 NA NA NA NA NA

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3 NA 3 2 NA NA NA NA


Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv Gram Sachiv


3 3 3 3 3 3 3 3


Working with in norms

Working with in norms

Information Schemes, Changes guidelines

Guidance Guidance Information Information


3 3 3 2 3 3 3 3




3 3 3 2 3 3 3 3


Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar Chowkidar


3 3 3 3 3 3 3 3

If the answer to the above is 2 or 3, nature of guidance/

For work For work For work For Work Duty

For Work Plan For work For work For work

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support received Support received from co-workers

3 3 3 3 3 3 3 3


3 3 3 3 3 3 3 3


3 3 3 3 3 3 3 3

Table 5.8 represents the support and guidance provided to or required by the functionaries.

Safai Karmi: support regarding information work, work plan and for duty Pump Operator: proper operation and technical support is required Gram Sachiv: working with norms, information, schemes related, changes guidelines Chowkidar: work plan Not every GP had disclosed information regarding support required by functionary.

Summary of results The chapter looks at the basic information of the functionaries recruited in gram panchayat, job profile, functions, and work satisfaction, measures to reduce the workload, support and training needed by them. Gram Sachives are assigned multiple GPs hence overloaded with the work. Large GPs in particular should have a full time secretary. It has been reported by both Secretary and the Sarpanch that their availability is very less and lot of works specially payments and starting of work get delayed. Though there is women participation at elected leadership’s level but in functionaries, specially the secretary there are not women. If look at the information and job profile of different functionaries working in different gram panchayats. There was no presence of female at higher position like Gram Sachiv. Further, jobs like, Pump operator only male participation can be seen. Though there were only two job profiles namely Teacher and Safai Karmi where both the gender can be seen, thus a gender balance can be seen. Moreover, no presence of transgender is there despite now being the third gender nor the disabled population can be seen at these positions.

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Functions of functionaries across Gram Panchayats are same and the work satisfaction was however given but the detail was not adequate. Similar was the case with change in work, the number does not provide enough information. Gram Panchayats and functionaries have more or less same machinery, equipments, tools and softwares. Though, there are some gram panchayat who require these equipments to upgrade for smooth functioning. To help reduce the work load of functionaries the measures are provided like automation of function, equipment’s, capacity building and staff strength. Through these measures the functionaries are better able to deliver their work and their capabilities are also enhanced. Further, training needs and support and guidance are also looked of these functionaries so to be able to provide the necessary support they require. But the most important fact that came into light was the non-disclosure of data or the missing data of Gram Panchayats regarding functionaries, functions, measures etc. Thus, gap of information is still there.

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Chapter 6 Time and Workload

Introduction The time and work load which is main aspect of the study could be collected so rigorously because of the mobility of the some of the key functionaries. The main functionary’s i.e. Gram Sachiv, Chowkidar and Sweeper were not accessible for observation. The Panchayat Secretary which is responsible for 3-4 GPs in the sample GPs, mostly found in the block office and then running one GP to another. Their functioning was observed on different occasions and not in continuation for five days or a week. The data collection team then went to conduct FGDs with citizens. Through this process, it could be observed the functioning of the functionaries. The Chowkidar is an important part of the Panchayat. He works as messenger for the GP, communication and information about GP and Gram Sabha meeting is done by him only. But his working hours are not limited /fixed and on call basis. To map his time was difficult. He was available for interview in six GPs but not available for observation on daily basis. At the same time, available at any time whenever we visited GP on a call from Sarpanch. Table 6.1: Task performed and Time taken by GP Functionary in Sample GPs Table 6.1 (a) Gram Sachiv

Sl# Task and Time GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 I Number of days observed 5 5 5 5 5 5 5 5 Total number of spells 4 4 4 4 4 4 4 4 Start time of first spell 10:00 am 9:00 am 9:00 am 9:00 am 9:00 am 9:00 am 9:45 am 9:30 am End time of last spell 5:15 pm 5:00 pm 5:15 pm 5:00 pm 5:00 pm 4:15 pm 4:00 pm 4:30 pm The time per day 7:15 hrs 8 hrs 8:15 hrs 8 hrs 8 hrs 7:15 hrs 6:15 hrs 7 hrs

The Gram Sachiv’s were hard to catch every day. Usually appointment were sought with them and time was used to get maximum data from them. There have been instances to change the appointment 1-3 times with each of the secretaries. Two secretaries (Khurdban and Damla) have never turned to the GPs. They met for 5-10 minutes and left every time. Study team could not even interview

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them for their part of details, observation was not possible. One-gram Sachiv of Damla once met for one hour, some basic details have been taken. The other even did not. He has taken the schedule from Sarpanch but never returned the filled schedule. It has impacted the study in terms of many of the information from that GP could not be collected. Though the table shows straight 9:00 am to 5:00 pm job which is 8 hours of work. But their routine is very flexible, instantly planned. No pre-planning works with them. The uncertainty of their availability in the GP has lot of bearing on the work and performance of the GP. Since they have 3 to 4 GPs to attend, it is difficult to fix responsibility. The estimation of time is based on the observation plus listing the tasks performed in the GPs. Since each of the Panchayat Secretary has been in charge of more than three GPs, they preferred to work from block instead of going to the GP office. The observation sheets could not be filled on real time bases for all the days. The non-availability of panchayat secretary at the gram panchayat is also attributing to non-functional GP office. Though all the gram panchayats have their own building but office the GP whatsoever little functioning it has, work from the home of the sarpanch. The study team has not seen functional GP office other than the house of Sarpanch. This also limits the accessibility of all the citizens to GP office. Table 6.1 (c) Pump Operator

Sl# Task and Time GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 I Number of days observed 5 5 5 5 5 5 5 5 Total number of spells 4 4 4 4 4 4 4 4 Start time of first spell 8:00 am 8:00 am 8:00 am 8:00 am 8:00 am 8:00 am 7:00 am 7:00 am End time of last spell 8:00 pm 8:00 pm 8:00 pm 8:00 pm 8:00 pm 8:00 pm 8:00 pm 8:00 pm

The pump operator though is an employee of PHED department but closely linked and work with Sarpanch. Since they have to start the pump for water supply three times in a day, early hours of morning, middle of the day and evening hours. They use the flexibility in terms of their work. Apart from the usual switch on and off of the water pump motor, they also attend the maintenance work of the pipe line and connections. It is also observed that their work schedule is also linked the electricity timing in the village. If it changes, they have to accordingly change the schedule.

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Table 6.1 (d) Safai Karamchari / Sweeper Task and Time GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Number of days observed 5 5 5 5 5 5 5 5 Total number of spells 3 3 3 3 3 3 3 3 Start time of first spell 9 :00 am 9 :00 am 9 :00 am 9 :00 am 9 :00 am 8 :00 am 9 :00 am 9 :00 am End time of last spell 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm

The staff strength of sweepers in the GP is less than required. Hence they attend the work in different parts on different days. The sweepers also use flexi hours of work. Normally they do the cleaning of streets and drains in early hours of the day, but they have to be available in the village on the call from GP. If any ward member or citizens from any ward complains about cleaning, they have to attend the call, hence they report 8 hours of work, sometime work for less hours and some time for more. For the common facilities like panchayat bhawan and community centre, they clean daily. Also, whenever there is a visit or any other function in the GP, they either work for extra hours on those days or leave their daily work. This has been understood in the interaction during interview. Table 6.1 (f) Chowkidar

Task and Time GP-1 GP-2 GP-3 GP-4 GP-5 GP-6 GP-7 GP-8 Number of days observed 5 5 5 5 5 5 5 5 Total number of spells 3 3 3 3 3 3 3 3 Start time of first spell 9 :00 am 9 :00 am 9 :00 am 9 :00 am 9 :00 am 9 :00 am 9 :00 am 9 :00 am End time of last spell 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm 5:00 pm

The Chowkidar as mentioned in the initial remarks, works as office assistant in the GP. If the Sarpanch is available, chowkidar is also available. Since GP office function from the Sarpanch’s house in all the sample GP, Chowkidar is also available there. Apart from being there and help Sarpanch in attending the visitors, guest etc., and his key responsibilities includes information and communication to ward members and citizens in case of GP and Gram Sabha meetings. He is also responsible for sending agenda or any other letter, registers to offices and people Sarpanch and Secretary instruct to do so. Hence their time observation separately was not possible. But they work 4-6 hours daily.

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Summary of results The observation of the functionaries was most challenging part in the study. Practically it was difficult because they were not comfortable. Still was done judiciously as part of the study as far as it was practically possible.

In terms of direct function of GPs, Panchayat Secretary is a key resource. No GP has exclusive secretary and share with him with 2 or 3 more GPs. Monitoring their work schedule is difficult. They usually report to the BDO daily in the morning and then attend the GP work. Ideally, they should report the Sarpanch for their work but it was not working that way. Panchayat Secretary usually spend 3-4 hours in GP in a week. They have to attend 3-4 GPs but they don’t have fix days for the GPs, its random and need based. In Practical sense, the Sarpanch is responsible to run the GP functions and request the Secretary for their availability either in GP or in block.

Even if they are in charge of multiple GPs, still accountably can be fixed and practiced. The functions can be discharged in more organized manner.

Sarpanches does lot of verifications for applications for certificates and services like pensions, loans or any other benefits citizens are entitled to, but record is maintained. Secretary do not feel responsible to maintain such data. If full time secretary is not possible as of now, a separate assistant for data entry should be made available to GP.

If the GP start functioning from its office, Chowkidar can play an effective office assistant role and help organize some of the functions.

In terms of the workload, they don’t feel and they have sufficient time for the tasks they are supposed to perform. They are mostly satisfied with they work.

Since Job chart is not made available to most of the functionaries, it was difficult to conclude if the time they spent is sufficient and measure their workload.

During the visit in the GPs and observing the work of Panchayat Secretary, it implies that Panchayat Secretary has to work 35 hours in a week approximately 6 hrs a day. However, GPs are not directly involved to implement the many of the schemes at grass root level. But, on receipt of a letter from the line departments for a specific work, Panchayat Secretary has to extend support to the particular task, which is formally not devolved to the GP (like- forest land distribution, Ujjwala scheme etc.).

Since the Panchayat Secretary is the only functionary in the GP and the devolution of powers to the Panchayats is not well defined yet in Jharkhand, they are facing lot of complications and confusions. Theoretically they have to perform various kinds of role in all 29 works

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mentioned in the 11th schedule of the constitution, but practically there is no well-defined system for execution of such works. All related works are performed and controlled by the officials and employees of the concerned department themselves and the role of Panchayat Secretary or elected representatives is merely ornamental.

The Panchayat Secretary is supposed to visit block twice a week for getting instructions from the officials on government scheme related works and also for various file related works.

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Chapter 7 Insights from FGD

Introduction: Time and work study Discussion with citizens regarding the gram panchayats and their functioning was of utmost importance to understand the reality of work done by them and services they actually get quality and quantity wise. First and foremost, the basic needs of citizens i.e. drinking water; the supply of water in summer was not satisfactory and citizens had to manage it through other sources as well. The quality of drinking water in some areas was not very good, unauthorized pipelines, insufficient storage etc were the major reasons that came into light regarding drinking water. Further, sanitation and cleanliness of the area; there is either no waste management or it was done at very less as compare to what should have been done. Non-availability of community toilets and no daily cleaning of drains, removal of carcasses was still a issue, even after Swachh Bharat Abhiyan the situation of villages was not fully improved. The role of panchayats in certificates such as birth, death, marriage, caste, residence, ration/BPL card; was only of verification. Similarly building plan approval, laying roads, property and income certificates no such practices were there in villages. Cleaning of roads maintenance of street lights are 90 percent done and was satisfactory. Social welfare programs, aaganwadi centres, MGNREGs, school were all implemented in villages and people/citizens of the village were satisfied with the services, however, in some villages the health facility was not good and services and equipments were needed to improve. Similarly the bus service i.e. local commute for the villagers as public transport is the only medium that citizens have a rightful and should be accessible. But the service of bus was not very good in some panchayats. Further, functionaries of gram panchayats were rated by citizens based on their performance. Rating was based on three parameters: aware of the functionary, need arose to get in contact, level of satisfaction of their performance. First panchayat secretary, every citizen was aware but no need was there for citizen to contact him. Next the computer operators, ASHA, Teachers, sanitary workers, ANM were all rated satisfactory according to the performance. However, peon, electrician, bill collector, people of the villages were not aware of those employees working. Another interesting point that came was though doctors were there to help people at PHCs and sub center but there is no availability of doctor at night time further the lack of equipments like x-ray machines were not there.

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To sum it up, the situation in villages regarding sanitation, drinking water, health still persists. Lack of human resource, machinery at offices, educated staff, no provision of certification issuing etc. were all there which makes it difficult for the citizens as there is lack of awareness as well among them. Discussion with the NGO representatives at the premises of Arpana Trust Karnal with 10 NGO representatives: The major observations are:

1. The NGOs are mostly working in three ways, one is motivational to make people aware about the gram sabha, people’s participation in gram sabha, planning and monitoring.

2. Capacity building and training of elected representatives through projects and with support from SIRD

3. Facilitate GPDP process, helping panchayats in identification of Performance – need for improvement

1. To activate and strengthen the sub committees 2. Ensure active and effective of role ward members / panches 3. Panchayat should work as unit / institution which currently sarpanch centric 4. Capacity building of GPs

Enabling / supporting factors 1. Currently sarpanches are more concerns about funds, without funds they will not be able to

function which plays, financial resources from various central sponsored schemes, particularly the 14th Finance commission funds.

2. Constitutional status of PRI institutions gives some authority to the elected representatives. 3. Young and educated elected representatives

Factors hindering the performance of Gram Panchayats Lack of information and capacity of ERs – The elected representatives are not aware about the governance process, rules and provisions about the schemes as well perspective of decentralised system of governance. Lack of skills in use IT infrastructure- Most of the reporting are now IT based and elected representatives lacks IT skills. Not only ERs, even the panchayat secretaries in all the sample GPs found to be lacking the IT skills and are dependent on the data entry operators of block for their regular reporting and updates on the software being used by the GoI and state government. Lack of people’s participation and gram sabha not being active is another problem which restricts participation of people in planning and decision making.

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Chapter-8 Recommendations

Since the main objective of the study has been to asses the human resource situation at the gram panchayat level and make recommendation for requirement of manpower, this has to be seen in the context of functional responsibilities of the gram panchayats. The main observations related this can be summarised in the following manner:

1. Gram Sachiv or panchayat secretary is one of the key roles and functioning of a gram panchayat centred around this role. If we look at the data provided by the state government on the human resource, there are 6186-gram panchayats in the state. More than 50% of the gram panchayats are with an average population size of 1000-3000 population. Around 20 % of the gram panchayats have population size of 3000- 5000. The availability of Gram Sachiv in the state as per the sanctioned post is 2237. On an average one-gram sachiv should be available for 3-gram panchayats. But 642 post of secretaries are vacant with the state government. Which makes the availability even low that is 1595 making the availability of gram sachiv one for every four-gram panchayat. Only 25% of the time of a secretary is available to the gram panchayat. During the course of study, two secretaries got retired from the sample 8 GPs, the number may further go down. It should also be noted that, many of the panchayat secretaries who are senior in the role are also having additional charge of Social Education and Panchayat officer (SEPO), along with their duties of as panchayat secretary.

2. The elected representatives at panchayat level, Sarpanch and Panch don’t have any executive responsibilities functionally in the local governance system. This has two dimensions, one is that act does not provide them the role other than attending meetings and signing on the resolutions. Sarpanch though also have the same kind of responsibility but exercise some executive powers on day to day basis. The panch or ward members actually don’t have any work. And since the regular meetings of the gram panchayat does not take place practically, this make them further redundant. The ward members can be engaged both in governance and executive role so that they play some role in the local governance affairs and feel worth of being part of the local governance system. One of the important provisions in this regard is constitution of sub committee in the gram panchayat. Section 22 of the Haryana Panchayati Raj Act, 1994 provides formation of three sub committees namely, 1 Production Sub Committee- for agriculture production, animal husbandry, rural industries and poverty alleviation programmes. 2. Social Justice Sub Committee for performing the functions relating

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to- promotion of education, economic, cultural, social, sports and other interests of SC, BC and other weaker section & protection of such castes and classes from social injustice and any form of exploitation and promotion of welfare of women and children. 3 Amenities Sub Committee for performing the function of education, public health, public works and other functions. Similarly, in case of gram panchayat having more than one village in its jurisdiction, a local committee shall be constituted in that village to look after the development work of that village. These committees are constituted in papers and never made functional. In absence of the functional sub committees, ward members are not able to play any productive role in the gram panchayat. This is leading to overburdened Sarpanch and Gram Sachiv, frustrated ward members and an ineffective GP as institution. Making the sub committees functional can solve many of the problem as it will not distribute the work load but also leads to actual and effective delegation of responsibilities in the decentralised governance system.

3. The estimation of time is based on the observation plus listing the tasks performed in the GPs. Since each of the Panchayat Secretary has been in charge of more than three GPs, they preferred to work from block instead of going to the GP office. The observation sheets could not be filled on real time bases for all the days.

4. The non-availability of panchayat secretary at the gram panchayat is also attributing to non-functional GP office. Though all the gram panchayats have their own building but office the GP whatsoever little functioning it has, work from the home of the sarpanch. The study team has not seen functional GP office other than the house of Sarpanch. This also limits the accessibility of all the citizens to GP office.

The work as it is done through “Time and Work” study and quantifies the work load and ideal requirement of manpower During discussion with Panchayat Secretary, it was shared by them that they work for 6 days a week and average time spent per annum by them is as follows:

1. In GP1- 258 days, and he is in-charge of two more GPs 2. In GP2, total time spent in the GP is 288 days per annum and he is in-charge of 3 more GPs 3. In GP3, total time spent is 294 days in the GP, and he is in charge of 4. In GP4, total time spent is 288 days in the GP, this is multiplied by 2 and comes as 312 days

per annum, because he is in charge of one more GP 5. In GP5, total time spent is 288 days in the GP, he is in charge of two more GPs 6. In GP6, total time spent in the GP is 258 days per annum and in-charge of two more GPs 7. In GP7, total time spent in the GP is 222 days and three more GPs 8. In GP8, total time spent in the GP is 252 days and in-charge of two more GPs

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And; as per time and work observation (please refer chapter 6), if the Panchayat Secretary works 8 hrs per day, he spends 288 days per annum. Since they work in 3-4 GPs, average time spent in a GP comes around 72 days which is very less. The availability of full time Panchayat Secretary is must in the GPs which have more than 3000 population. Availability of Panchayat secretary in two GPs at least be for the GPs having population less than 3000 shall be ensured so that GPs can work effectively and secretary is available on every alternative day. In this scenario, there are 4350 GPs with a population up to 3000 which need 2175 panchayat secretaries. Similarly, there are 1854 GPs with more than 3000 population and need dedicated secretary for each GP. The total number of Panchayat Secretaries required are 2175+1854= 4029. There are currently 1595 panchayat secretary in place and a short fall of 2434. So, the immediate requirement of 2500 panchayat secretaries for the state of Haryana, which otherwise has huge impact on the functioning of gram panchayats. Having this minimum requirement fulfilled, the other requirement is to have account assistant and data entry or IT assistant for the GPs. The availability of these skills can also be planned based on the population of GPs. The GPs with population of less than 3000 which are 4350 in numbers can be provided on assistant for a cluster of 6-8 GPs. The GPs with population 3000-5000 which are 1156 in numbers can be provided one assistant for a cluster of 3-4 GPs. The GPs with population 5000-10000 which are 584 in numbers can be provided one assistant for a cluster of 2 GPs. The GPs with more than 10000 population which are 114 in numbers can be provided one assistant for dedicated for each GPs. Assessment and mapping of process re-engineering (simplification of process and procedure re-engineering) capacity building, and use of ICT by which the work outputs / outcomes can be improved Based on the information given in chapter 4 and interaction with different stakeholders during FGDs; for carrying out functions of GPs and for entry of data in software like Plan Plus and PRIAsoft, a

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dedicated man power should be in place at GP level only. Capacity building of functionaries and elected representatives should be done for effectively usage of software. Work that can be done through proper outsourcing For entry of data in software like PRISoft, plan plus etc, outsourcing can be done. Information pertaining to GP can be digitized for ready reference for any decision-making process based on that. Assessment and suggestion for additional human resources required for effectively handling the work load estimated by “Time and Work” study, after accounting for improvement in work due to process re-engineering and outsourcing If we look at above, it can be said that vacancy for the post of Panchayat Secretary should be filled for reducing work load. A supporting hand for the Panchayat Secretary should be thought over. And; for carrying out work as an agency functionary by the line departments should also be devolved at GP level. Job profile of additional human resources, ideal form of recruitment, qualifications and career path Suggestive additional human resources are:

o Office assistant cum accountant- he/she should be well versed with accounting package having graduate degree in commerce and preferably from that GP. Recruitment can be done at block headquarter level on contractual basis and should be placed at GP.

o Office assistant cum computer operator- he/she should be well versed in computer operating having graduate degree and preferably from that GP. Recruitment can be done at block headquarter level on contractual basis and should be placed at GP.

Provision for incentivizing the functionary can be thought over and a career path for functionaries as a cadre of state Panchayati Raj department should also be contemplated and defined. Quality of services provided by the GPs In current scenario, role of GPs in core function of PRIs and in carrying out works as an agency functions is not satisfactory. Various programs/schemes of central or state sponsored are being implemented through a parallel infrastructural set up in terms of functionaries. And, there is limited role of GP in carrying out activities in those works.

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Estimated additional cost for additional manpower and possibilities of meeting such costs innovatively Additional cost of the functionaries can be thought by central government and state government both. State government should think over to meet the expenses from administrative cost of the its project/schemes/program and central government should also think over to work out with state government for empowering GPs, so as to facilitate the GPs for functioning as agencies.

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Chapter-1 Overview of Gram Panchayats in the State

Documents

Transcript of Chapter-1 Overview of Gram Panchayats in the State