Ministry of Panchayati Raj ePRI Study Project Information & Services ...

Ministry of Panchayati Raj

ePRI Study Project

Information & Services Need Assessment Report

for

Panchayati Raj Institutions

in

State of Bihar

By

National Informatics Centre Services Inc.

ePRI Study Project Information & Services Need Assessment Report - BIHAR

National Informatics Centre Services Inc. of 174

Confidentiality Statement

This report is intended solely for the information and use of the Ministry of Panchayati Raj, Government of India and should not be used, circulated, quoted or otherwise referred to for any other purpose by any institution or individual other than the Ministry, nor included or referred to in whole or in part in any document without the prior consent of NICSI or the Ministry.



Acknowledgment

The ePRI Mission Mode Project holds great promise for the rural masses as it aims at streamlining the

delivery of government services to them through Panchayats. This is a one of its kind nation-wide IT

initiative initiated by GoI and has due sanction from the Prime Minister’s Office. Being a part of this

endeavor to computerize the Panchayats has been an enriching experience for us.

The Study team from the NICSI empanelled firm KPMG is grateful to the Department of Panchayati Raj, various Line Departments, Government of Bihar; District administration of Gaya and East Champaran; and elected member of PRIs in both the districts for the kind support and guidance provided during the course of the study phase under ePRI Project. Without the extensive co-operation and involvement of the officials at state and district level, compilation of the Information & Services Needs findings report would not have been possible. The team is thankful to the following individuals for their continued support, valuable inputs and guidance through the study: 1. State Level:

• Dr. Deepak Prasad, Secretary Panchayati Raj • Mr. Baidhnath Prasad, Director, Department of Panchayati Raj • Mr. Gautam Ghosh, System Administrator (DoPR)

2. Gaya District:

• Mr. Sanjay Kumar Sinha, DM • Kumari Shobha Sinha, Chairman ZP • Mr. Shakir Jamal, CEO ZP/DDC • Mr. Baban Kumar, DPO

3. East Champaran District:

• Mr. Narmdeshwar Lal, DM • Ms. Manju Devi, Chairman ZP • Mr. Shailandera Kr. Pandey, CEO ZP/DDC • Mr. Ram Kishore Mishra, DPO



The study has been conducted by NICSI empanelled firm KPMG with the support of NIC and Action Group for Citizens, an NGO. Project team consisted of: i. National Informatics Centre (NIC)

• Mr. Santosh Kumar, SIO • Mr. Ashok Kumar, Principal System Analyst • Mr. Ram Bhagwan Singh DIO, East Champaran • Mr. S.N. Behra DIO, Gaya • Mr. Tarun Kumar Sinha, Sr. System Analyst NIC, Gaya

ii. KPMG team

• Mr. Sameer Sharma, Principal Consultant • Mr. Amit Shukla, Principal Consultant • Mr. Rahul Singh, Sr. Consultant • Mr. Robin Mathew, Sr. Consultant • Mr. Atul Mohan, Jr. Consultant • Mr. Harshwardhan Jaju, Jr. Consultant

iii. NGO, Action Group for Citizens

• Mr. Vishwajeet Kumar, East Champaran • Dr. Ajay, Gaya • Mr. Shyam Nandan, Gaya



Table of Contents

1. EXECUTIVE SUMMARY .........................................................................................................................................................10

2. SUMMARY OF KEY FINDINGS ...............................................................................................................................................13

3. PROJECT BACKGROUND .......................................................................................................................................................14

4. APPROACH & METHODOLOGY FOR INS STUDY .....................................................................................................................17

4.1. STUDY METHODOLOGY ..................................................................................................................................................................18 4.1.1. Stakeholder consultation .................................................................................................................................................18 4.1.2. Identification of interviewee groups ................................................................................................................................20

4.2. DATA GATHERING TOOLS ................................................................................................................................................................20 4.2.1. Interview questionnaires..................................................................................................................................................20 4.2.2. Data capturing templates ................................................................................................................................................20

4.3. SERVICES IDENTIFICATION METHODOLOGY..........................................................................................................................................21

5. STATUS OF PANCHAYATI RAJ ...............................................................................................................................................22

5.1. VISION OF STATE PR DEPARTMENT ..................................................................................................................................................22 5.2. PANCHAYATI RAJ ORGANIZATION STRUCTURE (LEVEL, DESIGNATION) .....................................................................................................23 5.2.1. State PR Department........................................................................................................................................................23 5.2.2. Panchayati Raj Institutions...............................................................................................................................................24

5.3. DEVOLUTION STATUS .....................................................................................................................................................................27 5.3.1. Funds, Functions, Functionaries .......................................................................................................................................29 5.3.2. Status of Activity Mapping...............................................................................................................................................32 5.3.3. Participation in Committees.............................................................................................................................................33 5.3.4. Challenges ........................................................................................................................................................................41

5.4. PR GOVERNANCE..........................................................................................................................................................................42 5.4.1. Planning ...........................................................................................................................................................................45 5.4.2. Monitoring & Implementation .........................................................................................................................................46 5.4.3. Accounting .......................................................................................................................................................................46 5.4.4. Extent of PRI involvement in Schemes..............................................................................................................................46

5.5. BEST PRACTICES & KEY LEARNING RELATED TO PANCHAYATI RAJ GOVERNANCE ........................................................................................49

6. INFORMATION AND SERVICES NEEDS...................................................................................................................................51

6.1. I&S NEEDS OF STATE PR DEPARTMENT AND OTHER LINE DEPARTMENTS..................................................................................................55 6.2. I&S NEEDS OF PRI (ZP/BP/GP) .....................................................................................................................................................63 6.3. I&S NEEDS OF CITIZENS .................................................................................................................................................................70



7. E‐GOVERNANCE READINESS .................................................................................................................................................82

7.1. INITIATIVES FOR COMPUTERIZATION OF PRI........................................................................................................................................82 7.2. ICT INFRASTRUCTURE ASSESSMENT ..................................................................................................................................................83

8. STATE CAPACITY ASSESSMENT .............................................................................................................................................85

8.1. CAPACITIES (PRI PERSONNEL, TECHNICAL PROFESSIONALS, ADMINISTRATIVE OFFICIALS ETC.) .......................................................................86 8.2. SKILLS AND CAPABILITIES ................................................................................................................................................................87 8.3. TRAINING (TRAINING NEEDS, TRAININGS PROVIDED, AVAILABILITY OF TRAINING INSTITUTES, ETC.).................................................................89

9. CITIZEN SERVICE DELIVERY ...................................................................................................................................................91

9.1. INITIATIVES BY PRIS.......................................................................................................................................................................91 9.2. INITIATIVES BY STATE IMPACTING SERVICE DELIVERY TO RURAL POPULACE.................................................................................................96

10. WAY FORWARD ...............................................................................................................................................................99

10.1. SERVICES FINALIZED FOR PROCESS RE‐ENGINEERING .........................................................................................................................99 10.1.1. Existing Services .............................................................................................................................................................100 10.1.2. New Services ..................................................................................................................................................................102

11. ANNEXURE..................................................................................................................................................................... 103

11.1. LIST OF INTERVIEWEES (LEVEL‐WISE – STATE PR DEPT, STATE LINE DEPT, ZP, BP, GP) .........................................................................103 11.1.1 Meeting Details at State Level .......................................................................................................................................103 11.1.2 Meeting Details at District Level‐East Champaran ........................................................................................................104 11.1.3 Meeting Details at District Level‐Gaya........................................................................................................................... 105

11.2. MINUTES OF KEY MEETINGS HELD...............................................................................................................................................106 11.2.1. Minutes of Key Meeting – State Level............................................................................................................................106 11.2.2 Minutes of Key Meetings – District East Champaran.....................................................................................................120 11.2.3 Minutes of Key Meetings – District Gaya .......................................................................................................................134

11.3. GLOSSARY .............................................................................................................................................................................147 11.4. REFERENCES...........................................................................................................................................................................150 11.4.1 State references .............................................................................................................................................................150 11.4.2 East Champaran District references...............................................................................................................................150 11.4.3 Gaya District references .................................................................................................................................................150

11.5. BRIEF PROFILE OF DISTRICT(S) COVERED ......................................................................................................................................170 11.5.1 East Champaran Profile..................................................................................................................................................170 11.5.2 Gaya Profile....................................................................................................................................................................173



List of Tables

S. No. Table Name Table No. Page

1 The Selected District, Block and Gram Panchayat in Bihar

3.1 15

2 Brief Profile of East Champaran 3.2 16

3 Brief Profile of Gaya 3.3 16

4 Status of Devolution of Power in Bihar 5.1 28

5 Different District Level Committees 5.2 31

6 Involvement of PRIs in different District level Committees

5.3 35

7 Committees constituted at ZP/BP/GP level and there functionalities

5.4 37

8 Committees constituted at ZP/BP/GP level and there functionalities

5.5 40

9 Extent of involvement of PRIs in different CSS

5.6 46

10 Information need of PRI and other department

6.1 55

11 Service and other need of PRI and other department

6.2 58

12 Information needs of ZP/BP/GP and expectations form ePRI

6.3 62

13 Services and other needs of ZP/BP/GP and expectations form ePRI

6.4 66

14 Information need of citizen and expectation from ePRI

6.5 70

15 Services and other needs of citizen and expectation from ePRI

6.6 72

16 ICT infrastructure at 3 tiers of 7.1 77



S. No. Table Name Table No. Page

Panchayats

17 Skilled Manpower at State PR Department and three tiers of PRIs

8.1 80

18 Skills and Capacities of three tiers of PRIs

8.2 81

19 Details of Post Offices in Bihar and District East Champaran

9.1 84

20 Agencies involved in Service Delivery, Delivery Channels, Service Delivery Mechanism and Service Model adapted for the Services Delivery

9.2 85

21 Details of CSCs in East Champaran 9.3 90

22 List of Existing Services by PRIs in East Champaran

10.1 93

List of Figures

S. No. Figure Name Figure No. Page

1 Map of District East Champaran 3.1 16

2 Map of District Gaya 3.2 16

3 Different Phase of ePRI Project 4.1 17

4 Approach for identification of G2C services

4.2 21

5 Organizational Structure State PR Department

5.1 24

6 Organizational Structure Zila Parishad 5.2 25

7 Organizational Structure Panchayat Samiti

5.3 26



S. No. Figure Name Figure No. Page

8 Organizational Structure Gram Panchayat

5.4 27

9 Process of Conducting DPC Meeting 5.5 34

10 Root Cause analysis for inadequate autonomy to PRI

5.6 43

11 Information Flow between ZP, BP, GP and Govt. Departments

6.1 50

Information Flow between BP, GP and Govt. Departments

6.2 51

12 Information and Services Needs of Govt. Department/Employees

6.3 54

13 Information and Services needs of the elected representatives at ZP, BP and GP

6.4 59

14 Information and Services needs of Village level Entrepreneur

6.5 63

15 Information and Services needs of Rural Citizens

6.6 64

16 Gram Sabha Pictures Harpur Rai (East Champaran)

6.7, 6.8, 6.9 69

17 Gram Sabha Pictures Mora Mardana (Gaya)

6.10, 6.11 73



1. Executive Summary

This report presents the findings of ePRI study in Bihar. Gaya and East Champaran were identified districts in Bihar for ePRI study by central Government. This report is based on the discussion with Secretary and other official of Department of Panchayati Raj, various line departments responsible for implementing the 20 identified centrally sponsored schemes, public representatives at three tiers of Panchayati Raj Institutions in both the districts, district level Government officers involved in delivery of these schemes, and gram sabha conducted at both the district for identification of service need of common people.

Panchayati Raj Department, Bihar has limited role in execution of the CSS schemes implemented by PRIs. State Panchayati Raj Department, established in year 2007, does not get any report from districts except BRGF and 12th finance commission. Departmental officers at districts are pivotal for implementation of their department’s scheme and they report to their respective department only. State Panchayati Raj Department does not have the actual status of devolution of fund, functions and functionaries under various schemes due its negligible participation in implementation of these schemes. Bihar requires a legal framework for devolution of power to PRIs. Bihar Panchayati Raj Act 2006 includes devolution of all 29 subjects as specified in the 73rd amendment of constitution of India. The department has been asked to release the guidelines detailing out the role and responsibility of all three tiers of PRIs. Twenty one line departments have issued government orders for devolution of funds, functions and functionaries to PRIs. But, the implementation has not been found as per the government orders. This can be accounted to capacities of PRIs as regular structure for executing these schemes with meager knowledge, skills, and resources. Bihar Panchayati Raj Act recommends constitution and functioning of District Planning Committee, 7 standing committees at Zila Parishad and Panchayat Samiti level and 6 standing committees at Gram Panchayat level. The formation of these committees is as per the Act in Gaya; however, in East Champaran at Panchayat Samiti no committees have been constituted. These committees are not having regular meetings and are not discharging their functions and duties. There are district level committees managing funds of schemes of their respective departments, having functionaries from district level officers of line departments, and are performing all major functions for managing the scheme. Representative from PRIs are in support role in these committees. Members of PRIs are not aware of their responsibilities, lack resources, skill set and initiatives from respective administrative secretaries of standing committees. The secretary of committees is not actively involved for conducting the regular meetings. Gram Sabha and Gram Panchayat meetings are not regular in the visited



districts. However, Aganwadi and Vidyalaya Samiti are functional at Gram Panchayat and has ward member as member of these committees PRIs lack required skill set and resources to manage large scale programs of central Government cutting across all the 29 subjects. The envisaged role of PRIs requires capacity building of the Panchayat with respect to domain understanding; skills like Planning, Accounting and Engineering; IT and non IT infrastructure. The efforts made by districts for improving the involvement of PRIs in these schemes have significant scope of improvement. PR governance is strategic area of improvement for improving the function of PRIs in Bihar. PRIs are lacking basic infrastructure and resources for exercising their legal powers. The PRIs have limited role in implementation and monitoring of schemes and has negligible role in planning and accounting. The factors responsible for inadequate autonomy have been analyzed using root cause analysis in this report. Autonomy in governance of PRIs is basically dependent upon the legal framework for functioning of PRIs, skills with PRIs and Infrastructure at PRIs. These three factors are further drill down to secondary factors for identifying the basic need of PRIs and their current status of functioning in this report. Gram Panchayat is involved in planning, monitoring, fund flow, accounting and implementation of NREGS, BRGF, SSA and 12th finance commission. Under these three schemes an annual action plan is made by the Gram Panchayat, which is forwarded to the Panchayat Samiti and finally to Zila Parishad. This plan is discussed in the District Planning Committee’s meeting. However, the involvement of PRIs in all other schemes is very limited.

Panchayat Samiti does not have financial power. Elected members in Panchayat Samiti’s awareness for rules and responsibilities of PRI’s, services to be provided to citizens and schemes is very limited. The Samiti members have not even heard of some of the centrally sponsored schemes the study team discussed in the meeting. The Panchayat Samiti is not aware of role they can play in implementing the centrally sponsored schemes in their block. The elected PRI’s representative and political leaders are quiet unsatisfied with the quality of plan and policy implementation across various section of the Government and particularly relating to the rural people. They feel that the actual benefits and advantages of various plan and policies are not getting across to the common citizens due to various lacuna, complexity and shortcomings in the process and sub process of implementation. The most important shortcoming is the elected representatives are not trained enough to understand roles and responsibilities they have to perform. The elected members have limited information regarding all the centrally and state sponsored schemes and their benefits to the citizens.



Expectations of rural citizen are availability of Government services at their doorstep in a convenient manner at a low or minimal cost. Proper and reliable information on market price of agricultural produces, job opportunities and various welfare services is highly essential for them. To avail the services offered by Government, rural citizens face several difficulties, where to go, whom to approach, whether the right person is available, whether he can or he has to take any body’s help are various questions raised in his mind. The consultation of various group of citizen revealed that citizens are normally paying lot more than what actually they are supposed to pay both directly and indirectly. The Government of Bihar has taken several e-Governance initiatives within and outside NeGP. • Out of 8463 Gram Panchayat, CSCs are operational at more than 4000 Gram Panchayats • Ninety percent of CSC’s are to be commissioned by end of year 2009 • Non availability of electricity, connectivity issues, absence of any G2C service and of sustainable

revenue model hampering CSC implementation • BSWAN has been commissioned covering district and block level • No connectivity at moment under BSWAN to three tier Panchayati Raj • Biharonline.gov.in portal framework to be used for citizen delivery

Twenty G2C service were identified at state, district and gram sabha level. The basic thought process behind selection of services was employment, home, education, health and social security to rural citizen. The subsequent sections of the report present the findings of the study team vis-a-vis the status of Panchayati Raj Institutions in Bihar with specific focus on understanding the information and services needs of the citizens. The areas of ICT enablement and associated capacity building requirements have also been analysed and put forth in this report.



2. Summary of Key Findings The key findings are listed below. i. Panchayati Raj Department, Bihar has limited role in execution of the CSS schemes implemented

by PRIs. ii. State Panchayati Raj Department, established in year 2007, does not get any report from districts

except BRGF and 12th finance commission. iii. Departmental officers at districts are pivotal for implementation of their department’s scheme and

they report to their respective department only. iv. Bihar Panchayati Raj Act 2006 recommends devolution of all 29 subjects of 73rd amendment of

constitution of India. v. Twenty one line departments have issued government orders for devolution of funds, functions and

functionaries to PRIs. But, the implementation has not been found as per the government orders. vi. District Planning Committee, 7 standing committees at Zila Parishad and Panchayat Samiti level

and 6 standing committees at Gram Panchayat level have been constituted but are not functioning in the visited districts

vii. PRIs lack desired skill set and resources to manage large scale programs of central Government cutting. PRIs are lacking basic infrastructure and resources for exercising their legal powers.

viii. The PRIs have limited role in implementation and monitoring of schemes and has negligible role in planning and accounting.

ix. Gram Panchayat is involved in planning, monitoring, fund flow, accounting and implementation of NREGS, BRGF, SSA and 12th finance commission.

x. Panchayat Samiti does not have financial power. xi. Elected members in Panchayat Samiti’s awareness for rules and responsibilities of PRI’s, services

to be provided to citizens and schemes is very limited. xii. Elected representatives are not trained enough to understand roles and responsibilities they have

to perform. xiii. Expectations of rural citizen are availability of Government services at their doorstep in a

convenient manner at a low or minimal cost. xiv. State e Governance readiness is as follows

• Out of 8463 Gram Panchayat, CSCs are operational at more than 4000 Gram Panchayats • Ninety percent of CSC’s are to be commissioned by year end 2009 • Non availability of electricity, connectivity issues, absence of any G2C service and of

sustainable revenue model hampering CSC implementation • BSWAN has been commissioned covering district and block level • No connectivity at moment under BSWAN to three tier Panchayati Raj • Biharonline.gov.in portal framework to be used for citizen delivery



3. Project Background Panchayati Raj Institutions (PRIs) in India are a homegrown effort to decentralize government to promote greater participation by the ordinary public in their own governance. This process of democratic decentralization was set in motion with the Constitution (Seventy Third Amendment) Act passed by the Indian Parliament in 1992, which enabled decentralized governance through PRIs in rural areas. PRIs function at the village, intermediate (block) and district level. There are approximately 2,34,030 Gram Panchayats at the village level, 6053 Panchayat Samiti at the block level and 535 Zila Panchayats at the district level. There are more than 31 lakhs elected representatives at all three tiers. PRIs offer India’s rural villagers an opportunity to participate in village planning processes, to engage with the various developmental schemes being implemented by the Government and to interact with their elected representatives directly to ensure that their interests are being effectively served and their money properly spent. While PRIs are an excellent initiative but have so far remained in theory, reality has been less positive, as many PRIs have been criticized for poor representation, failure to implement the participatory decisions of their constituencies and mismanagement of funds. In this context, citizen participation in Panchayat institutions is more meaningful when people have the information to make informed choices and to participate in decision-making processes based on facts, not rumors and half-truths. The PRIs are also saddled with the problems of inadequate capacity vis-à-vis physical and financial resources, technical capabilities and extremely limited computerization. This has limited the usefulness of PRIs as the preferred delivery channel for the schemes of State and Centre as well as for citizen services. Computerization and IT enablement of government functioning has received a high impetus with the implementation of the National eGovernance Programme of Government of India and various states have realized the importance of eGovernance. This has led to a concerted thrust towards computerizing the functioning of the state line departments in most of the states. The result of this is cognizable and has brought in its wake significant efficiencies in the departmental functioning. While some computerization efforts for PRIs have been made by NIC over the years; unfortunately, the eGovernance revolution sweeping the country has not touched the PRIs yet in significant measure. The Government of India in association with the Ministry of Panchayati Raj has realized this and decided to take up the computerization of PRIs on a mission mode basis.



The Ministry for Panchayati Raj is keen on executing the computerization of PRIs in a fast track and time bound manner. To achieve this MoPR in association with NIC has conceptualized a nation-wide study to take stock of the needs of citizens as well as various government entities involved in the delivery of developmental schemes and services. This study is expected to result in drafting the requirements of computerization for PRIs across the country and is being undertaken across 27 states within duration of 23 weeks. This initiative poses unique challenges, as the coverage of the programme is in itself unprecedented not only in India but perhaps globally too. The geographic and demographic coverage of the programme, therefore, makes it a challenging initiative to rollout. In addition, the level of devolution of powers to Gram Panchayats across the country varies depending upon the administrative arrangements in a particular State/UT. This implies that the services that could be delivered to the citizens by Village Panchayats in one State/UT could differ from another. Consequently, design of the process re-engineering, computerization and capacity building programme would face significant challenges. This also leads to related challenges around stakeholder’s involvement in the programme. This project entails carrying out the following three activities: 1 Identification of Information and Services Needs of Stakeholders 2 Process Re-engineering and 3 Preparation of Detailed Project Report for the MMP The project execution primarily was carried out across the following five tiers: 1 Ministry of Panchayati Raj (or ‘Ministry’) level 2 State level 3 Zila Panchayat level 4 Block Panchayat level 5 Village Panchayat level In the state of Bihar the study was conducted in two districts namely East Champaran and Gaya in Bihar. In both the districts following are the block and Gram Panchayat selected for study:-

Table 3.1- Showing the Selected District, Block and Gram Panchayat

District Block Gram Panchayat

East Champaran Har Sidhi Harpur Rai Gaya Bodh Gaya Mora Mardana



District East Champaran at Glance (in Figures)

Figure 3.1 Map of District East Champaran

District Gaya at Glance (in Figures)

Figure 3.2 Map of District Gaya

Table 3.2 Brief Profile of East Champaran

Area 391401

Subdivision 6

Block 27

Village 1345

Panchayat 409

Zila Parishad 1

Population 3,939,773

Area 487607.83

Subdivision 4

Block 24

Village 2860

Panchayat 332

Zila Parishad 1


Table 3.3 Brief Profile of Gaya



4. Approach & methodology for INS study It is important to have a well defined approach and methodology for executing a project of this magnitude in the desired timeframe. Accordingly, a four phase approach has been designed as illustrated below: • The Initiation and Planning phase (Phase I) • The INS Needs assessment phase (Phase II) • The Process Re-engineering phase (Phase III) • The DPR preparation phase (Phase IV)

I. The Initiation and Planning phase (Phase I) primarily focused on setting the tone for execution of the project. The key outcomes of this phase were identification of stakeholders, the consultation mechanism with the stakeholders and formalizing the deliverable templates. During this phase data gathering tools and templates were also prepared, which were targeted on focused information capture.

II. The INS Needs assessment phase (Phase II) involved interaction, including a survey, with the

identified stakeholders. This phase resulted in forming an understanding of the needs of the stakeholders and helped in identification of the services. The citizen centric services that are currently being delivered through PRIs and the services that are expected to be delivered through PRIs were also identified and studied.

Figure 4.1 Different Phase of ePRI Project



III. The Process Re-engineering phase (Phase III) would entail the in-depth analysis of the identified

services and creating As-Is process document. This will lead to the To-Be scenario, where the services would be re-engineered for optimizing the efficiency and effectiveness of service delivery.

IV. The DPR preparation phase (Phase IV) will be the eventual outcome of the study where apart from

State specific DPR, a national DPR would also prepared. This national DPR would be shared with the states to enable them to directly undertake implementation of e-Governance in Panchayati Raj Institutions.

The following sections details the approach and methodology adopted during the INS Study.

4.1. Study Methodology

4.1.1. Stakeholder consultation Establishing Project Core Team: A Project Execution Unit (PEU), comprising of representatives from MoPR, NIC and the agencies appointed, has been set up as a core team. The PEU is the core team at the central level entrusted with tasks such as identification of various stakeholders, orientation of the field teams, establishing reporting and escalation mechanisms, providing ongoing guidance and support. PEU is responsible for the co-ordination of the designated field teams for each of the states/UTs undertaking the INS Study. The PEU identified a set of about 30 centrally sponsored schemes spread across 11 Central Line Ministries that should be taken up for study. The criterion used for selecting these schemes was that there should be an existing or envisaged role of PRIs in the scheme execution. Central Line Ministry Study: The project had a National Kick-off chaired by the Secretary, Ministry of Panchayati Raj and attended by senior officials from various stakeholder line ministries. A group of 12 consultants was formed to conduct this study over a period of 2 weeks. The group was oriented by the PEU regarding the objectives of the study and the project. The PEU organized the group into three teams and assigned the CLMs to them. The teams were responsible for interviewing stakeholders from the Central Line Ministries (CLM) to capture information relating to the implementation of the Centrally Sponsored Schemes (CSS) and to understand the expectations of the CLMs from the ePRI project. Field study for identifying INS needs of Citizens: The field teams comprises of the SIO/DIOs of the State/District, the team of consultants and the domain experts drawn from NGOs, CBOs, retired PR officials. The study was conducted across all the three tiers of Panchayati Raj administration, namely District / Zila Panchayat, Block Panchayat, Gram Panchayat, which led to the Identification of information and services needs of citizens.



Initially the field team held discussion with the State Panchayati Raj department to gain the knowledge of the PRI framework established by the State under the State Panchayat Raj Act. Field teams gathered information on various schemes, centrally or state sponsored, that were being provided to the citizens, using questionnaires and discussions with various State line departments Rural Development Department, Tribal development department, Women and Child Welfare department etc. Field teams also met support departments and agencies such as Department of Information Technology, Rural Development Agency, Postal Department, and SCA handling CSC etc, for the assessment of the existing technology infrastructure being implemented within the state/UTs. Field team observed and examined various artifacts such as the department annual report, citizen charters, status reports for the projects under implementation, accounting and monitoring reports etc., to support the captured information and discussions. Field team spent approximately two weeks at the state level to collect required information for the study. After gathering the relevant information at the State level, field team moved to District level to continue with a similar exercise of collection of the information on the existing schemes and services and their delivery modes to the beneficiaries. Key officials met in the district administration included the District Collector, the District Magistrate, Additional Collector (in charge of development), CEO Zila Panchayat, DDO, PD-DRDA, and various committee formed under the State Panchayati Raj Act. Field team, wherever possible, also attended the committee meetings to understand the ground work being undertaken by the committees. Field team spent about two weeks at the district level to collect the required information for the study. At the Block Panchayat and Village Panchayat level the field teams, apart from interacting with the government officials also undertook interactions with the villagers by organizing a gram sabha and / or discussions with focused groups. The team attended a minimum of one Gram Sabha and met the relevant stakeholders to understand their needs of new services and the actual implementation of various schemes at the ground level. Team also meet the common villagers and inquired about their wish list from the Panchayat. The teams later translated the villager’s wish list into new services that can be offered through PRIs. Field team also enquired at each level about the existing technology and related infrastructure such as buildings, electricity availability, network connectivity etc.



4.1.2. Identification of interviewee groups

The PEU identified the various interviewee groups. Questionnaires and data gathering templates for these interviewee groups were also prepared. The field teams customized this and prepared comprehensive list of interviewees based on discussions with state level stakeholders including state and district/block administration. The list included the following key people: • Panchayat officials and support staff - District Administration officers (District Magistrate, Asst.

District Magistrate), Gram Panchayat members and support staff in the village such as Primary Health Workers, Anganwadi workers, Agriculture/Irrigation officer, Watershed Committee, Forest Committee, SSA Committee, Health Committee, Employment officer, Animal Husbandry in-charge, Representatives of village co-operative society or leaders of self-help groups etc.

• Postal Department - A level of interaction with the Postal Department officials for the services being rendered by the department

• Village Organizations - Wherever applicable, the field teams shall also interact with the Village Organizations (VOs), including voluntary organizations, to obtain greater clarity on the information and services needs of the rural citizens.

• Specific focus groups -If required, additional discussions have been conducted with specific focus groups such as farmers, teachers, youth, women, rural health officer, SC/ST families, minorities etc.

• Villagers - The study team also interacted with the identified villagers, if required, through ‘Participatory Rural Assessment’ techniques (PRA) facilitated by the Panchayat members.

4.2. Data gathering tools

4.2.1. Interview questionnaires

Exhaustive templates were formulated by the PEU team based on the project scope and the information required. These templates were then circulated to the field teams. All the relevant information based on the objective of the template was captured by the field teams based on their interactions with the identified stakeholders. Field teams observed and examined various artifacts at various levels to support the information captured during the INS Study.

4.2.2. Data capturing templates

A data capturing template was prepared for capturing the existing ICT infrastructure available at the State for the PRIs.



4.3. Services identification methodology

The list of services is first derived through interaction with state Panchayati Raj department. However, if not identified the broad services delivered by PRI’s at state level, it can be done at District level. The Service identification methodology used is described in figure below:

Figure 4.2 Approach for identification of G2C services

The services will be identified on the basis of the perceived benefit to the citizens, volume of the services, frequency of usage and readiness of the service for delivering through Panchayat. The discussion will be carried out at district block and Panchayat level for preparing the tentative list for presenting to the citizens at gram sabha. The final services list (15 existing and 5 new) for As-Is study will be selected based on the discussion with the citizens in the Gram Sabha in the respective districts. The 20 G2C services are classified as follows:- a. 15 AS – IS and TO – BE for the services currently provided by Panchayati Raj institutions b. 5 for New services (out of Wish list of the citizens) for TO – BE report The team has to capture the AS – IS process of how that information is collected by Panchayati Raj officials and transferred to the Line department person. This will not include the internal functioning of the Line Department for processing the application. This phase will result in forming an understanding of the needs of the stakeholders and will help in identification of the services. These services will also be prioritized vis-à-vis implementation.

Question at District

l l

Identify at District

level

D1 - Status of devolution of

29 Functions

D2 - Functions for which

Activity Mapping done

D3 - Type of work done

against each Function

included in activity mapping

D4 - List of G2C services

delivered through / by PRI

Derived from D3

List of Services

provided by / through

PRI*

Final List of 15 existing G2C services (delivered through / by PRI)

Final List of 5 existing G2C services (wish list derived from citizen interaction / Gram Sabha)



Objective: The section captures the current assessment of progress of Panchayati Raj Institutions as institution of local self governance. This includes vision of State PR department, status of devolution of powers to PRIs and PR Governance in terms of planning, monitoring, implementing and accounting. Involvement of PRI in functioning of schemes is also a part of the section.

5. Status of Panchayati Raj Bihar has taken commendable steps for creating legal framework for devolution of power to PRIs. Bihar Panchayati Raj Act, 1993 came into force on August 23, 1993 with in four months from release of 73rd amendment to Constitution of India. This Act was repealed and replaced by Bihar Panchayat Raj Act 2006. Bihar Panchayati Raj Act 2006 brought in women reservation as close as 50 % but not exceeding 50% in Gram Kachahary, District Planning Committee and other numerous features under its ambit. Panchayat Raj Institutions namely

Gram Panchayat (at the village level), Panchayat Samiti (at the Block level), Zila Parishad (at the District level) have been given responsibility and legal jurisdiction to operate, advise and intervene in all matters of public interest, welfare and development for the area and people under their direct concern. Bihar had Panchayat Election in 2001 after 23 years and in year 2006. Department of Panchayati Raj constituted in year 2007 in Bihar. Government order has been already released by 21 departments for transfer of power to Panchayats stating the roles and responsibility of three tiers of PRIs. However, these Government orders have not been truly implemented till date. Panchayati Raj Department is monitoring BRGF and 12th Finance commission and these are the only schemes which have been truly devolved to PRIs. PRIs have pivotal role in NREGS and selection of beneficiary in some schemes but largely the role of PRIs is in supporting the implementation of scheme on need basis.

5.1. Vision of State PR Department The vision of state PR department is to devolve the powers to Gram Panchayat and give autonomy to PRIs for promoting the local governance in the state. The Secretary has stated following expectations from the ePRI project: • Ensure more autonomy to Panchayat by providing Funds, Functions and Functionaries with IT

and non IT infrastructure. • Increase transparency in the PRIs operations by implementing strategic reforms for making

Panchayat more responsible and accountable. Rewards for good work done by Panchayats, punishment for negligence in duties should be given to PRIs. Social audits should be done regularly for increasing accountability in PRI’s operations.

• Empower Gram Sabha by bridging the gap between documented powers and powers in practice. • Improve participation of Gram Panchayat in planning process by providing technical manpower

like Planners, Engineers, and Accountants etc. • Capacity building of the Panchayat with respect to manpower, skills, IT and non IT infrastructure



5.2. Panchayati Raj Organization Structure (Level, Designation) Bihar has a well developed Panchayati Raj Institution at all the 3 tiers namely, zila parishad, panchayat samiti and gram panchayat. There are 38 Zila Parishad, 534 Panchayat Samiti and 8463 Gram Panchayat. There is a separate department for Panchayati Raj headed by Principal Secretary/ Secretary. The organizational structure of Department of Panchayati Raj and the three tiers of PRI is given below. It is to be noted that each level of PRI consists of Elected members, Nominated/ Ex-officio Members and secretarial staff constisting of government staff. While the secretriat of PRI at Zila Parishad is headed by DDC cum CEO of Zila Parishad, the Executive officer of Panchayat Samiti is the BDO cum CO. The Gram Panchayat is assisted by Panchayat Secretary and Gram Rozgar Sewak.

5.2.1. State PR Department

Figure 5.1 Organizational Structure State PR Departments



5.2.2. Panchayati Raj Institutions

• ZP

Figure 5.2 Organizational Structure Zila Parishad

The Zila Parishad has a very lean administrative staff and there is a requirement of key staff personnel for planning, budgeting, accounting and document management.



• BP

Figure 5.3 Organizational Structure Panchayat Samiti

The figure above is generic in nature . The point of deviation in actual practice is that the Panchayat Samiti of Harsiddhi has not so far constituted any committee as mandated in the Bihar Panchayati Raj Act 2006. Among the three tiers studied in Purbi Champaran, the Panchayat Samiti was the weakest of all.



• GP

Figure 5.4 Organizational Structure Gram Panchayat

In actual Practice the Gram Panchayat of Hari pur Rai has only three committees, namely General Standing Committee, Social Justice Committee, and Vigilance Committee.



5.3. Devolution status

Bihar Panchayati Raj Act 2006 includes devolution of all 29 subjects of 73rd amendment of constitution of India. The department has been asked to release the guidelines detailing out the role and responsibility of all three tiers of PRIs. Twenty one line departments have issued the government orders for devolution of funds, functions and functionaries to PRIs. Below table shows the present state of implementation of these Government orders in studied districts. The color scheme used for showing the status can be interpreted in following way.

Color Scheme Effort has been taken in true spirit and state is successful in implementation Effort has been made but are less than required to make strategic shift of power centre Effort has not been made or effort made has negligible impact

The mapping from 73rd Amendment of Constitution of India to implementation in visited districts of Bihar is shown in below table.

Table 5.1 Status of Devolution of Power in Bihar

S.No. Subjects as per the 73rd

Amendment Extent of devolution of power

Bihar PR Act 2006

Department Guidelines

Implementation from PRIs

1 Agriculture, including agricultural extension

2

Land improvement, implementation of land reforms, land consolidation and soil conservation

3

Minor irrigation, water management and watershed development

4 Animal husbandry, dairying and poultry

5 Fisheries

6 Social forestry and farm forestry

7 Minor forest produce

8 Small scale industries, including food processing industries.

9 Khadi, village and cottage



t

industries

10 Rural housing

11 Drinking water

12 Fuel and fodder

Bihar PR Act 2006

Department Guidelines

Implementation from PRIs

13

Roads, culverts, bridges, ferries, waterways and other means of communication

14 Rural electrification, including distribution of electricity

15 Non-conventional energy sources

16 Poverty alleviation programme

17 Education, including primary and secondary schools

18 Technical training and vocational education

19 Adult and non-formal education

20 Libraries

21 Cultural activities

22 Markets and fairs

23

Health and sanitation, including hospitals, primary health centers and dispensaries

24 Family welfare

25 Women and child development

26

Social welfare, including welfare of the handicapped and mentally retarded

27

Welfare of the weaker sections, and in particular, of the Scheduled Castes and the Scheduled Tribes

28 Public distribution system

29 Maintenance of community assets



The status of devolution of power to PRIs in the state of Bihar shows that, six subjects namely - rural housing, drinking water, fuel and fodder, education, public distribution system and maintenance of community asset has direct involvement of Gram Panchayat in implementation. Apart from these six subjects, Panchayat has been given some role in planning and implementation of eight subjects marked with yellow color in table 4.1. Also in some of the subjects like Rural Housing and Primary Education, which are covered under a successful Centrally Sponsored Scheme the extent of involvement of Gram Panchayat is greater. But in case of some subjects like Health, Agriculture, because of the initiatives taken by the respective line departments the involvement of Gram Panchayat is less. PRIs have voluntary role in monitoring of these subjects. State Panchayati Raj Department gets report from districts for only two schemes - BRGF and 12th finance commission. Departmental officers at districts level are pivotal for implementation of their department’s scheme and they report to their respective department only. State Panchayati Raj Department does not have the actual status of devolution of fund, functions and functionaries under various schemes due its negligible participation in implementation of these schemes.

5.3.1. Funds, Functions, Functionaries

The devolution of Funds and Functions has been done to some extent under some of the schemes but no separate Functionaries are provided to the PRIs. The details of devolution of Funds, Functions and Functionaries to PRIs are as under: a. Funds Funds under 12th Finance commission, BRGF and NREGS are allotted to PRIs. Funds under NREGS are allotted to the PRIs by DRDA and for the other two schemes are allotted by the state Panchayati Raj department. PRIs receive funds under BRGF and NREGS in the ratio • 10 % to Zila Parishad • 20% to Panchayat Samiti • 70% to Gram Panchayat PRIs apart from these 3 schemes do not receive funds under any of the centrally and state sponsored schemes. Zila Parishad, East Champaran generates fund by renting their properties. However, Gaya does not generate any fund on its own. b. Functions i. Planning PRIs are involved in selection of beneficiaries for IAY & IGNOAPS. PRIs do planning for NREGS, 12th Finance Commission & BRGF under guidelines received from Government. PRIs are not involved in planning of any other scheme. Different line departments with the help of Panchayat



secretary, BDO and district level officer does the planning for different schemes. Guidelines and dedicated resource have been appointed to PRIs for planning of the NREGS. The PRIs does not have resources and required skill set for planning of the other schemes. ii. Monitoring PRIs can do monitoring for all developmental works at District, Block and Village level. But, there is no structured system of monitoring for reviewing the regular progress of scheme. The data for monitoring is not managed and is not easily accessible by PRIs. iii. Implementation PRIs are primarily involved in the implementation of three schemes NREGS, 12th Finance Commission & BRGF. Gram Panchayat plays pivotal role in selection of beneficiary for few schemes like IAY and IGNOPS iv. Accounting Panchayat Raj department uses four tiers accounting system. Single entry accounting system has four head - Major Head, Sub Major Head, Minor Head and Sub Head. Zila Parishad has an accountant for NREGS and BRGF scheme. PRIs do not required accounting skills and resources for performing the accounting for all schemes. c. Functionaries At all the tiers of PRIs no separate man power is being provided under any of the schemes. ZPs have some clerical staff, one accountant and an Engineering cell but they primarily do work related to Finance commission, BRGF, NREGS and other administrative works of Zila Parishad. Panchayat Samiti doesn’t have any official staff and is totally dependent on the resources of BDO office. Gram Panchayat have one Panchayat Secretary and a Rozgar Sewak. The Panchayat Secretary is responsible for all official work and citizen services at the Gram Panchayat level. Rozgar Sewak is responsible for employment related work under NREGS like issue of job cards and demand for work.

Apart form this there are district level committees managing funds of schemes of their respective departments, having functionaries from district level officers of line departments, and are performing all major functions for managing the scheme. PRIs are in support role for all these schemes. There are various committees formed at district level for managing studied 20 schemes.

Table 5.2 Different District Level Committees

S.No. Society / Committees Officer Schemes 1 Core committee at both District and

Block level CEO/ Zila Parishad DDC

BRGF



2 District Health Society Civil Surgeon NRHM 3 District Rural Development Agency PD, DRDA SGSY, IAY, PMGSY &

NREGS 4 National Food Security Mission Society DAO NFSM 5 Agriculture Technology & Management

Agency (ATMA) DAO RKVY

6 None DHO NHM 7 District Education Committee DEO, DSE SSA, MDM 8 None DWO Scholarship, Hostel & grant for

weaker section including STs 9 None AD, SS IGNOAPS 10 None DPO ICDS 11 District Water and Sanitation

Committee EE ARWSP, TSC

12 None ADM NLRMP, IWDP

PRIs’ representatives are regular and invited member in some of these committees but they are not indispensable for functioning of these committees. Selection of beneficiary is most devolved function for majority of the studied scheme. The responsibility of selection of beneficiary is primarily with Gram Panchayat. State as well as district budget does not have provision of Panchayat Window. The fund of BRGF and 12th Finance commission is directly transferred to PRIs in following ratio. • 10 % to Zila Parishad • 20% to Panchayat Samiti • 70% to Gram Panchayat

Status of Fund, Function and Functionaries in East Champaran In East Champaran, Zila Parishad has some recourses of revenue generation. It collects rent/fees from shops and other commercial businesses operating on Zila Parishad’s land. Apart from this Zila Parishad also has a self finance scheme under which it takes advance from people for constructing shops. Zila Parishad rents these shops to the person from which they have taken the advance. The advance money is divided into two parts - basic cost and developmental cost, basic cost is refundable and is adjusted in the rent and development cost is nonrefundable. But at Panchayat Samiti and Gram Panchayat have no such revenue generation schemes. PRIs are involved in Planning, Monitoring, Accounting and Implementation of primarily three schemes – 12th finance Commission, BRGF and NREGS. In all other schemes PRIs have minimal role and there involvement is merely in the selection of beneficiaries and monitoring. Zila Parishad in East Champaran has clerical staff and Engineering cell for doing administrative and Schemes related work. But Panchayat Samiti and Gram Panchayat lacks technical and



District administration has core role in management of schemes and role of PRIs is limited to supporting the district administration.

clerical staff. Panchayat Samiti has no resource of its own and it is dependent in the recourses of BDO office. At Gram Panchayat, all the official work is being done by the Panchayat Secretary. Status of Fund, Function and Functionaries in Gaya In Gaya PRIs have no separate source of revenue generation. PRIs are involved in Planning, Monitoring, Accounting and Implementation of primarily three schemes – 12th finance Commission, BRGF and NREGS. In all other schemes PRIs have minimal role and their involvement is merely in the selection of beneficiaries and monitoring.

Zila Parishad in Gaya has clerical staff and Engineering cell for doing administrative and Schemes related work. But Panchayat Samiti and Gram Panchayat lacks technical and clerical staff. At Gram Panchayat, all the official work is being done by the Panchayat Secretary.

5.3.2. Status of Activity Mapping

All concerned departments did activity mapping with three tiers of PRIs and released Government orders in year 2001 to districts. This activity mapping covers all the 29 subjects with clear definition of role of all three tiers of PRI. Implementation has not been found as per the observation made in visited district. This can be accounted to capacities of PRIs as regular structure for executing these schemes with meager knowledge, skills, and recourses. Gram Panchayat is doing selection of beneficiary and monitors the progress of the work for schemes implemented by beneficiary. Activity mapping has been done for all the schemes. However, the involvement of gram Panchayat is not for all the schemes and Panchayat Samiti and Zila Parishad do not perform majority of the activities listed in activity mapping Government Order.

Status of Activity Mapping in East Champaran PRIs are involved in the Planning, Monitoring, Accounting and implementation of 12th finance Commission, BRGF and NREGS. Other than this no other major activity is being carried out but Zila Parishad and Panchayat Samiti. The Gram Panchayat is however involved in the selection of beneficiaries and monitoring under some of the schemes.

Status of Activity Mapping in Gaya PRIs are involved in the Planning, Monitoring, Accounting and implementation of 12th finance Commission, BRGF and NREGS. Other than this no other major activity is being carried out but Zila Parishad and Panchayat Samiti. The Gram Panchayat is however involved in the selection of beneficiaries and monitoring under some of the schemes.



5.3.3. Participation in Committees

Bihar Panchayati Raj Act recommends constitution and functioning of District Planning Committee, 7 standing committees at Zila Parishad and Panchayat Samiti level and 6 standing committees at Gram Panchayat level. These committees should meet at least once in three months to do their regular business. DPC has been constituted. Chairman Zila Parishad is chairman; CEO Zila Parishad is secretary. It has elected public representatives, District Magistrate District Planning officer, and chairman co-operative bank as members. Chairman, Zila Parishad has final decision on both the agenda and proceedings of the meetings. The process of conducting the DPC meeting is show below

Table 5.5 Process of Conducting DPC Meeting

Chairman & members

makes addition in agenda if required

CEO (ZP) prepares agenda & submits to Chairman

(ZP)

Agenda of meeting is send to all members & concerned officers 15

days before DPC

DPC discusses

agenda items, starting with

progress made on decisions

taken in last DPC

DDC-cum-CEO ZP

prepares the proceeding of

PPC

Chairman approves and

signs the proceeding of

DPC

Action items goes to

departments with copy of

proceeding to state Govt.

DPC Meeting process

Chairman & members

makes addition in agenda if required

CEO (ZP) prepares agenda & submits to Chairman

(ZP)

Agenda of meeting is send to all members & concerned officers 15

days before DPC

DPC discusses

agenda items, starting with

progress made on decisions

taken in last DPC

DDC-cum-CEO ZP

prepares the proceeding of

PPC

Chairman approves and

signs the proceeding of

DPC

Action items goes to

departments with copy of

proceeding to state Govt.

DPC Meeting process



The purpose of these committees is to plan and review all the schemes running in the district. The standing committees should have minimum three members and maximum five members. Chairman, Zila Parishad should be the chairman of two standing committee and cannot be the chairman of more that three standing committees. A member of Zila Parishad cannot be the member of more than three standing committee. Committees cannot have more than two invited members who are expert of committee’s domain or public spirited persons. Each committee should have at least one women member and social justice committee should have at least a member belonging to schedule caste or schedule tribe.

The formation of these committees is as per the Act. However, Committees are not having meeting and are not discharging their functions and duties. There are district level committees managing funds of schemes of their respective departments, having functionaries from district level officers of line departments, and are performing all major functions for managing the scheme. Representative from PRIs are in support role in this committees. Members of PRIs are not aware of their responsibilities, lack resources, skill set and initiatives from respective administrative secretaries of standing committees. The secretary of committees is not actively involved for conducting the regular meetings.

Gram Sabha and Gram Panchayat meetings are not regular in the visited district. Standing committees have not been formed under Panchayat Samiti and Gram Panchayat. The various committees formed functioning at District, Block and Panchayat level under different Centrally Sponsored Schemes. Table 4.4 shows these committees and the involvement of PRIs in it. Anganwadi and Vidyalaya Samiti are functional at Gram Panchayat and has ward member as member of these committees.

Table 5.3 Involvement of PRIs in different District level Committees

Committee Name Purpose No of PRI officials Involved

Designation of PRI Official

Aganwadi Samiti ICDS 2 Member Vidyalaya Samiti SSA & MDM 2 Member District Health Society NRHM 1 Member Village Family Welfare and Health Samiti

NRHM 2 Member

National Food Security Mission Society

NFSM 1 Invited Member

District Education Committee SSA & MDM None District Water and Sanitation Committee

TSC None



Participation in Committees in East Champaran Zila Parishad have 57 elected members, seven standing committees with 5 members each have been constituted. These committees perform functions as per the roles and responsibilities defined in the Panchayati Raj Act. District Planning Committee is also constituted having following members: • Chairman, Zila Parishad is Chairman of DPC • CEO Zila Parishad is Secretary of DPC • 32 elected members of Zila Parishad • Two members of Nagar Nigam • Members of Parliament • Members of Legislative Assembly • Member from Legislative Council • District Magistrate as permanent invitee • Two representative from public sector banks • Chairman, District Co-operative Bank as permanent invitee • District Planning Officer, Zila Parishad Plan of all the schemes in the district have to be approved by DPC. But DPC is primarily involved in processing the plans of NREGS, BRGF and 12th finance commission. But in the last DPC meeting only plans of BRGF and Boarder Area Development Schemes were discussed. It was found by the study team that members don’t have clear cut understanding about the functionalities, roles and responsibilities of DPC. Zila Parishad also has engineering cell. It technically approves plans under different schemes. Zila Parishad is primarily involved in NREGS, 12th finance commission, BRGF and Self Finance schemes. Under these schemes all elected members of Zila Parishad give area wise plans for the work to be done during the year to the chairman. Chairman selects some of the plans; these selected plans are then given to the engineering cell for the estimation of cost, so that budget can be allocated for implementing them. Under the self finance Schemes, Zila Parishad take advance from people for constructing shops. They construct shops and given them on rent to the person from which they have taken the advance. The advance money is divided into two parts - basic cost and developmental cost, basic cost is refundable and is adjusted in the rent and development cost is nonrefundable. Zila Parishad collects rent/fees from shops and other commercial businesses operating on Zila Parishad’s land.

Panchayat Samiti at Harsidhhi has 25 elected members, 19 ex-officio members. No standing committees have been constituted. As per the interaction of the study team with the members of Panchayat Samiti the reason for not constituting any committees is that Panchayat Samiti is not an



established structure in the 3 tier PRI hierarchy and Zila Parishad and Gram Panchayat are relatively established tiers. Panchayat Samiti has no clerical and administrative staff and it uses the resources of Block Development officer’s office. At present the Panchayat Samiti is primarily involved in planning, fund flow, monitoring of NREGS, BRGF and 12th finance commission schemes.

Gram Panchayat at Harpur Rai have Mukhiya, Upmukhiya, Sarpanch, 10 ward members, Panchayat Secretary and Gram Rozgar Sevak. Only 3 standing committees have been constituted, these are:

i. General Standing Committee- All major activities of GP, organizing gram sabha, making

proceedings.

ii. Social Justice Committee- It is involved in distribution of stipend to students of weaker section, identification of beneficiaries for social justice pension schemes.

iii. Gram Panchayat Vigilance Committee- It is involved in monitoring all the development works in

GP area.

The table below shows the constituted committees at ZP/BP/GP level and there functionalities:

Table 5.4 Committees constituted at ZP/BP/GP level and functions Committees Constituted as per the Bihar Panchayati Raj Act 2006

Purvi Champaran District Planning Committee DPC has been constituted. Chairman Zila Parishad is chairman;

CEO Zila Parishad is secretary. It has 32 elected public representatives, District Magistrate District Planning officer, and chairman co-operative bank as members. Last meeting held on 25th July 2009. Discussed BRGF and Boarder area Development Schemes

Standing Committees under Zila Parishad General Standing Committee

Committee constituted. It has 5 members, Chairman, ZP is the chairman and CEO, ZP is the secretary of the committee. It is responsible for monitoring assets and internal activities of ZP. Last meeting held on: 03.10.08



Finance, Account & Planning Committee

Committee constituted. It has 5 members and Chairman Zila Parishad is Chairman of this committee and CEO, ZP is secretary of committee. It is responsible for internal finance (self generated income), planning and expenditure of ZP. Last meeting held on: 03.10.08

Production Committee Committee constituted. It has 5 members, elected member Ms Alpana Devi is chairman and General Manager, District Industry Center is secretary. It is responsible for making recommendation on distribution of fertilizer and seeds subsidy etc. Last meeting held on: 04.10.07

Social Justice Committee Committee has been constituted. It has 5 members, elected member Mr. Akshay Lal Paswan is the chairman and District welfare office is secretary of the committee. It is responsible for SC/ST welfare and monitoring Anganwadi centers. Last meeting held on: 16.1.08

Education Committee Committee has been constituted. It has 5 members. Chairman ZP is Chairman, District education office is secretary.

Public Health, Family Welfare & Rural Sanitation Committee

Committee has been constituted. It has 5 members. Elected member Mr. Shyam Babu Rai is the Chairman Assistant Chief Medical Officer is secretary. Last meeting held on: 09.10.07

Public Works Committee Committee has been constituted. It has 5 members. Elected member Mr. Raja Ram Prasad is Chairman, EE, NREP is secretary. It is responsible for monitoring all road and construction work.

Standing Committees under Panchayat Samiti General Standing Committee Finance Account and Planning Committee Production Committee

No Committees have been constituted at Panchayat Samiti at Harsiddhi Block

Social Justice Committee Education Committee Public Health, Family Welfare and Rural Sanitation CommitteePublic Works Committee

Standing Committees under Gram Panchayat



Planning, Co-ordinations and Finance Committee

Not constituted yet

Social Justice Committee Committee has been constituted. Mukhiya Gram Panchayat is Chairman and Panchayat Secretary is secretary of the committee. Distribution of stipend for students of weaker section is done by this committee.


Not constituted yet

Production Committee Not constituted yet Education Committee Not constituted yet Public Works Committee Not constituted yet

Participation in Committees in District Gaya All seven standing committees of Zila Parishad and Panchayat Samiti have been formed at District and Block. Zila Parishad took 1.5 years to form all standing committees. Six Standing committees of Gram Panchayat have not been constituted yet. The purpose of these committees is to plan and review all the schemes running in the district. District Planning Committee (DPC) has been constituted in Gaya with following members. • Chairman, Zila Parishad is Chairman of DPC • Twenty Nine members of Zila Parishad • Five members of Nagar Nigam • Three Members of Parliament • Eleven Members of Legislative Assembly • One Member from Legislative Council • District Magistrate as permanent invitee • Two representative from public sector banks • Chairman, District Co-operative Bank as permanent invitee • One representative from Land Development Bank • Chief Planning Officer, Zila Parishad (District Planning Officer is holding this charge. He is also

District Statistical Officer) • Chief Executive Officer, Zila Parishad (Deputy Development Commissioner is holding the charge

of CEO • Chairman, Zila Parishad has final decision on both the agenda and proceedings of the meetings. It takes one week to one month for releasing the proceedings of meeting because of file movement between Zila Parishad and DDC office. DPC meetings are not regular and do not include all the development scheme of the district. The last DPC meeting took place on October 18, 2008 followed



Panchayat Secretary of visited Mora Mardana Gram Panchayat in Bihar is secretary for 4 Gram Panchayat. He is secretary for all standing committees. This implies that he has to organize 24 standing committees meeting and 40 Gram Sabha’s (A Panchayat has 10 gram sabha’s on an average) in a year as directed in Act. Panchayat Secretary has to organize a meeting every day to meet the requirement.

by the DPC meetings on October 10, 2008; March 15, 2008 and December 15, 2007. Election period of last three months has been stated as the reason of not conducting any DPC after October 18, 2008. DPC has reviewed only BRGF and NRES scheme. District Administration has stated non availability of progress of all development schemes due to short time as reason of not including all the schemes There are 35 members in Zila Parishad, Gaya - The Chairman, Zila Parishad, Twenty Nine members elected from territorial constituencies and five elected members from Nagar Nigam constituencies. The standing committees are having 3 to 5 Zila Parishad members and one to two invited members. Panchayat Samiti has also constituted all standing committees but only general standing committee had meetings. Gram Panchayat has not constituted any standing committees yet. Panchayat Samiti does not have any financial paper.

Gram Sabha and Gram Panchayat meetings are not regular in the visited district. Standing committees have been not formed under gram Panchayat. The various committees formed functioning at district; block and Panchayat level are illustrated below. Anganwadi and Vidyalaya Samiti are functional at Gram Panchayat and has ward member as member of these committees.

The table below shows the constituted committees at ZP/BP/GP level and there functionalities:

Table 5.5 Committees constituted at ZP/BP/GP level and there functionalities Committees Constituted as per the Bihar Panchayati Raj Act 2006

Gaya District Planning Committee Yes, Chairman Zila Parishad is chairman and has all the elected

public representatives as members. CEO, Zila Parishad is secretary of the DPC, District Magistrate and chairman, co-operative bank are permanent invitee member, and District Planning Officer is Chief Planning Officer. Last meeting took place on October 18, 2008 and discussed BRGF and NREGS only.

Standing Committees under Zila Parishad General Standing Committee

Yes, Committee constituted after 1.5 years of election in 2006 and has maximum 5 members and Chairman Zila Parishad is Chairman of this committee and CEO, ZP is secretary of committee



Meeting held on February 27, 2008; June 03, 2008; October 13, 2008; June 10, 2009 and had discussion on BRGF and NREGS

Finance, Account & Planning Committee

Yes, Committee has maximum 5 members and Chairman Zila Parishad is Chairman of this committee and CEO, ZP is secretary of committee. Had only 3 meetings in last three years

Production Committee Yes, Committee has maximum 5 members but never met in last three years

Social Justice Committee Yes, Committee has maximum 5 members but never met in last three years

Education Committee Yes, Committee has maximum 5 members and met once in last thee years.


Yes, Committee has maximum 5 members but never met in last three years

Public Works Committee Yes, Committee has maximum 5 members but never met in last three years

Standing Committees under Panchayat Samiti

General Standing Committee


Finance Account and Planning Committee


Production Committee Yes, Committee has maximum 5 members but never met in last three years

Social Justice Committee Yes, Committee has maximum 5 members but never met in last three years

Education Committee Yes, Committee has maximum 5 members but never met in last three years

Public Health, Family Welfare and Rural Sanitation Committee


Public Works Committee Yes, Committee has maximum 5 members but never met in last three years

Standing Committees under Gram Panchayat Planning, Co-ordinations and Finance Committee

Committee has been not formed yet

Social Justice Committee Committee has been not formed yet Public Health, Family Welfare Committee has been not formed yet



& Rural Sanitation Committee Production Committee Committee has been not formed yet Education Committee Committee has been not formed yet Public Works Committee Committee has been not formed yet

5.3.4. Challenges

PRIs lack desired skill set and resources to manage large scale programs of central Government cutting across all the 29 subjects. The envisaged role of PRIs requires capacity building with respect to domain understanding; skills like Planning, Accounting and Engineering; IT and non IT infrastructure. The efforts made by districts for improving the involvement of PRIs in these schemes have significant scope of improvement. The independent officials apart from the ministerial staff at Zila Parishad and Panchayat Sewak at Gram Panchayat level have not been appointed yet in the studied district. The DDC has been given charge of CEO Zila Parishad, BDO has been given charge of the EO Panchayat Samiti and couple of district level official has been given some additional charge in the PRIs. The involvement of these officials is limited to PRI system due to work load of their existing profile and overlapping of roles and responsibility between two roles. DDC needs to devolve the power to Zila Parishad which will be looked after by the CEO Zila Parishad for official work. But, both DDC and CEO, ZP charges are with one person. PRIs need complete restructuring starting with defining the regular office processes. Zila Parishad office does not have manpower, process and procedure for performing simple jobs.

The major challenge for PRIs in the district was in terms of the flow of information and schemes related data. Timely flow of information and data from Gram Panchayat to Block and District level authorities is not taking place. Gram Panchayats are not able to send Annual Plan, Utilization Certificates etc. on time. As a result District and Block level officials have to call meetings inviting Mukhyia and other members of Gram Panchayat in order to inform them that they need to submit the Utilization Certificates and other Scheme related data as early as possible, otherwise no further grant will be given by the government. In a similar manner at the Gram Panchayat level minimal information about the different Schemes of the state and central Government is present. For Example if Mukhiya wants to construct a community building he has no information on funds under which scheme can be utilized, whether funds of two different schemes can be pooled for carrying out a work. This results in lack of initiatives by PRIs. Mukhiya is hesitant in taking new initiatives because of lack of transparency and



they can be easily charged for corruption by the government. A case observed in Gaya for sending letter to PRIs is presented below. “There was need of urgent distribution of letters to all BDOs/ EO Panchayat Samiti. ZP office first identified 6 people for traveling to all blocks of Gaya. They fought for route plan and conveyance to be paid. After discussion over 5-6 hours, office staff left for dispatching the letter.”

5.4. PR Governance PR governance is strategic area of improvement for improving the function of PRIs in Bihar. PRIs are lacking basic infrastructure and resources for exercising their legal powers. The PRIs have limited role in implementation and monitoring of schemes and has negligible role in planning and accounting. The factors responsible for inadequate autonomy have been analyzed using root cause analysis. Autonomy in governance of PRIs is basically dependent upon the legal framework for functioning of PRIs, skills with PRIs and Infrastructure at PRIs. These three factors are further drill down to secondary factors for identifying the basic need of PRIs and their current status. The root cause analysis for inadequate autonomy to PRI is shown with the help of below shown fishbone analysis with color scheme.

Figure 5.6 Root Cause analysis for inadequate autonomy to PRI

Legend

Highly adequate, this signifies that this factor is favorable for autonomy to PRIs. There is no significant change is required for attaining the self Governance to PRIs.

Adequate, this signifies that some actions have been taken in this direction and need to be repeated and strengthened for achieving the complete autonomy to PRIs.

Inadequate, this signifies that these factors have not got the required attention from the Government or have not reached to the PRIs yet. There are some strategic actions required to strengthen these factor.



Autonomy to PRIs is inadequate because the 2 out of 3 factors are observed inadequate. Infrastructure is inadequate as all three factors are inadequate for infrastructure and 3 out of 4 factors for skills are observed inadequate. Infrastructure and skills are inadequate as all three factors are inadequate for infrastructure and 3 out of 4 factors for skills are observed inadequate. However, the legal framework is adequate as three factors responsible for this are highly adequate, adequate and inadequate. The each factor with reasoning behind rating them inadequate, adequate and highly adequate has been shown below. a. Inadequate skills PRIs have inadequate planning, accounting and information and communication skills. However, management skills are adequate. • Inadequate Planning skills- Zila Parishad and Panchayat Samiti does not have skilled

resources/ skill set to prepare plan for various schemes. BRGF and NREGP plans come for approval to Panchayat Samiti and Zila Parishad. Gram Panchayat makes implementation plans for some of the schemes i.e. NREGS, BRGF, SSA &12th finance commission.

• Adequate Management skills - Zila Parishad manages demands of people and influence

district administration’s decision making for inclusion of programs. They also have skills to assess the social requirement and impact of plan. Panchayat Samiti does not have role in

Inadequate autonomy

to PRIs

Adequate legal framework

Inadequate skills

Inadequate infrastructure

Highly adequate Act

Adequate guidelines for action

Inadequate compliance

Inadequate file & document Management

Inadequate office

Inadequate information &

communication

Inadequate planning

Inadequate accounting

Adequate management

Inadequate information &

communication



management as programs are managed by Block Development Office. Gram Panchayat is relatively better than Zila Parishad and Panchayat Samiti in planning due to their close proximity with plans and people. Gram Panchayat also makes effort for using available resources in better way.

• Inadequate accounting skills - Zila Parishad have an accountant but he does accounting work

of BRGF and NREGS only. Panchayat Samiti does not have any role in accounting of schemes. Panchayat secretary does the accounting for Gram Panchayat but does not have understanding of accounting principles.

• Inadequate information & communication technology skills- Zila Parishad has just started

posting the data of BRGF on plan plus. However, employees of Zila Parishad do not have basic IT skills. Panchayat Samiti and Gram Panchayat lack basic knowledge of working on computers.

b. Inadequate Infrastructure PRIs do not have basic infrastructure and office processes for regular functioning of the office. Infrastructure includes a premise for work, file & document management system and information and communication technology infrastructure in the office. • Inadequate office infrastructure- Zila Parishad has very poor building without any working

amenities. Pramukh, Panchayat Samiti has been given one room in BDO office. Visited Gram Panchayat does not have any building to conduct Gram Sabha’s and Panchayat meetings. There is no space for performing the regular operations at Gram Panchayat. They are using school building for conducting meetings of Gram Sabha.

• Inadequate file and document management - Zila Parishad and Panchayat Samiti do not

have free access to file and documents related to various schemes. Zila Parishad has proceedings of their previous meeting and data related to NREGS and BRGF only. Panchayat Samiti does not have any systematic way of filling and is completely dependent on Block development officer for information and records. The documentation at Gram Panchayat is dependent on skill set of Panchayat Sevak. Dalpatis have been promoted to Panchayat Sevak do not have good file and document management skills.

• Inadequate information and communication technology infrastructure - There is one

computer at Gram Panchayat which is not used for any official purposes. Panchayat Samiti does not have even a computer. Zila Parishad has some computers which are not used for any official purpose.



c. Adequate legal framework Legal framework has been rated adequate on the basis of analysis of act and activity mapping done by the line department for devolution of power to PRIs. However, the regular push for implementation of guidelines at both state and district level is not fund adequate. • Highly adequate Bihar Panchayati Raj Act 2006 - Bihar Panchayati Raj Act 2006

recommends the devolution of power to PRIs of all 29 subjects defined under 73rd amendment of constitution of India, brought in women reservation as close as 50 % but not exceeding 50%, Gram Kachahary and District Planning Committee.

• Adequate guidelines for action - Twenty one departments issued guidelines for devolution of

power defining the responsibilities of 3 tiers of PR in year 2001. Panchayati Raj elections have been conducted in year 2001 and 2006 to elect the representative at all the levels at regular interval. There is ambiguity in defining specific roles of district administration & Panchayat.

• Inadequate compliance of guidelines – State Government and district administration do not

monitor the regular functioning of the PRIs. Standing Committees have not been formed under Gram Panchayat. Standing committees of Zila Parishad and Panchayat Samiti do not meet and do not perform their functions. Departments at district level are still performing the core functions and allowed limited participation of PRIs

5.4.1. Planning • District Action Plan is not in practice in Gaya. The plan will be made for the first time this year

and envisaged to start the planning from village action plan. • Planning of IAY & IGNOAPS is based on the BPL list. The BPL list has been approved by the

committee having winner Mukhiya, looser Mukhiya, winner ward members, looser ward members. Every person in the BPL list whose age is more than 65 will get the BPL pension. However, house will be given starting from poorest family in batches. The Panchayat includes list of IGNOAPS beneficiary in their proceedings (Anumodan).

• Planning for NREGS, BRGF & SSA is done by Panchayat under guidelines received from

Government. Panchayat does planning of only these schemes. • The Panchayat does not do planning of any other scheme. The department with the help of

Panchayat secretary, BDO and district level officer does the planning



5.4.2. Monitoring & Implementation

• PRIs are free to do monitoring of any scheme • There is no structured system of monitoring for reviewing the regular progress of scheme. • The data for monitoring is not managed and easily accessible by PRIs. Hence, there is

complete dependency on departments • Gram Panchayat plays pivotal role in selection of beneficiary for studied scheme • Panchayat Samiti does not have any role in implementation of scheme as implementation data

is directly routed to BDO office from Panchayat • Similarly, Zila Parishad does not have active role in implementation of Scheme

5.4.3. Accounting

• Panchayat Raj department uses four tiers accounting system. Single entry accounting system has four head - Major Head, Sub Major Head, Minor Head and Sub Head

• The PRIs do not do accounting for any schemes other than BRGF and NREGS • Panchayat Samiti does not have any financial power. They are not even joint signing authority. • Mukhiya, Gram Panchayat place pivotal role in giving clearance for payments. However, he is

also not signing authority for all schemes.

5.4.4. Extent of PRI involvement in Schemes

The role of three levels of PRIs has been shown in below table. This is based on the interaction with district level officers responsible for implementing these schemes, public representative of PRIs and executive officer of PRIs. Different opinions have been received from different stakeholders on involvement of PRIs. The mapping shown below is based on our understanding of the situation as observed during the study, which has been cross validated by all the stakeholders interviewed. The role of PRIs has been mapped under four broad categories for each scheme – planning, accounting, monitoring, and implementation.

Table 5.6 Extent of involvement of PRIs in different CSS Color Scheme Effort has been taken in true spirit and state is successful in implementation

the participation of PRIs in support for implementation of the scheme like selection of beneficiary for some scheme

PRI does not have any involvement and the activity is done by respective departmental level officers



Schemes Functions Three tiers of Panchayat

Gram Panchayat

Panchayat Samiti Zila Parishad

Planning Accounting Monitoring

National Food Security Mission

Implementation


Rastriya Krishi Vikas Yojana

Implementation


National Horticulture Mission

Implementation


Integrated Child Development Scheme

Implementation


National Rural Employment Guarantee Scheme

Implementation


Swarnajayanti Gram Swarozgar Yojana

Implementation


Indra Awas Yojana

Implementation


Pradhan Mantri Gram Sadak Yojana

Implementation

Planning Accounting

Accelerated Rural Water Supply Programme

Monitoring




Gram Panchayat


Implementation


Total Sanitation Campaign

Implementation


National Land Resource Management Programme

Implementation


Integrated Wastelands Development Programme

Implementation


Sarva Sikhsa Abhiyan

Implementation Rashtriya Madhyamik Shiksha Abhiyan Scheme is not functioning in the state


Mid Day meals Scheme

Implementation


Basis Statistics for Local level development

Implementation

Tribal Sub-Plan, Grant to Voluntary Organizations, Hostels for STs

Visited Panchayat does not have tribal population

Planning Accounting

Scholarships, Hostels, Coaching for Weaker Sections Monitoring




Gram Panchayat


Implementation


Indira Gandhi National Old Age Pension Scheme

Implementation


National Rural Health Mission

Implementation


Panchayat Yuva Krida aur Khel Abhiyan

Implementation

5.5. Best Practices & Key Learning related to Panchayati Raj Governance

i. The Bihar Panchayati Raj act 2006 states that “As nearly as but not exceeding fifty percent of the total number of seats not reserved for Scheduled Castes, Scheduled Tribes and Backward Classes shall be reserved for women.” The Panchayati Raj Governance in the state of Bihar is able to achieve 50 % reservation for women at 3 tiers of Panchayat. This is a great step towards women empowerment in the state.

ii. The Harpur Rai Gram Panchayat is one of the few Gram Panchayats in the country in which Total

Sanitation Campaign (TSC) has been rolled out completely. The initiative is taken by the members of Gram Panchayat and local people along with the involvement of PHD department. As a part of this initiative Harpur Rai Gram Panchayat is able to achieve the following: • Toilets in the houses of all BPL/APL families • Anganwadi centers and Schools maintains a hygienic environment with focus on sanitation

and cleanliness • All drinking water resources are clean and the environment near them is hygienic • Garbage collection mechanism is present • Overall cleanliness of the villages is good As an outcome of this effort Harpur Rai Gram Panchayat has been awarded Nirmal Gram Panchayat by the president of India.



The Panchayat has limited participation in majority of the scheme due to

inadequate autonomy to PRIs. Legal framework is adequate the studied

districts were not able to implement it properly due to ambiguity in the

guidelines from state government and inadequate skill set and

infrastructure.

Conclusion

.



Objective: This section covers in depth assessment of information and service needs of state PR department, line departments, PRI and citizens. The expectations of various stakeholders from ePRI project, identified on basis of interactions with various stakeholders at state and district level, have also been discussed

6. Information and Services Needs

In order to get a clear picture of the information and services needs end user consultation with citizens, Government Departments, elected representatives was done with representatives from each group.

The information flow between Gram Panchayat, Panchayat Samiti, Zila Parishad and government departments is shown in figures 6.1 and 6.2. There are different types of flow of

information: • The information generating at Gram Panchayat level and flowing to state department/ GoI through

three tiers of the Panchayat and government departments at district level as shown in figure 6.1. • Information generating at Gram Panchayat flowing through the government department at district

level to the state level departments/GoI as shown in figure 6.2. In this case the role of Panchayat Samiti and Zila Parishad is eliminated.

• Information generating at Gram Panchayat level and flowing to state level departments/ GoI through Panchayat Samiti and government departments at district level eliminating the role of Zila parishad. This is applicable to only one scheme i.e. Scholarship, Hostels, coaching for weaker sections



Figure 6.1 Information Flow between ZP, BP, GP and Govt. Departments

Ministries, GoI

State Departments

District Magistrate, Deputy Development Commissioner, Block Development officer and other line departments

• NREGA:-Work Plan and job requirement from all three tier are collated and passed in district planning committee and information is passed to Dept. of Rural Development, Bihar

• PMGSY:-District core network approved by ZP the information is passed to State Rural Engineering department.

• BRGF:-DDC/BDO Collect all the Utilization Certificates and send it to state Panchayati Raj Department • 12th Finance Commission:- DDC/BDO Collect all the utilization certificates & send it to state Panchayati Raj

dpt.

Zila Parishad

• NREGA:-Work Plan and job requirement in addition to plan submitted by Panchayat Samiti and pass the district plan in DPC

• PMGSY:-identification of rural roads to built with inputs from Samiti and GP and pass the district core network prepared by Rural engineering organization

• BRGF:-Utilization Certificate of Zila Parishad Amount • 12th Finance Commission:- Utilization Certificate of Zila Parishad Amount

Panchayat Samiti

• NREGA:-Work Plan and job requirement in addition to plan submitted by gram Panchayats • PMGSY:-identification of rural roads to built in addition to Gram Panchayat plan • BRGF:-Utilization Certificate of Panchayat Samiti Amount • 12th Finance Commission:- Utilization Certificate of Panchayat Samiti Amount

Gram Panchayat

• NREGA:-Work Plan and job requirement • PMGSY:-identification of rural roads to built • BRGF:-Utilization Certificate of Gram Panchayat Amount • 12th Finance Commission:- Utilization Certificate of Gram Panchayat Amount



Figure 6.2 Information Flow between BP, GP and Govt. Departments

Gram Panchayat • IAY:-Identification of beneficiary and help in making waiting list for IAY

• IGNOAPS and social justice pension:-Identification and recommendation of beneficiary

• ARWSP:-Identification of location to install hand pump

• TSC:-Identification, selection and recommendation of beneficiaries and schools to be covered under

TSC

• SSA:-Identification of schools to be upgraded, hiring of teachers under Gram Panchayat and

disbursement of salaries to teachers under Gram Panchayat

• Scholarship, Hostels, coaching for weaker sections:-Identification of students to covered under

scholarship in discussion with school head

District Magistrate, Deputy Development Commissioner, Block Development officer and other line departments

• IAY:-The district waiting list prepared an approved by PRIs goes to Dept. of Rural Development, Bihar from DDC office

• IGNOAPS and social justice pension:-Recommended list by Gram Panchayats is collated and final list of beneficiaries is passed on to State social welfare department

• ARWSP:-The district public health and engineering department implement the scheme at recommended sites and pass the information to state PHE department

• TSC:-The district public health and engineering department with help from NGO’s implement the scheme at recommended sites and pass the information to state PHE department

• SSA:-District SSA unit monitor the scheme and collect information from Gram Panchayats and pass the information to State SSA unit Bihar Education Project Council (BEPC)

• Scholarship, Hostels, coaching for weaker sections:-The final list of recommended students for scholarship prepared by district Welfare officer and pass the information to state Welfare department

State Departments

Ministries, GoI



In Bihar the dual responsibility of officer acting both as development officer at district/block level and at the same time CEO ZP/EO Panchayat Samiti should be changed. There should be dedicated independent officers assigned to Panchayati Raj institutions so that they can act independently.

Gram Panchayat: Gram Panchayat is the last tier in the Panchayati Raj hierarchy for delivering citizen services. As per the devolution of power under Bihar Panchayati Raj Act, Gram Panchayat has to be involved in Planning, Monitoring Fund flow, Accounting and Implementation of schemes of different line departments. But it is found that work under NREGS, BRGF and 12th Finance Commission is done as per the guidelines at Gram Panchayat. In all other schemes Gram Panchayat is involved either in monitoring or in identification of beneficiaries. The reason for this is the lack of information about roles and responsibilities by the elected members. Another reason for this is the lack of skilled manpower to support the elected representatives in performing duties assigned to them. In both the districts Gram Panchayat are involved in planning, monitoring, fund flow, accounting and implementation of NREGS, BRGF and 12th finance commission. Under these three schemes an annual action plan is made by the Gram Panchayat, which is forwarded to the Panchayat Samiti and finally to Zila Parishad. This plan is discussed in the District Planning Committee’s meeting and becomes a part of Annual District Plan. Funds are also given directly to the Panchayats. But the Gram Panchayat sends

the Utilization Certificate (UC) to the Block development officer. BDO send these UCs to Deputy Development Commissioner, which are further forwarded to the Department of Rural Development and State Panchayati Raj Department. Both DDC and BDO act as CEO, Zila Parishad and Executive officer, Panchayat Samiti respectively. But in all other schemes benefiting rural citizen the officers act more as a DDC and BDO rather than CEO ZP or EO Panchayat Samiti.

Panchayat Samiti: - Panchayat Samiti is intermediate level in three tiers of Panchayati Raj. In both the districts Samiti have limited knowledge regarding information and service needs for rural citizen. Bihar Panchayati Raj Act recommends constitution of 7 standing committees at Panchayat Samiti level. These standing committees have not been constituted in East Champaran district. The Samiti is primarily involved in NREGS, BRGF and 12th finance commission schemes related work and that also is limited to providing utilization certificate or approval of plan submitted by gram Panchayats for these schemes. Elected members at Panchayat Samiti have limited awareness about their roles and responsibilities. They also have limited knowledge about the services to be provided to citizens and schemes. The Samiti members have never heard of some of the centrally sponsored schemes the study team discussed in the meeting. The Panchayat Samiti is not aware of role they can play in implementing the centrally sponsored schemes in their block. The Panchayat Samiti lack basic infrastructure and official staff. It is dependent on Block Development Officer’s clerical staff for performing official work. The Samiti provide block development officer utilization



In both districts it has been observed that members of Panchayat Samiti should be given more frequent training on there roles and responsibilities. The training regarding schemes, scheme benefits and role of Samiti in scheme should be given more frequently.

certificate for NREGS, BRGF and 12th finance commission. Panchayat Samiti also identifies the roads to be covered under PMGSY in addition to already selected by gram Panchayats.

Zila Parishad: - Zila Parishad is the upper most tier of the three tiers Panchayati Raj institutions. There is limited information regarding schemes, role of Zila Parishad in schemes and benefits to citizen from these schemes.

Zila Parishad provide utilization certificate of 12th finance commission, BRGF and NREGS to deputy development officer cum CEO ZP. The DDC passes on the information to respective line departments in State who further pass on to Government of INDIA line ministries. The initial data for planning and implementation for all the schemes is generated at Gram Panchayat level. However, the Gram Panchayat is not colleting and reporting this data comprehensively. This is primarily governed by demand driven approach and reporting of some essential data for statistical purposes. The data for planning is not collated, discussed and appended at Panchayat Samiti level. All the Panchayat Samiti’s should pass on plan and data captured for all the schemes to Zila Parishad. The Parishad should append district service needs and should prepare consolidated district plan. District Plan should be discussed and passed in District planning committee as mandated by Bihar Panchayati Raj Act, 2006. Gaya has initiated the process for preparation for district action this year i.e. 2009 onwards. However, East Champaran has district action plan in practice but does not cover all the schemes. In order to implement the process at all three tiers of Panchayati Raj institutions they should be provided ICT infrastructure, skilled manpower and basic capacity building needs to operate efficiently and effectively.

6.1. I&S Needs of State PR Department and other line departments

Government Departments and related establishments all across the board would like to have access to contemporary and modern tools and technology to aid in the process of plan and policy implementation, management and monitoring. Lack of modern tools, man power resources, redundant intermediaries and redundant system are hampering the Government officers to effectively manage their respective mandates and this is resulting in common citizens not getting the benefits of various plans and policies.

The state PR department and other line departments main problem with PRI’s is delay in providing utilization certificate for funds used under various schemes. The monthly progress report for various



schemes also gets delayed due to lack of infrastructure, knowledge and trained manpower with the PRI’s.

The below given pictorial representation shows the information and service needs of government employee.

Figure 6.3 Information and Services Needs of Govt. Department/Employees

At state and district level meetings were conducted with stakeholders in Panchayati Raj and various line departments to understand the key challenges and expectations in information and service needs. The Panchayati Raj and other state level departments need information from the districts and PRIs regarding physical and financial progress of the various schemes for assessing the benefit of the scheme to the community, improving the utilization of fund, preparing future plans, and identifying the improvement opportunities. The following tables describe information need of various departments; key issues and expectation of stakeholders:

Table 6.1 Information need of PRI and other department

Stakeholder Challenges / Issues Expectation from ePRI

Bihar PR Department

• The state PR department primarily needs information related to various schemes

• Improve accessibility to and availability of information for decision making regarding various




implemented by PRIs. However, the PRD receives information of two schemes- BRGF and 12th finance commission, only. State PR department need timely receipt of utilization certificate (UC) and progress report form PRIs for reallocation of funds and for reporting to central government. The funds under these two schemes remain unutilized because of the non receipt of UC and Monthly Progress Report.

• The state PR department does not receives information regarding functioning of the PRIs. This reduced the opportunity of improving the PRI system by undertaking some interventions by PRD

schemes and functioning of PRIs from PRIs.

• Online reporting of the data and generation of various MIS reports. Online reporting system will make the PRIs more transparent, accountable and responsible.

• Timely availability of utilization certificates.

Health Department

• PRIs have no direct involvement in the operations of the health department. Gram Panchayat can provide feedback to the district health society about the health issues in the village and the functioning of PHC. The health department can also provide information about health and immunization camps to be organized in the

• ICT infrastructure at Gram Panchayat. Using this ICT infrastructure information can be given to the GP and also GP can give feedback to PHC and health department.

• Information about the new born

babies who are born in hospitals and not in the village PHC can be provided to the GP to which they belong.




village directly to the Gram Panchayat.

• Information required from GP about the ASHA worker’s appointment, how many are working, what are their training need etc.

• Using this ICT infrastructure medical profile of the citizens, especially children, pregnant women can be maintained at the village level. This information can be utilized by the CDPOs’ and PHC workers for better care of them.

• Using the ICT based system overall medical profile of the area can also be maintained. This information can be utilized for studying the health problems of the particular area over a period of time.

Rural Development Department

• District Rural Development Agency (DRDA) allots funds to PRIs under NREGS. It requires UC and Progress report from PRIs. It also need information related to IAY and SGSY.

• Rural development department is also involved in census work, household survey, Agriculture census, election work. Due to this it has less time for schemes. This information can the provided by GP

• ICT system at GP level can fulfill the information needs of rural development department under IAY, SGSY and NREGS. It will also help in the census and survey related work of the department.

Department of Welfare

• Department of Welfare needs information from PRIs regarding the students for Scholarship/Stipend and about the disbursement of Scholarship/Stipend. Other requirement can be in terms of the building hostels for

• An online system which can help the welfare department to get the information about the number of eligible students and the amount being disbursed.

• PRIs can also utilize this system to for getting information and for tracking fund allotted to them.




students of weaker sections. • At present not adequate

amount of funds all allotted to the GP, because of this not all eligible students are able to get the scholarship/stipend. GP is not able to escalate this issue to the department of welfare and have no information about how much fund is allocated and how much is given. At village level citizens don’t have information about the schemes by the welfare department.

Department of Drinking water

Supply

• PRIs are not directly involved in the schemes of the department except monitoring, maintenance and selection of location of for hand pump etc.

• There is a need for a reporting mechanism form the GP to the department for escalating the issues related to drinking water and sanitation at village level.

• An online system can fulfill the information needs of the department and also the requirements of the citizens.

Department of Education

• PRIs are involved in monitoring of different schemes of the Education department. PRIs also give recommendation on the location of new schools and on up gradation of school.

• An online system at PRIs for having the most recent information on implementation of SSAA and MDM. This will help the PRIs in making timely recommendations to the department. It will also help in monitoring




Department of Social Welfare

• Department of Social Welfare needs information of beneficiaries for different pension schemes. It also needs information on ICDS like number of Anganwadi centers and workers. Due to lack of infrastructure at level PRIs have not much involvement in the schemes of welfare department.

• An online system which can help the social welfare department to get the information about the Anganwadi centers and workers.

• PRIs can also utilize this system to for getting information about the schemes of the social welfare department

Table 6.2 Service and other need of PRI and other department


Bihar PR Department

• The state PR department primarily needs information related to various schemes implemented by PRIs. However, the PRD receives information of two schemes- BRGF and 12th finance commission, only. State PR department need timely receipt of utilization certificate (UC) and progress report form PRIs for reallocation of funds and for reporting to central government. The funds under these two schemes remain unutilized because of the non receipt of UC and Monthly Progress Report.

• The state PR department does not receives information regarding functioning of the

• Standardization of reporting formats • Increase transparency in the PRIs

operations • Reform Panchayat for making them

more responsible and accountable - rewards for good work & punishment for negligence in duties, social audits

• Empower PRIs by bridging the gap between documented powers and powers in practice

• Participation of Gram Panchayat in planning and monitoring

• Support with technical manpower like Planners, Engineers, and Accountants etc.

• Capacity building of the Panchayat - skills, IT and non IT infrastructure




PRIs. This reduced the opportunity of improving the PRI system by undertaking some interventions by PRD

Health Department

• PRIs have no direct involvement in the operations of the health department. Gram Panchayat can provide feedback to the district health society about the health issues in the village and the functioning of PHC. The health department can also provide information about health and immunization camps to be organized in the village directly to the Gram Panchayat.

• ICT infrastructure at Gram Panchayat. Using this ICT infrastructure information can be given to the GP and also GP can give feedback to PHC and health department.

• Using this ICT infrastructure medical profile of the citizens, especially children, pregnant women can be maintained at the village level.

• Using the ICT based system overall medical profile of the area can also be maintained.

Rural Development Department

• District Rural Development Agency (DRDA) allots funds to PRIs under NREGS. It requires UC and Progress report from PRIs. It also need information related to IAY and SGSY.

• Rural development department is also involved in census work, household survey, Agriculture census, election work. Due to this it has less time for schemes. This information can the provided by GP

• PRIs should be made more responsible and accountable. Skilled manpower like Planners, Engineers, and Accountants are required. These resources will help PRIs in doing the work of rural development department in a better manner.

• ICT system at GP level can fulfill the information needs of rural development department under IAY, SGSY and NREGS. It will also help in the census and survey related work of the department.




Department of Welfare

• At present not adequate amount of funds all allotted to the GP, because of this not all eligible students are able to get the scholarship/stipend. GP is not able to escalate this issue to the department of welfare and have no information about how much fund is allocated and how much is given. At village level citizens don’t have information about the schemes by the welfare department.

• An online system which can help the welfare department to get the information about the number of eligible students and the amount being disbursed.

Department of Drinking water

Supply

• PRIs are not directly involved in the schemes of the department except monitoring, maintenance and selection of location of for hand pump etc.

• An online system can fulfill the information needs of the department and also the requirements of the citizens.

Department of Education

• PRIs are involved in monitoring of different schemes of the Education department. PRIs also give recommendation on the location of new schools and on up gradation of school.

• An online system at PRIs. This will help the PRIs in making timely recommendations to the department. It will also help in monitoring

Department of Social Welfare

• Department of Social Welfare wants to improve the PRIs involvement in selection of beneficiaries for different pension schemes. Due to lack of infrastructure at level PRIs have not much involvement in the schemes

• PRIs need skilled manpower and IT infrastructure so that pension related services can be delivered through them in more efficient manner, like at present once in a year camps are organized and the eligible persons under the different pension schemes are identified and their application is




of welfare department. accepted in that camp. If there is a system at the GP level then citizens can apply at GP and it can be submitted online to the BDO office for approval.

• An online system which can help the social welfare department to get the information about the Anganwadi centers and workers.

• PRIs can also utilize this system to for getting information about the schemes of the social welfare department

6.2. I&S Needs of PRI (ZP/BP/GP) The elected representative and political leaders are quiet unsatisfied with the quality of plan and policy implementation across various section of the Government and particularly relating to the rural people. They feel that the actual benefits and advantages of various plan and policies are not getting across to the common citizens due to various lacuna, complexity and shortcomings in the process and sub process of implementation. The most important shortcoming is the elected representatives are not trained enough to understand roles and responsibilities they have to perform. There is also information gap regarding all the centrally and state sponsored schemes, as elected representatives never even heard of benefits of schemes they can provide citizens as services.

It has been observed that disconnect exist with in elected representative at all three tiers of Panchayati Raj and with the different line departments regarding sharing information for different schemes. In both districts elected members at all levels claim to have no regular training regarding rules and regulations of Panchayati Raj. There are no regular trainings for information regarding different rural citizen benefit schemes. The below given pictorial representation shows the information and service needs of elected members



Figure 6.4 Information and Services needs of the elected representatives at ZP, BP and GP

The table below describes the Key challenges faced by elected members at three tiers of Panchayati Raj and expectation from ePRI

Table 6.3 Information needs of ZP/BP/GP and expectations form ePRI

PRI Level Challenges / Issues Expectation from ePRI

Receipt of Timely and Accurate Information

Online information about schemes, beneficiaries. Online submission and receipt of government order.

Collection and collation of Project Plan for Annual Work Plan

Online submission and collation of Project plan

ZP,Purbi Champaran and Gaya

• Awareness is limited only to the type of role and responsibilities as defined by Bihar Panchayati Raj Act 2006. But are unaware of other acts and notifications such as

• Elected members wants to have complete information about various schemes, eligibility criteria for selection of beneficiary

• Elected members feel that status of funds and their releases should be known to Gram Panchayat.




Devolution of Power 2001; and Government Order issued in 2008.

• Elected members do not get information on complete set of services to be delivered from Panchayat. Her awareness is also limited to running schemes and services only.

• Elected members were also unaware of services provided in other states.

• Officials of various line department do not keep elected members informed of the schemes run in their areas such as health camps, etc.


Online information about schemes, beneficiaries. Online submission and receipt of government order.



Work estimation and budget estimation.

Work estimation module and software for budget preparation

BP, Harsidhhi and Bodh Gaya

Lack of information on functions, roles and responsibilities. For Example the panchayat samiti have not constituted any committees.

Regular training has to be given on the Roles, Responsiblities and functioning of PRIs




• Awareness is limited only to the type of role and responsibilities as defined by Bihar Panchayati Raj Act 2006. But are unaware of other acts and notifications such as Devolution of Power 2001; and Government Order issued in 2008.




• Elected members want to have complete information about various schemes, eligibility criteria for selection of beneficiary



Online information about schemes, beneficiaries. Online receipt of government order.



GP, Hari pur Rai and Mora Mardana

Delay in Fund Flow Online status of fund flow and automation of fund rtransfer




Management of funds and account book

Computerized system of account book keeping and record management. Online submission of Utilization certificates.

Lack of information pertai ning to action taken on their observation report under monitoring mechanism of various schemes

Development of a system of status of action taken Reports on the observation reports of the Gram Panchayats and Gram Sabhas.

• Awareness is limited only to the type of role and responsibilities as defined by Bihar Panchayati Raj Act 2006. But are unaware of other acts and notifications such as Devolution of Power 2001; and Government Order issued in 2008.




• Elected members want to have complete information about various schemes, eligibility criteria for selection of beneficiary




Table 6.4 Services and other needs of ZP/BP/GP and expectations form ePRI






Delay in Fund Flow leading to delay in implementation

Online status of fund flow and automation of fund rtransfer

Irregular and untimely submission of Utilization Certificate and lack of account and book keeping

Facility of online reporting of utilization reports Data can be entered at lowest level which would be authenticated.

Lack of information on functions, roles and responsibilities. For Example the roles of DPC and other committees are not clear. Devolution Status is not clear


ZP,Purbi Champaran and Gaya

Lack of infrastructure –IT and Non IT, Lack of skilled manpower- Planners, Engineers, Accountants, Clerical staff etc.

Skilled manpower and infrastructure have to be provided





Delay in Fund Flow leading to delay in implementation

Online status of fund flow and automation of fund transfer

BP, Harsidhhi and Bodh Gaya

Irregular and untimely submission of Utilization Certificate and lack of

Facility of online reporting of utilization reports. Computerized account and record keeping system.




account andbook keeping

Lack of information on functions, roles and responsibilities. For Example the panchayat samiti have not constituted any committees.






Delay in Fund Flow Online status of fund flow and automation of fund rtransfer

Management of funds and account book

Computerized system of account book keeping and record management. Online submission of Utilization certificates.

Lack of systemic resolution of grievances of people, gram sabha and gram panchayat.

Online and multi-modal system of Grievance Management online with the jaankari project of Government of Bihar.

Lack of clarity on functions, roles and responsibilities. For Example the gram panchayat have constituted only 3 committees.


GP, Hari pur Rai and Mora Mardana





6.3. I&S Needs of Citizens

The rural citizens constitute the largest customer segment and the most frequent users of the majority of services offered by the Panchayat Offices. Citizen approaches the government for information, service and Different citizen centric services offered by PRI are follows: • Access the departmental services like issue of various types of certificates, etc. • Access the various Citizen Convenience / Utility services such as payment of Govt. taxes, • Use the government infrastructure, • Access the various types of information, • Take benefits of different Social Security Services of various Govt. Departments • Avail the services of other line Departments through PRI Expectations of Rural Citizen are availability of Government Services at their doorstep in a convenient manner at a low or minimal cost. Proper and reliable information on market price of agricultural produces, job opportunities and various welfare services is highly essential for them. In order to avail the services offered by Govt. rural citizens find lot of difficulties, where to go, whom to approach, whether the right person is available, whether he can or he has to take any body’s help are various questions raised in his mind. The consultation of various group of citizen revealed that citizens are normally paying lot more than what actually they are supposed to pay both directly and indirectly. Pictorial representation of I & S needs of village level entrepreneur



Figure 6.5 Information and Services needs of Village level Entrepreneur

Pictorial representation of information and service needs of rural citizens

Figure 6.6 Information and Services needs of Rural Citizens



Methodology used to interact with citizens:- In East Champaran and Gaya, Gram Sabha is conducted with the help of Panchayat secretary. The gram panchayat’s secretary informed the citizens by letter which is forwarded to all ward members that gram sabha has to be conducted on the prearranged date regarding ePRI project. Methodology used to interact with the Citizen at the Gram Sabha:- The study team used Hindi language to interact with gram sabha citizens. The gram sabha questionnaire was made base for asking questions and discussion in both districts. The same questions have been asked to citizens and than elected members for their perspective. In Gram Sabha the study team discussed the services regarding different line departments and schemes. In both the gram sabha existing and new services were short listed as per citizen service needs and requirements. The proceedings of the Gram Sabha Harpur rai (East Champaran) and Gram Sabha Mora Mardana (Gaya) are attached as Annexure: - 10.5 as Reference No. BIH/EC/01 and No. BIH/GY/03 respectively. Harpur Rai Gram and Mora Mardana Sabha details at East Champaran and Gaya



The Gram Sabha was conducted in Harpur rai Panchayat for gathering information and services need of the citizen. It was attended by 268 citizens, ward members, Mukhiya, Panchayat secretary, circle officer and block development officer, Harsidhi. The Gram Sabha was conducted in Mora Mardana Panchayat on 19th July, 2009. It was attended by 96 citizens, ward members, Mukhiya, Senior system analyst NIC Gaya and Panchayat Secretary. There were similar requirements from both the gram sabhas. The need of the citizen under heads – information, service and other needs is shown in below tables

Table 6.5 Information need of citizen and expectation from ePRI

Stakeholder Challenges / Issues Expectation from PRI

Villagers (Gram Sabha Members)

• Limited awareness of roles and responsibilities of Panchayat

• Members were unaware of services provided by PRIs

• Member were not aware of eligibility criteria and possible benefit they can get from schemes under implementation

• They wanted to know the status of their application lying at Panchayat, Block and District level; Gram Sabha wanted the information related to various scheme in general and Health, education and employment in particular.

Focus Group – Woman & Child

• Immunization for women and children, as well as all the 6 components of ICDS. Mid day meals and stipend for school going children are provided; Women SHGs are been formed in 3 wards of Dhanahi, Hari pur and Ahirwari.

• Availability and accessibility to information regarding health camps need be improved

Focus Group -Senior Citizens

• IGNOAPS and state social justice pension are given to both BPL

• Availability and accessibility to information regarding welfare schemes need be improved




and general category old citizens so that all are covered under the scheme.

Weaker Sections

SC/ST and other backward class scholarship Toilets have been constructed in each household of weaker sections. Under BRGF, 50% of the funds are given for the development of roads and drains. Under Indira Awas Yojana, houses were allotted which were distributed as follows: • 60% to SC/ST • 25% to Backward Class • 15% to Minorities It was found that wait list has been already printed in Gram Sabha and houses are given to beneficiaries as per the list.

• Availability and accessibility to information regarding welfare schemes need be improved

Rural Artisans

Current Status:- There is no service for development of rural artisans and industry

Physically disabled

Current Status:- The Panchayat has 67 disabled people and there are 5 to 7 Schemes for such needy people but the




Panchayat was unaware of them except for 3% reservation for them in schemes such as IAY etc. No service for physically disabled section is available at the Panchayat level. People are not getting Physically Challenged pension in visited gram Panchayat also the rickshaw for such people have not been distributed so far, but the same may take place a month or so.

Table 6.6 Service and other need of citizen and expectation from ePRI


(List of services, any dissatisfaction with the existing services, new services required)

Villagers (Gram Sabha Members)

• Members were unaware of services can be provided through Panchayat as they feel that Panchayat is better service delivery channel with respect to departmental offices. This is primarily due to geographical proximity and familiarization with Panchayat.

• People need to visit more than three times

• Gram Sabha wanted more services to be delivered from the Panchayat itself.

• Gram Sabha wanted more development works to be executed in their Panchayat such as Hospitals, Schools, Street Lamps, Hostels, Coaching for weaker sections etc.





to get services from the Panchayat/Block

Focus Group – Woman & Child

• Immunization for women and children, as well as all the 6 components of ICDS. Mid day meals and stipend for school going children are provided; Women SHGs are been formed in 3 wards of Dhanahi, Hari pur and Ahirwari.

• Process should be more transparent to have complete knowledge of the benefits of the schemes.

• Time lags can be reduced to improve the service delivery.

Focus Group -Senior Citizens

• IGNOAPS and state social justice pension are given to both BPL and general category old citizens so that all are covered under the scheme.



Weaker Sections

Current Status:- SC/ST and other backward class scholarship Toilets have been constructed in each household of weaker sections. Under BRGF, 50% of the funds are given for the development of roads and drains. Under Indira Awas Yojana, houses were allotted which were distributed as follows:







• 60% to SC/ST • 25% to Backward Class • 15% to Minorities It was found that wait list has been already printed in Gram Sabha and houses are given to beneficiaries as per the list.

Rural Artisans There is no service for development of rural artisans and industry

• Skilled people in villages are looking for some business opportunities at the village level itself.

Physically disabled

Current Status:- The Panchayat has 67 disabled people and there are 5 to 7 Schemes for such needy people but the Panchayat was unaware of them except for 3% reservation for them in schemes such as IAY etc. No service for physically disabled section is available at the Panchayat level. People are not getting Physically Challenged pension in visited gram Panchayat also the rickshaw for such people have not been distributed so far, but the same may take place a month or so.







There is no service for physically disabled section in Mora Mardana Panchayat, Gaya. People are not getting Physically Challenged pension in visited gram Panchayat



Gram Sabha Pictures Harpur Rai (East Champaran)

Figure 6.7

Figure 6.8

Figure 6.9



Gram Sabha Pictures Mora Mardana (Gaya)

Figure 6.10

Figure 6.11



The information and services needs of government departments, PRIs and

citizens are captured in this section. Government departments have

information and services needs for different centrally and state sponsoped

schemes in terms of reporting, planning details implementation details,

fund flow details. PRIs have similar infromation ans services need for the

schemes implemented by them. PRIs also requires IT and non IT

infrastructure for efficient delivery of different G2C servicies provided by

them. Rural citizens have information and services needs in terms of the

G2C services provided by the government- hows can they avail these

services, what are the benefits, which governement department provide

these services, what is the procedure of avialing these G2C services and

what is the cost invloved.

Conclusion



Objective: This section highlights the e Governance readiness of PRIs based on parameters such as level of computerization of PRI, extent of integration of NeGP initiatives with PRI and availability of ICT infrastructure at PRIs in the state.

7. e-Governance Readiness

The Government of Bihar has taken several e-Governance initiatives within and outside NeGP. The Government is successfully establishing Bihar State Wide Area Network (BSWAN) and Common Service Centers (CSCs) as well as they have their own Data Centre built by Department of Finance known as BRAIN-DC. Apart from BRAIN-DC, there is another data centre of NIC. The State Data Centre under NeGP is in conceptualization stage. State has undertaken

several e-Governance initiatives such as VAT-MIS, CTMIS, Online Treasury, Bihar Online (state portal), Modernization of prison security, Secretariat LAN (Sec-LAN), Computerization of Departments up to section officer level. The Department of Rural Development has established Block informatics Centre (BIC) in all 534 Blocks.

7.1. Initiatives for computerization of PRI There has been some initiative at nascent stage for the computerization of Zila Parishad under 11th

Finance Commission Schemes and Computerization of Panchayat Samiti under BRGF schemes but

their implementation is still to start. There is also a consideration of usage of CSCs for information

dissemination to PRI and reporting from them. But, this too is in conceptualization and discussion

stage. .

i. State sponsored initiatives The Department of Panchayati Raj, Government of Bihar has till date not started any PRI

specific computerization scheme. However, they are implementing Planplus, Priasoft and Panchayat portal with help of NIC.

NIC Bihar has developed a client server based software module which can be used to furnish

certificates like income, residential and character to rural citizens. This software module has been implemented in all the blocks and maintained by Citizen service centre vendors.

ii. Local initiatives by ZP/BP/GP

East Champaran:- The Zila Parishad has two computers with UPS and Printers but no internet connectivity. These computers are used for MS office applications such as letter drafting and report preparations. However these computers and not used for PRI related activities such as Planning, accounting or monitoring purposes. No computers are installed at Panchayt Samiti and Gram Panchayat



levels. Block administration has two computers installed at Block Informatics centre whose funds came from NREG scheme’s administrative expenditure. The BIC is operated on PPP model and with help of NIC and private service providers. One computer is used for the issuance of certificates and other computer is used for preparation of Monthly Progress Report (MPR) and MIS reports of NREG Scheme.

Extent of integration of NeGP initiatives with PRI i. CSC

CSC Project was launched in April 2007 in Bihar. These are known as Vasudha e-Sewa Kendras. There is provison of one CSC per Panchayat in Bihar. These need not be colocated with village having Panchayat office. Usually, CSCs are located in the market areas in the panchayat. Out of 8463 Panchayats, more than 4000 CSCs have been established in Bihar, but connectivity has been provided in about 3000 panchayats only. It is expected that all panchayats in Bihar would have a CSC by end of the year 2009. However, given the geo-climatic conditions and highest poverty ratio in the country, it is a challenging task to cover all 8463 Panchayats in Bihar by the year end.

Department of Rural Development, Government of Bihar notified the District administration to

enable the citizens to utilize issuance of Certificates namely, Birth, Death, income, caste, character and Land Possession certificates. But the order remains in-operationable due to various factors. These are poor response by the operators of CSCs and SCAs as the transaction charges by them is merely Rs.2/- . Also, it was learnt from the SCA (Beltron) that issues of non-cooperation from the field adminstration is hampering the implementation of the government order.

ii. SWAN

Bihar State Wide Area Network (BSWAN) has been commissioned at the district level and in 19 out of 27 Blocks of Purbi Champaran. However, the same is not providing the connectivity to Zila Parishad and Panchayat samitis. Infact, the same can provide the connectivity in the Horizontal SWAN project which is expected to be launched by end of year 2009.

7.2. ICT Infrastructure Assessment The current stage of computerization of PRIs is limited to 1-2 computers installed at Zila Parishad level with UPS and Printer and no internet connectivity. The computers installed at Zila Parishad level is used for letter drafting letters, proceeding of meeting and preparation of reports etc. These computers are not used for any G2C or G2G services, nor any PRI specific software applications are installed on them. No trained manpower is provided for the same. The infrastructure at the department and the three tiers is depicted in the table below with the numbers:-



Table 7.1 ICT infrastructure at 3 tiers of Panchayats

Computers Power Back Up Internet

Connectivity Computer Operators

Department of PR 5 Yes (SecLAN)) Yes 5 Zila Parishad 2 2 UPS (20 Min) No 2 Panchayat Samiti 0 0 No 0 Gram Panchayat 0 0 No 0

Civil work Assessment During the field study it was found that all the tiers have their have their own space but the same is not true for all Panchayat Samitis and Gram Panchayats in the district. At the same time, all the visited sites requires extensive civil works including electrical wiring and earthing. The civil work requires wall repair, false ceiling, door and window fixing works, etc.

It was found that computerization of PRI in Bihar is still to come up to

expectations. There is a demand for computerization and willingness from

the government to provide computers, connectivity and manpower for

building an e-Governance platform for effective G2G and G2C services.

But, the greatest impediments to the demand and desire are lack of funds,

infrastructure (physical, electrical and internet connectivity) and trained

manpower. They have the desire and there is a demand but what they lack

is what e-PRI Promises. Hence, the time has arrived in Bihar for e-

Governance to take its ultimate shape at the cutting edge of the

administration, the primary playground of democracy and reach the

masses who need the government most.

Conclusion



Objective: This section outlines both the availability and requirement of manpower at PRI and our assessment of their skills in terms of basic computer knowledge. Details of various training institutes and modules being used for capacity enhancement of PRI members have been included. Training requirements of PRI personnel have also been discussed.

8. State Capacity Assessment BIPARD is the nodal agency for training and capacity building. It is reported that the State Government provides training through District Panchayat Raj Officers. Efforts are being made to strengthen the Panchayati Raj Training Institutes especially located at divisional head quarters. Financial grant of Rs. 100 lakh have been provided to these institutes for strengthening of their facilities under BRGF. BIPARD provides training for empowering the elected members about their role and responsibility. NGOs are also

providing training through their own initiatives for about two days. Two NGOs, namely, CENCORED and THP (The Hunger Project) are conducting functional literacy courses, especially for the women elected representatives. No common curriculum has been adopted by these NGOs. The training curriculum used by NGOs is mostly awareness creation regarding the provisions of the Act and functions, roles and responsibilities of elected representatives. Innovative training strategies include participatory simulation, role-play, group discussion, debriefing exercises, and play simulation. There are federations of Mukhiyas and Pramukhs in each district, but none particularly for women members. Different training programmes are conducted by NGOs like CENCORED namely Kishori Panchayat. Traditional promotional tools like ethnic songs are used for better understanding of the subject. Even computer literacy programme with package of 30 days literacy based on simple language are being used to train the representatives. IT enabled Panchayats Some gram Panchayats has received a computer under NREGS. A computer to each intermediate level PRI has been provided under BRGF. Net connectivity is also proposed for the intermediate and Zila level Panchayats under Bihar State Wide Area Network (BSWAN). For supporting decentralised planning, it is proposed to use the Plan plus software to monitor schemes, Plan Plus software to be used at all levels of Panchayats. PRIA Soft is being customised by NIC for using it to streamline the accounting processes. Large scale training of Panchayat personnel for e-governance will be taken up under BRGF. Instructions have been issued to CEOs of Zila Parishads for uploading of data on Panchayat portal. Data uploading will be done through Block Informatics Centres and through Common Service Centres (at Gram Panchayat level).



8.1. Capacities (PRI personnel, technical professionals, administrative officials etc.) The institutional and human resources capacity of the department as well as the three tiers of PRI have been found to be below the critical level needed to live upto the expectation of the constitutional goals, mandate of Bihar Panchayati Raj Act 2006 and the Government Orders having acitivity mapping, released by various line deptarmtents in year 2001. None the less, Bihar has come a long way in last ten years in establishing a continuity and credibility of Panchayati Raj System through continous capacity building of the the three tiers and the department. While the department has got a well developed organizational structure but it may be noted in the section 4.2 that the department has no Additional Secretary, Joint Secretary, nor deputy secretary. The Depatment is limited to three tiers spanning the Secretary, Director and 5 Deputy Directors cum Section Officers. The three tiers do have all elected and nominated members but beyond that they are heavily dependent on the administrative wing of the government for their secretarial affairs. It may be further noted that the administartive staff themselves in the state is below national level and are severly overburdened. For example, the most important administarive staff involved in the PRI affairs are DDC, BDO and Panchayat Secretary. All the three are overburdened with extensive activities spread across multiple departments. Bihar has a peculiar situation where the BDO is also Circle Officer (CO). Panchayat Secretray is the backbone of the administration at the gram panchayat who has to carry the burden of responsibilities of as many as 40 departments. While the greatest malaise of development history has been non-utilization of funds due to delays in the accounts and financial reporting of the scheme, interestingly the separate account staff is the missing at all the three levels. The latest paradigm in the PRI is planning for the self development. But, PRI are oblivious of the the very knowledge of subjects they can plan for. Their capacity is hindered by the very fact that there powers are unknown to themselves. The Zila Parishad has their own District Engineering Cell for NREGS and the schemes of the Department of Panchayati Raj such as BRGF and schemes under 12th Finance Commission. For the rest of schemes, even Zila Parishad is dependent on various Engineering Departments in the District, such as PWD, REO, PHED, etc.



While it is necessary to have e-literacy for implementing the e-Governance in the PRI; the infrastructural challenges are manifold in the rural landscape of Bihar where electricity is consipicous by its absence.

Table 8.1 Skilled Manpower at State PR Department and three tiers of PRIs

Administrative

Personnel Technical

Staff Computer operators e-Literacy

Existence and Functioning of

Committees

Department of PR, GoB

Zila Parishad, Gaya Panchayat Samiti, Bodh Gaya Gram Panchayat, Mora Mardana

Legends:-

Color Label Parameters

High Entity requires skilled manpower for discharging their duties. It has desired competencies in managerial, behavioral and technical skills.

Medium Entity requires skilled manpower for discharging their duties. It has medium level competencies in managerial, behavioral and technical skills.

Low Entity requires skilled manpower for discharging their duties. It has low level competencies in managerial, behavioral and technical skills.

Not Applicable

8.2. Skills and Capabilities

The Skills and capabilities of the 3 tiers of PRI is limited as large section of the elected members are either illiterate or having matricultion level of education. The mass illiteracy and limited knowledge has kept the PRI functionaries on the back seat and the whole vehicle of PRI is driven by the field administration. There is a wide gap in the their expected role and responisibilties and actual practise. The various skills and capacity of the three ties are tabled below:



Table 8.2 Skills and Capacities of three tiers of PRIs

3 Tiers of PRI

Attributes Zila Parishad Panchayat Samiti Gram Panchayat

Writing Skills Documentation Skills Organizational Skills Planning Skills Budgeting Skills Technical Skills Monitoring Capacity Implementation Skills Policy Making Capacity Fund Raising Capacity Tax Raising Capacity Computer Skills

Legends:-

Color Label Parameters

High Based on the interaction of the study team with the staff at PRIs their skill set is found to be adequate for performing their roles and responsibilities.

Medium Based on the interaction of the study team with the staff at PRIs their skill set is found to be average and needs capacity building and training for better performance from the personnel.

Low Based on the interaction of the study team with the staff at PRIs their skill set is found to be not adequate. A large scale capacity building and training will be required to take this up to the desired level. This may create bottleneck in implementation of the desired system and an outsourcing model can be looked for performing few tasks.

Not Applicable



8.3. Training (Training needs, trainings provided, availability of training institutes, etc.) The Government of Bihar has initiated various training for the effective implementation of the PRI related schemes. The state has taken various initiatives to train the members of all the three tiers of PRI with respect to the following: • Role and responsibilities of the PRI functionaries • Power and functions of the PRI functionaries • Schemes and beneficiaries of the schemes • Role and responsibilities of the PRI functionaries with respect to the schemes.

However, the effectiveness of such training is very limited as such training are merely few hours long and size of audience is very large (usually above 100). These training programmes for elected members are conducted by the CEO ZP cum DDC in their respective districts. The ICT and e-Governance application training are limited to government officials and NIC personnel. Even these initiatives are in the very nascent stage. The following e-Governance/ ICT training in the PRI domain have been provided: • National Level training on Planplus- one person from state PR and one from NIC • State training on Planplus- from all districts DPC, DIO, 1 representative from technical support

group responsible for district plan, 1 person from urban local bodies from each body. The BRGF cell in the Department of Panchayati Raj is responsible for the Computer training. The cell is having close association with NIC and has engaged NIC for all computer related trainings.

Training Needs The field study during the Information and Services Needs Assessment (ISNA) phase brought a series of training needs of the PRIs. These are:- • Training on Roles, responsibilities, power and functions of PRIs • Training on 73rd Constitution Amendment Act and Bihar Panchayati Raj Act 2006 • Training on Devolution of Power • Training on organizational capacity • Training on coordination between 3 tiers of PRI • Training on government procedures • Training on Citizen centric services • Training on Community services • Training on usage of ICT and e-Governance



As evident from the above training needs, the Government has to undertake

massive training programme for the PRI. BIPARD, the nodal agency of the

government of Bihar for training needs to be well equipped and come up with

sound mechanism for training more than 24,000 PRI functionaries and associated

administrative staff on at least 9 subject matters as suggested above. BIPARD,

Department of Panchayati Raj and Government of Bihar may consider developing a

PPP model for the same. PPP model including specialized agencies and NGO need a

well defined roadmap for undertaking this mammoth and momentous task.

The government may establish a standing committee for continuous training of the

three tiers of Panchayati Raj Institutions as both functionaries and administrative

staff would change after a given period.

Conclusion



Objective: This section illustrates various citizen service delivery mechanisms, PPP models and initiatives undertaken by the PRIs at their own and overall at the state level. The analysis is based on information collected on the field through interaction with PRI members and most importantly citizens.

9. Citizen Service Delivery In State of Bihar, citizens at gram Panchayat level are not clear about the service delivery mechanism as they have to travel to Block Development Office, Sub Divisional Office and District Magistrate office for their information and services needs. People are highly expectant of the Panchayat and demand delivery of all services from Panchayat as they rate Panchayat service delivery more convenient option than

BDO, SDO and departmental Offices at District level. Due to lack of infrastructure and skilled manpower the service delivery mechanism of PRIs is dependent on the government resources and infrastructure.

9.1. Initiatives by PRIs

There are not any initiatives taken by Panchayati Raj Institutions in Government of Bihar for PPP (Public Private Partnership), Revenue sharing models for service delivery. It is observed that Post office play an important role in some of the PRI services in the state. In absence of complete banking branches in some of the district services like disbursement of pension and other social justice benefit are routed through Post office accounts. The schemes under which beneficiaries are getting money through post offices are:- • NREGS • IGNOPS • Scholarship to weaker section students • Social justice pensions • IAY Proposed/upcoming Schemes/ beneficiaries to get money through post offices are:- • ASHAs under NRHM

Table 9.1 Details of Post Offices in Bihar and District East Champaran

Post offices in Rural area East Champaran Gaya

8625 414 223 Source: Postmaster General, Bihar Circle, Patna.

The Bihar State Electronics Development Corporation LTD (BELTRON, Bihar Government undertaking) is the state agency taking initiative in ICT projects like common service centers in the state. The BELTRON has developed a portal (www.biharonline.gov.in) and provides all the details



about state government and will have online payment framework also. The BELTRON envisage the role of this portal as framework for delivering citizen services to both urban and rural population.

BSNL has prepared a plan for 6000+ Panchayats to have connectivity through BB and WIMAX. Out of these 6000+ Panchayats, they have already achieved 2500+ through BB and/or WIMAX. In Coverage of Villages over landline and WLL, the BSNL has coverage of 32000+ villages out of 36000+ villages in Bihar. • In both the districts there are around 14 common services delivered through Block and Gram

Panchayat and there is no service delivered through Zila Parishad. • In both districts the service model used is government owned and no PPP and boot model is

available.

The table below describes the agencies involved, delivery channels, service delivery mechanism and service model adapted for the services delivery.

Table 9.2 Agencies involved in Service Delivery, Delivery Channels, Service Delivery Mechanism and Service

Model adapted for the Services Delivery

S.No. Citizen Service Name

Acceptance of

Application

Agencies involved

Delivery Tier

Delivery Channels

Service Delivery Mechanism

Service Model

1.

Information on schemes, health and immunization camps and wait list of IAY

GP/BP 1. Line Departments 2. Gram Panchayat

GP GP/ BDO office

At present citizens get the information form the Panchayat Secretary, Mukhiya and camps by giving application on plain paper.

Government Owned

2.

Application for inclusion in BPL list

GP GP/BDO office

GP GP/BDO office

Application is collected at the SDO office. It comes to block a committee is appointed to inquire about the

Government Owned




Acceptance of

Application

Agencies involved

Delivery Tier

Delivery Channels


Service Model

new applicants. On approval of Panchayat Secretary, block officials and SDO the applicants are included in BPL list.

3.

Birth Certificate

GP GP/BDO GP GP Gram Secretary takes the application on plain paper and issue the certificate

Government Owned

4.

Death Certificate

GP GP/BDO GP GP Gram Secretary takes the application on plain paper and issue the certificate

Government Owned

5.

Services related to IGNOAPS

GP 1. Department of Social Security 2. BDO office 3. GP

GP Post office

Camps are organized at village level for identification of beneficiaries and for form filling. Citizens can also apply at GP or BDO office. Pension is given through the post office

Government Owned

6. Student scholarship

GP 1. Departme

GP GP Students are selected by the

Government Owned




Acceptance of

Application

Agencies involved

Delivery Tier

Delivery Channels


Service Model

for SC/ST and OBC

nt of welfare 2. BDO office 3. GP

social justice committee and the teachers of the school. Money is given to students on approval of teachers, mukhiya and Panchayat Secretary

7.

Social justice pension

GP 1. Department of Social Security 2. BDO office 3. GP

GP Post office

Camps are organized at village level for identification of beneficiaries and for form filling. Citizens can also apply at GP or BDO office. Pension is given through the post office

Government Owned

8.

Marriage Certificate

GP GP GP GP Gram Secretary takes the application on plain paper and an affidavit form both that they have not given and accepted dowry. The Panchayat Secretary issue

Government Owned




Acceptance of

Application

Agencies involved

Delivery Tier

Delivery Channels


Service Model

certificate

9.

Availability of forms for all schemes

GP 1. GP 2. BDO office 3. Local Shops

GP GP/BDO office/Local Shops

Few forms are available at GP (Panchayat Secretary), other forms are available at BDO office

Government Owned

10.

Application for inclusion in BPL list

GP GP/BDO office

GP GP/BDO office/SDO office

Application is collected at the SDO office. It comes to block a committee is appointed to inquire about the new applicants. On approval of Panchayat Secretary, block officials and SDO the applicants are included in BPL list.

Government Owned

11.

Information and distribution of ration coupons

GP Gram Panchayat BDO

GP GP/BDO office

Coupons are distributed to the beneficiaries by the Panchayat Secretary

Government Owned

12.

Registration and issuance of job card under NREGS &

DP/BP/GP GP BP Program Officer –NREGS

DP/BP/GP

DP/BP/GP

Registration and issuance of job card and demand for work is done by rozgar sevak at village level

Government Owned




Acceptance of

Application

Agencies involved

Delivery Tier

Delivery Channels


Service Model

Demand for work under NREGS

and PO at block level

13.

Information on Panchayat meetings and availability of previous proceedings

GP/BP/ZP Gram Panchayat

DP/BP/GP

DP/BP/GP

Panchayat Secretary informs the people about the meetings. Panchayat Secretary takes the signature of the citizens after informing them about the meetings. Copy of the proceedings can also be obtained form the Panchayat Secretary

Government Owned

14.

Right to Information Service and Grievance

DP/BP/GP Gram Panchayat BDO SDO DM

DP/BP/GP/BDO office

DP/BP/GP/BDO office

Application on Plane Paper RTI Register

Government Owned

9.2. Initiatives by State impacting service delivery to rural populace

Government of Bihar has named citizen service center project as VASUDHA and CSC centers as VASUDHA Kendra. A VASUDHA center will be established in each Gram Panchayat area under this project. The project had been outsourced to three private companies • SREI • ZOOM • SARK



At present there are approximately 8463 gram Panchayats in Bihar and out of them around 4000 citizen service centers are working. The BELTRON told the study team that 90% of the CSC’s will be commissioned by the year (2009) end.

East Champaran and Gaya • Private company SRIE operating citizen service centers operating up to Gram Panchayat area. • The Gram Panchayat selected for study does not have any citizen service centers • SRIE manage both district Vasudha kendras with online portal named www.sahaj.co.in • The services presently offered by Vasudha centers are:-

Railway Reservation, Mobile Recharge (Oxigen), Basic Computer Training, Job Trainers for basic English and interview preparation, LIC premium collection, Digital Photography, Typing, Printing, Form download, Internet surfing

A web based portal (www.sahaj.co.in) is operational with online payment option from CSCs. It is pre paid model, where CSC has to recharge by depositing amount in the SCA’s bank account in nearby branch. The option for online payment is also available. Investment of 1.6 lacs is required for setting up a Vasudha (Sahaj as called by SRIE) centre. Forty Thousand comes as margin money from Village level entrepreneurs and One Lac and twenty thousands comes as personal loan from bank. A 7 days training is imparted to Village level entrepreneurs against the planned 21 days training

There are 409 Gram Panchayats in district East Champaran. Out of that only 139 Vasudha Kendra’s had been established and only 41 are commissioned. The main factor for low rate of citizen service centers working in district is non availability of any G2C service. The citizen service centers are working as a normal business shops and have no proper revenue generating model for sustainability.

Table 9.3 Details of CSCs in East Champaran

District No of CSC as per Gram Panchayat have to establish

CSC established

East Champaran 409 139 Gaya 332 145



Reasons for slow implementation of the project: • Geographical challenges and Security issues • Availability of electricity • Connectivity • Poor awareness of scheme among people leading to difficulty in finding Village level

entrepreneur’s • Absence of G2C services • Revenue model not sustainable

The service delivery mechanism at all three tier of PRI in state of Bihar is government

owned in both the districts. There is no public private partnership or revenue sharing

model initiated by Panchayati Raj institutions in the state for the service delivery to rural

citizens. The State citizen service center project (VASUDHA) is already late by a year

because of non availability of sustainable revenue model and absence of any

government to citizen service.

Conclusion



10. Way Forward

The ePRI is project comprised of the following phases:

• The Initiation and Planning phase (Phase I)

• The INS Needs assessment phase (Phase II)

• The Process Re-engineering phase (Phase III)

• The DPR preparation phase (Phase IV) The objective of the Information and Services Needs Assessment (ISNA) phase (Phase II) was to identify and prioritize the information and services requirements of the PRIs. Key activities performed at the State & District level are:

• Process As-Is Assessment - to understand the current process of service delivery • Needs Assessment – to understand the requirements and what is being provided to the PRIs • Capacity Assessment – to understand the current gaps in capability building of the PRIs • IT Infrastructure Assessment - to understand the current purpose and the utilization of the

current IT infrastructure This report “Information and Services Needs Assessment” marks the completion of the phase II. As discussed, this report gave an insight of the present state of the Panchayat raj system in Bihar and identified the needs of the various stakeholders of the project. Subsequently, all ISNA reports from across the country will be consolidated to arrive at a national snapshot leading to the preparation of a National ISNA report. Also, during the state ISNA phase 20 services (15 existing and 5 new) have been identified. These services will be analysed and based on the gaps and improvement opportunities identified the To-Be scenario would be defined.

10.1. Services finalized for Process re-engineering

The team discussed with Secretary, Panchayati Raj (BIHAR) about finalization of G2C services to be included in ePRI project. The Secretary suggested the following broad heads of the services:

• Information Dissemination to the Beneficiaries: Information of schemes including eligibility criteria, benefits to the citizen; notification of agenda of panchayat’s meeting, scheduled date and time; and proceedings Panchayat meetings. This will create a positive impression of the PRIs among the citizens.

• Help people in developing their skills and finding employment

• Subsidy related services

• Housing related services

• Grants and Pension related services



• Health related services

• Education related services

• Land problem and mutation related services

Based on the discussed broad categories study team in consultation with Secretary, Panchayati Raj Bihar a tentative list of around 30 services was made. The services are as follows and as per government letter (letter no:-3202/PR dated:-9th July, 2009) issued after the discussion with study team by Panchayati Raj Bihar. The services have been identified on the basis of the perceived benefit to the citizens, volume of the services, frequency of usage and readiness of the service for delivering through Panchayat. The discussion is carried out at district block and Panchayat level for preparing the tentative list for presenting to the citizens at gram sabha. The final services list (15 existing and 5 new) for As-Is and to be study are selected form the list of 30 services and based on the discussion with the citizens in the Gram Sabha in the respective districts.

10.1.1. Existing Services

Table 10.1 List of Existing Services by PRIs in East Champaran

East Champaran Gaya

1. Birth Certificate 1. Birth Certificate 2. Death Certificate 2. Death Certificate 3. Registration and issuance of job card

under NREGS & Demand for work under NREGS

3. Registration and issuance of job card under NREGS & Demand for work under NREGS

4. Pension related services under IGNOAPS

4. Pension related services under IGNOAPS

5. Student scholarship for SC/ST and OBC

5. Student scholarship for SC/ST and OBC

6. Social justice pension 6. Social justice pension 7. Information on schemes, health and

immunization camps and wait list of IAY7. Information on schemes, health and

immunization camps and wait list of IAY 8. Information on Panchayat meetings and

availability of previous proceedings 8. Information on Panchayat meetings and

availability of previous proceedings 9. Availability of forms for all schemes 9. Availability of forms for all schemes 10. Application for inclusion in BPL list 10. Application for inclusion in BPL list



11. Information and distribution of ration coupons

11. Information and distribution of ration coupons

12. Kabir Anthishti Yojana 12. Grievance 13. Grievance 13. Right to Information Service 14. Right to Information Service 15. Marriage Certificate



10.1.2. New Services

The common new services (Wish list of citizens at Gram Sabha) for East Champaran and Gaya districts are as follows:- 1 Collection of land dues by halka worker/circle inspector 2 Issuance of Land Possession Certificate (LPC) 3 Issue of certificate by Circle Officer

• Caste • Character • Income

4 Issue of certificate by Block development officer • Residential

5 Application for EPIC The new services for Gaya District are: 1 Issuance of copy of khasra khatauni 2 Kisan Credit Card The 15 existing and 5 new services are selected in both districts in discussion with citizen in their respective Panchayat Gram Sabha. The proceedings of the Gram Sabha Harpur rai (East Champaran) and Mora Mardana (Gaya) are attached as Annexure: - 10.5 as Reference No. BIH/EC/01and BIH/GY/03 respectively.



11. Annexure

11.1. List of interviewees (Level-wise – State PR dept, State line dept, ZP, BP, GP)

11.1.1 Meeting Details at State Level

S.No Name Designation Date of Meeting

1 Mr. Santosh Kumar SIO, NIC 22.07.09 2 Dr. Deepak Prasad Secretary, Department of Panchayati Raj 23.06.09/30.06.09 3 Mr. K.C. Saha, Secretary Secretary, Department of Agriculture 23.06.09 4 Mr. Rameshwar Prasad Pr. Secretary, Department of Planning 2.07.09 5 Mr. K.P. Ramaiya Secretary, Department of Welfare 24.06.09 6 Mr. Ramanand Jha Dy. Secretary, Department of Social Welfare 23.06.09 7 Mr. Bhanu Pratap Sharma Secretary, Department of health & family Welfare 26.06.09 8 Mr. C.K. Mishra Secretary Department of IT 1.07.09 9 Mr. Vijay Prakash Pr. Secretary, Department of Rural Development 25.06.09 10 Mr. Balamurgan Director, NREGS,Bihar 29.06.09 11 Mr. Aditya Prasad Director, SGSY, Bihar 25.06.09 12 Mr. K.K. Rai Director, IAY, Bihar 29.06.09 13 Mr. K.N.Prasad Director, PMGSY 2.07.09 14 Mr. S.N. Mishra Director, ARWSP, Bihar 01.07.09 15 Mr. Javed Director, TSC, Bihar 01.07.10 16 Mr. Daya Shankar Pandey Director, NRLMP, Bihar 23-06-09/25-06-0917 Mr. Radha Kant Kumar Director, IWLD, Bihar 29-06-09 18 Mr. Ravi Sankar Director, SSA, Bihar 01.07.09 19 Mr. Ajit Kumar Director, RMSA, Bihar 26-06-09 20 Mr. Anand Kishore Director, MDM, Bihar 25-06-09 21 Mr. Rajesh Kumar Director, ICDS, Bihar 3.7.09 22 Mr. Bharat Joyti Director, IGNOPS, Bihar 2.7.09 23 Mr. P.C. Choudhary Technical Advisor Beltron 1.7.09



11.1.2 Meeting Details at District Level-East Champaran

S.No Name Designation Date of Meeting

1 Mr. Narmdeshwar Lal DM, East Champaran 06.07.09 2 Mr. Shailandera Kr. Pandey DDC, East Champaran 06.07.09 3 Mr. Ram Bhagwan Singh DIO, East Champaran 06.07.09 4 Ms. Manju Devi Chairman ZP, East Champaran 08.07.09 5 Mr. Ram Kishore Mishra DPRO, East Champaran 08.07.09 6 Mr. Shailender Kumar Deepak Ad. DPC, SSA, East Champaran 09.07.09 7 Mr. Pravin Solanki DPC NRHM, East Champaran 09.07.09 8 Mr. Arvind Kumar District Welfare officer, East Champaran 09.07.09 9 Mr. Bhogender Mishra EE PHD, East Champaran 13.07.09 10 Mr. Dharamveer Pandey DAO, East Champaran 14.07.09 11 Mr.Jai Ram Pal DHO, East Champaran 14.07.09 12 Mr. Vinay Kumar SDEO, MDM, East Champaran 14.07.09 13 Mr. S.P. Singh DPC, PMGSY 15.07.09 14 Mr. Ram Ahodhya Shah Panchayat Secretary Hari pur rai GP 15.07.09 15 Mr. Rajesh Kumar BDO, Harsiddhi 16.07.09 16 Mr. Md. Raisuddin Khan EO, SGSY, Harsiddhi 16.07.09 17 Mr. Subash Ram Block Statistical Supervisor, Harsiddhi 16.07.09 18 Ms. Bachhi Devi Mukhiya, Hari pur rai GP 16.07.09 19 Ms. Mukta Mohini CDPO, Harshiddi 16.07.09 20 Mr. Ramakant Diwedi Marketing Officer, Harshiddi 21.07.09 21 Mr. Chandershaker Gram Rozgar Sevak, Hari pur Rai GP 21.07.09



11.1.3 Meeting Details at District Level-Gaya

S.No Designation Date of Meeting

1 Mr. Sanjay Kumar Sinha DM, Gaya 08/07/09 2 Mr. Shakir Jamal DDC, Gaya 10/07/09 4 Ms. Sobha Sinha Chairman ZP, Gaya 08/07/09 5 Mr. Tarun Kumar Sinha Sr. System Analyst, Gaya 08/07/09 6 Meeting with Zila Parishad Staffs 08/07/09 7 Meeting with Depts. For mapping involvement of PRIs 09/07/09 8 Mr. Baban Kumar District Planning Officer, Gaya 19/07/09 9 Mr. Nilesh Kumar Sinha District Coordinator TSC, Gaya 02/08/09

10 Mr. Ajay Kumar Sinha EE PHD, Gaya 04/08/09 11 Mr. Prakash Chandra Mishra DAO, Gaya 10/07/09 12 Smt. Indu Bala Sinha Additional Director Social Security, Gaya 09/07/09 13 Mr. Ranjit Kumar Singh District Superintendent of Education, Gaya 10/07/09 14 Mr. Pawan Kumar District Program Manager, NRHM, Gaya 09/07/09 15 Mr. Gyan Krishna District Welfare Officer 10/07/09 16 Mr. Ashok Kumar Singh District Land Officer, Gaya 04/08/09 17 Mr. Vikas Kumar Jaiswal Block Development Officer, Bodhgaya 18/07/09 18 Smt. Anita Devi Pramukh, Bodhgaya 18/07/09 19 Mr. Vinod Kumar Verma Panchayat Sewak, Mora Mardana 17/07/09 20 Mr. Sitaram Yadav Mukhiya, Mora Mardana 17/07/09



11.2. Minutes of key meetings held

11.2.1. Minutes of Key Meeting – State Level

11.2.1.1 Minutes of the Meeting with Secretary, Ministry of Agriculture, Bihar

Objective: To apprise the Secretary, Ministry of Agriculture, about the ePRI Project and to know the status of National Food Security Mission, (NFSM), Rashtriya Krishi Vikas Yojana (RKVY) and National Horticulture Mission (NHM) in the state.

Date: 23-06-09 Location: Old Secretariat, PATNA

Scheduled Time Actual Time

Start Stop Total Hours Start Stop Total Time

2:00 PM 3:30 PM 1.5 Hr

Attendees

Mr. K.C. Shah, Secretary, Ministry of Agriculture, Bihar Mr. Anil Kumar Jha, Agriculture Specialist Mr. Krishan Bihari, Section Officer Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Handouts/ Documentation Shared

Monthly Report format for RKVY

Discussed Items

1. KPMG team has briefed the Secretary about the ePRI Project

2. The Secretary has asked the team to get in touch with Mr. Anil, Agriculture Specialist for the required information.

3. Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ in the context of Schemes of Agriculture department were asked.



4. Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed

5. KPMG team has also interacted with Mr. Krishan Bihari in the IT cell for RKVY and collected the required documents

Follow up Action Items

Responsibility Target Date Status

1

11.2.1.1 Minutes of the Meeting of the Workshop on e-PRI

Objective:-e PRI workshop

Date: June, 25th 2009 Location: Secretary, Panchayati Raj officeNew Secretariat building Patna, Bihar



12:50 13:30 .50 13:15 14:00 .45

Attendees

Shri. Sudhir Krishna-Additional Secretary (Ministry of Panchayati Raj, Government of India) Shri. Dinesh Kumar Jain-Joint Secretary (Ministry of Panchayati Raj, Government of India) Shri Rameshwar Singh-Principal secretary (Planning and development Department) Dr. Deepak Prasad- Secretary (Ministry of Panchayati Raj , Government of Bihar) Sri. Balamurugan D-Joint Secretary (Ministry of Rural Development, Government of Bihar) CEO Zila Parishad cum Deputy Development Commissioner of all the 38 districts of Bihar Santosh Kumar –SIO (SIO) Ashok Kumar-MoPR Bihar Ministry Coordinator (NIC)


State workshop presentation

Discussed Items



1 BRGF and Plan soft status in Bihar state is discussed under the chairmanship of Shri. Sudhir Krishna-Additional Secretary (Ministry of Panchayati Raj, Government of India)

2 Government to Citizen Services are discussed with CEO Zila Parishad of different districts gave there inputs Mr. D K Jain gave presentation on double entry system (Priyasoft)

3 Scheme implementation challenges like skilled manpower not available at Gram Panchayat level

4 Poor record keeping at GP level, Utilization Certificate and reporting not on time are some more challenges told by CEO Zila Parishad of all the districts

5 The point is discussed by CEO Zila Parishad of all the districts that there should be convergence between different schemes

6 Shri. Dinesh Kumar Jain-Joint Secretary (Ministry of Panchayati Raj, Government of India) gave presentation on double entry system (Priyasoft)

7 Sameer gave presentation on ePRI

8 Dr. Deepak Prasad- Secretary (Ministry of Panchayati Raj , Government of Bihar) directed CEO Zila Parishad (Gaya and East Champaran) to provide full help and support on district study visit by KPMG team



1 Need to provide concept note and presentation print outs to Secretary Panchayati Raj on 26th June, 2009.

Action Items Owner Due Date Requirement

1 Shri. Deepak Prasad Secretary Panchayati Raj will go through the concept note and presentation this weekend and will finalize the list of services next week.

2 Shri. Deepak Prasad Secretary Panchayati Raj directed CEO ZP GAYA Mr. Shakir Jamal and CEO ZP Purvis Champaran Mr. Shailinder Kumar Pandey to give names of 1 block and 1 gram Panchayat each in their respective districts by next week.



11.2.1.3 Minutes of the Meeting with Pr. Secretary, Dept. of Rural Development, Bihar

Objective: To apprise the Pr. Secretary, Dept. of Rural Development, about the ePRI Project and to taken his vision on PR governance in the state and to identify the areas of improvement.




11:30 AM 12:30 PM 1 Hr

Attendees

Mr. Vijay Prakash, Pr. Secretary, Dept. of Rural Development Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1 KPMG team has briefed the Pr. Secretary, Dept. of Rural Development about the ePRI Project

2

The Pr. Secretary has given the following points: Total assessment of PRIs in terms of manpower requirement, Capacity building, infrastructure, workload for Panchayat Secretary, pooling of resources by all departments etc have to be done. In NREGS 6% of budget is for monitoring and evaluation but no such allocation is there for other schemes Block system was started in 1950’s and the model was developed for 10 years. But till date no revised model has come up. Rural development department is busy in census work, household survey, Agriculture census, election work. Due to this it has less time for schemes. Parallel statistical work should be done with all the schemes. BPL survey can be merged with other survey In rural Bihar the penetration of Post office and Banks are not sufficient. 24 blocks have no bank. This results in difficulty in pension disbursement, payment of NREGS workers etc.



3

The rural post offices have insufficient staff, no power to keep large amount of money, no chest of there own, no autonomy. Rural banks deploy staff based on viability not based on services The organization structure of PRIs is similar for small districts as well as large districts. PRIs need proper reorganization. Actual role of ZP is confusing. At PRIs workload is high. Around 2-3 lakh people have to be trained on a regular basis. For increasing the efficiency of PRIs we need constitutional mandate with appropriate financial support. Bare minimum support have to given by the central government.

11.2.1.4 Minutes of the Meeting with Director, NREGS, Bihar

Objective: To apprise the Director, NREGS, about the ePRI Project and to know the status of NREGS in the state.




10:30 AM 11:00 AM 30 Min

Attendees

Mr. Balamurgan, Director, NREGS, Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG


Discussed Items

1 KPMG team has briefed the director about the ePRI Project

2 Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ in the context of NREGS were asked.

3 Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed



4 The director has informed that PRIs are involved in the scheme as per the act. They are the implementing agencies

5 Regarding the ICT infrastructure the director has informed that up to block level computers are provided under the scheme. They are not using planplus and priasoft.



1


1

11.2.1.5 Minutes of the Meeting with Director, IWLD, Dept. Of Rural Development, Bihar

Objective: To apprise the Director, IWLD, Dept. Of Rural Development, about the ePRI Project and to know the status of integrated wasteland development programme in the state.




1:00 PM 1:30 PM 30 Min

Attendees

Mr. Radha Kant, Director, IWLD, Dept. Of Rural Development Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG


Discussed Items

1 KPMG team has briefed the director about the ePRI Project

2 Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ in the context of IWLD programme were asked.



3 Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed

4 The director told the consultants that PRIs have no direct role in the scheme except monitoring. At district level DDC and DRDA are responsible and at the block level project implementation agency, BDO and line departments are carrying out the work under IWLD.

5 In terms of ICT assessment at state level MIS is present, few districts and few blocks have ICT infrastructure.

11.2.1.6 Minutes of the Meeting with Director, Department of Panchayati Raj, Bihar

Objective: To apprise the Director, Department of Panchayati Raj, Bihar, about the ePRI Project and to discuss issues related to PR department.

Date: 30-06-09 Location: New Secretariat, PATNA



11:00 PM 1:30 PM 2hr 30 Min

Attendees

Mr. Baidhnath Prasad, Director, Department of Panchayati Raj, Bihar Mr. Gautam Ghosh, System Administrator (DoPR) Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Amit Sharma, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG


Discussed Items

1 In order to verify that KPMG has been assigned to do this project, the Director has asked for a copy of Authorization letter/Work order.



2

The director has asked the KPMG team to include the following points in the study: Role of PRIs in NREGS Synergy of BRGF with NREGS Convergence process of different Schemes implemented by various departments at Panchayat

3 Director apprised consultants about brief history of the department and chronological developments. He also spoke about the advantage and disadvantages of the old system versus new system.

4 The Director has asked KPMG team to include BRGF and 12th Finance commission scheme of the Panchayti Raj department as part of the ePRI project.

5

The director has pointed out that there should be provision for administrative, contingency expenditure and certain percentage of discretionary provision in the CSS. There are no clear guidelines for expenditure of administrative and contingency fund. Fund utilization discretion to be given to district level like DDCs.

Pooling of funds across the scheme for capacity building and administrative expenditures is not present. Moreover pooling of fund is also possible at beneficiary level - Like 1% of BRGF goes to RGSY, 2% of BRGF goes to SGSY but the end beneficiaries are same so the fund can be pooled to carrying out common tasks.

The director has given an overview of the administrative structure of PRIs, level of synergy at each level, requirements of Blocks, implications of Panchayat elections 2006 and the contemporary state of Gram Panchayats.

The Director has referred consultants to Mr. Mithlesh Kumar, Section officer and Mrs Nirmala for understanding 12th finance commission and BRGF scheme respectively.


1 Hardcopy of the Authorization letter/Work order to be given to the PR Director.

2 Inclusion of BRGF and 12th finance commission scheme as part of the ePRI project

11.2.1.7 Minutes of the Meeting with Secretary, Ministry of Panchayati Raj (MoPR) , Bihar

Objective: Finalization of Services and to obtain broad vision of the PR department in the state, Challenges faced and expectation from ePRI project.

Date: 30-06-09 Location: New Secretariat, PATNA





5:00 PM 6:30 PM 1hr 30 Min

Attendees

Mr. Deepak Prasad, Secretary, Ministry of Panchayati Raj, Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Amit Shukla, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG

Discussed Items

1

KPMG team has asked the Secretary about finalization of G2C services to be included in ePRI project. The Secretary has suggested the following broad heads of the services: Information Dissemination to the Beneficiaries: Information of schemes including eligibility criteria, benefits to the citizen; notification of agenda of panchayat’s meeting, scheduled date and time; and proceedings Panchayat meetings. This will create a positive impression of the PRIs among the citizens. Help people in developing their skills and finding employment (e.g. NREGS) Subsidy related services like issuance of ration card Housing related services like IAY Grants and Pension related services like IGNOAPS, Handicap Pension, Widow Pension, BRGF Health related services like immunizations, health camps Education related services like SSA Land problem and mutation related services

2

KPMG team has asked the secretary key things which can be improved in the PRIs. The Secretary has given the following objectives for ePRI project: More autonomy to Panchayat, this can be developed by providing Funds, Functions and Functionaries with infrastructure. Transparency has to be increased in the PRIs. This can be achieved by reforms, by making Panchayat more responsible and accountable. In order to do these we can give rewards for good work done by Panchayats, and we also have to punish staff for negligence in duties. We can do social audits for increasing accountability. We have to empower Gram Sabha by bridging the gap between documented powers and powers in practice.



2

Gram Panchayat should participate in planning process. GP must have technical manpower like Planners, Engineers, and Accountants etc. Capacity building of the Panchayat with respect to manpower, skills, IT and non IT infrastructure Devolution of Power to Gram Panchayat.

3

Secretary emphasized the importance of BRGF and 12th Finance commission scheme of the Panchayati Raj Department. He added that cumulative annual budgetary lay out of both the scheme is more than thousand crore. He has asked KPMG team to include BRGF and 12th Finance commission scheme of the Panchayti Raj department as part of the study and ePRI project.

4

KPMG team has asked the secretary the expectation for the ePRI Project. The Secretary has given the following points: The consultant should clear cut recommendations. Solution should be specific and time bound. The consultant should clearly mention what kinds of interventions are required.

5

KPMG team has asked the secretary about his expectation form the MoPR Delhi. The Secretary has given the following points: The ministry should consider state specific problems The ministry should see the field reality An open approach has to be adopted by the ministry and it should not compare Kerala with Bihar. The ministry should support the state in achieving the goals


1 Share list of G2C services with Secretary

KPMG July 1, 2009

Prepare suggestive list of G2C service in concurrence with suggestions from the secretary

2

Letter to District Collector of Gaya and Purvi Champaran for conducting the ePRI orientation workshop in the districts

Secretary

July 3, 2009

Submission of draft letter by KPMG team



11.2.1.8 Minutes of the Meeting with Technical Advisor Beltron

Objective: To discuss the state of IT infrastructure in the Bihar

Date: 01-07-09 Location: Beltron Bhawan, PATNA



12:30 PM 1:30 PM 1hr 30 Min

Attendees

Mr. P.C. Chaudhary, Technical Advisor, Department of IT, Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Amit Sharma, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG

Discussed Items

1 The consultant has asked the advisor about some of the initiatives of the IT department for the PRIs. The advisor has given an overview of the call center for Panchayat which is operational and the e-district initiative

2 The advisor has also briefed the consultant about CSCs, Citizen Facilitating Centers (CFCs), Bihar online portal and the IT status of different line departments.

3

The consultant has asked the advisor about the capacity building status of employees in terms usage of IT. The advisor mentioned that Beltron has conducted various trainings for capacity building and because of the corporate structure of Beltron it is efficiently able to carry out capacity building.

4 The consultant has asked the advisor to give the details of the IT equipments in different department. On this he has asked to provide him a format in which the details are required.





Letter and format to the advisor for details of IT equipments in various line departments

KPMG 2.07.09 Latter and format to be given

11.2.1.9 Minutes of the Meeting with Secretary, Department of IT, Bihar

Objective: To apprise the Secretary, Department of IT, Bihar, about the ePRI Project and to discuss the state of IT infrastructure in the state.

Date: 01-07-09 Location: Beltron Bhawan, PATNA



11:00 AM 11:30 PM 30 Min

Attendees

Mr. C.K. Mishra, Secretary, Department of IT, Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Amit Shukla, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG

Discussed Items

1

The Secretary has given an overview of the IT infrastructure in the state. He has given the following points: Progress of SWAN is good in the state and block level connectivity has been achieved. Data Center with a capacity of 13 terabyte is present. Up to 2800 to 3000 CSCs have been established, but they are not performing as expected as they are not providing G2C services. CSCs in the state needs to be integrated to the services from some of the line departments. We need to look for options to improve CSCs.

2

Consultant has asked the Secretary, about the applications running on SWAN. On this the secretary said that, there are two applications running on SWAN, RTI and Registration system. These were e-governance initiatives of the state.



3

The Secretary has asked the consultant to contact Mr. Bhaskar and Mr. P.C. Chaudhary of Beltron and SAHAJ, Service provider for CSCs, for more information on the IT infrastructure in the state.

11.2.1.10 Minutes of the Meeting with Pr. Secretary, Planning Department, Bihar

Objective: To apprise the Secretary, Planning Department, Bihar, about the ePRI Project and to discuss issues related to Planning and the involvement of DoPR.




12:00 PM 1:30 PM 1 hr 30 Min

Attendees

Mr. Rameshwar Singh, Pr. Secretary, Planning Department, Bihar Mr. Sameer Sharma, Pr. Consultant, KPMG Mr. Amit Shukla, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG

Discussed Items

The Secretary has given an overview of the Planning process in the state. He has given the following points: • Line departments submit plans for different Schemes. Planning department makes a

consolidate plan and sends it to the planning commission for approval. • Focus of planning is primarily on the financial part. • The budget for various schemes of different line departments is broadly known to the

planning department. It adds 10 to 15% to the previous year budget and sends it for the approval of the planning commission.

• The Line departments individually prioritize its schemes based on the previous year performance and increase the requirement of fund.

• Apart form the funds provided by the central govt. state can also create its own resource of funds likes loans, funds form finance department etc.



• Planning has two parts, first the essential components like salaries and other committed expenditures, second are the non planned components. After considering the essential and the non planned components, the left amount is the flexible part which can be allocated to better performing departments and schemes.

• The line department follows a monthly reporting mechanism, a nodal officer from the line departments comes to the planning department for discussion and any corrections required in the report.

• The line departments have delegated financial powers to approve individual plans. • The panning department has asked the Line departments to give the scheme wise and

district wise breakup of the progress of 2008-09. • District panning committee is not a permanent unit. It has members which also have

other responsibilities. The planning department is planning to establish a District planning unit with a planning officer and other staff.

• Planning is not statistics based. There is a gap between plan and the statistics data as planning is a longer process.



11.2.2 Minutes of Key Meetings – District East Champaran

11.2.2.1 Minutes of the Meeting with DM, Motihari, Bihar

Objective: To apprise DM, Motihari about the ePRI Project and to seek his support for the district level study.

Date: 06-07-09 Location: DM office, Motihari



3:45 PM 4:00 PM 15 Min

Attendees

Mr. Narmdeshwar Lal, DM Motihari Mr. Ram Bhagwan Singh DIO Motihari Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1 DIO, NIC has given an overview about the project and about the KPMG team.

2 KPMG team has briefed the DM, Motihari about the ePRI Project and on what we are planning to do at the district level study.

2 KPMG team has asked the DM for organizing a district level workshop inviting heads of line departments, BDO and Panchayat Secretary of the selected block and village.

4 DM informed that the consultants can contact DDC for the district level study. DM also informed that on 07.07.09 there is a meeting of block level officials and the consultants can have a brief presentation in the same meeting.

5 DM has conveyed full support for the study at district and block level.

11.2.2.2 Minutes of the Meeting with CEO Zila Parishad, Motihari, Bihar

Objective: To apprise Zila Parishad, Motihari about the ePRI Project and to discuss the plan of action for the district level study.



Date: 06-07-09 Location: DM office, Motihari



1:00 PM 1:30 PM 30 Min

Attendees

Mr. Shalender Kumar Pandey, CEO Zila Parishad, Motihari Mr. Ram Balram Singh DIO Motihari Mr. Atul Mohan, Sr. Consultant, KPMG Mr. Rahul Singh, Jr. Consultant, KPMG

Discussed Items

1 KPMG team has briefed CEO Zila Parishad, Motihari about the ePRI Project.

2 KPMG team has asked the CEO Zila Parishad for organizing a district level workshop inviting heads of line departments, BDO and Panchayat secretary of the selected block and village.

3 CEO Zila Parishad has asked to put up a draft letter for organizing the workshop.

4 CEO Zila Parishad said that organizing the workshop will take minimum of 7 days time.

5 CEO Zila Parishad has conveyed full support for the study at district and block level.


1 A draft letter was prepared for organizing the workshop and was handed over to the DIO for necessary action.

11.2.2.3 Minutes of the Meeting with Chairman ZP, Motihari, Bihar

Objective: To apprise the Chairman ZP, Motihari, about the ePRI Project and to seek her support for the district/block /village level study.

Date: 08-07-09 Location: Zila Parishad, Motihari





12:30 PM 1:00 PM 30 Min

Attendees

Ms. Manju Devi, Chairman ZP, Motihari Mr. Tarkeshwar Singh, UDC, ZP, Motihari Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

KPMG team has briefed the Chairman ZP, Motihari about the ePRI Project, its importance and how it can empower the PRIs. The consultants also asked the chairman about the structure of ZP and the work done by ZP under different CSS.

Chairman ZP has informed the consultants that 7 committees have been constituted at ZP and each committee performs their roles and responsibilities as per the guidelines in the Act.

Chairman ZP, informed the consultants that, Zila Parishad is primarily involved in NREGS, 12th finance commission, BRGF and Self Finance schemes. Under these schemes all elected members of Zila Parishad give area wise plans for the work to be done during the year to the chairman. Chairman selects some of the plans; these selected plans are then given to the engineering cell for the estimation of cost, so that budget can be allocated for implementing them.

She informed that, under the self finance Schemes, Zila Parishad take advance from people for constructing shops. They construct shops and given them on rent to the person from which they have taken the advance. The advance money is divided into two parts - basic cost and developmental cost, basic cost is refundable and is adjusted in the rent and development cost is nonrefundable. Zila Parishad also collects rent/fees from shops and other commercial businesses operating on Zila Parishad’s land.

Chairman ZP has conveyed her support and introduced the consultants to Mr. Tarkeshwar Singh for taking necessary information.



11.2.2.4 Minutes of the Meeting District workshop, Motihari, Bihar

Objective: To appraise the head of line departments in the district about ePRI Project and to seek their support for the district/block /village level study.




11:00 AM 12:30 PM 1 hr 30 Min

Attendees

Ms. Manju Devi, Chairman ZP, Motihari Mr. Shailender Kumar Pandey, CEO ZP Motihari District Agriculture Officer, Motihari Dr. V.P. Sahay, District Implementing officer, Motihari Mr. Rajesh Singh BDO, Harshidhhi Block, Motihari Ms. Satyawati Shaw, Dy. Superintendent of Education, Motihari Mr. Bhogender Mishra, E.E., Public Health Division, Motihari Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1. CEO ZP/DDC Motihari has given an overview on the project and introduced the consultants to all the attendees. He also mentioned that at present the project is in the study phase.

2. KPMG team has given presentation on the ePRI Project and has taken appointments for meeting with the head of departments.

3. The head of departments have conveyed their support.

4. BDO, Harshidhhi has asked the consultants to visit the block after 15th July 2009 because of the ongoing Panchayat elections.

5. District Agriculture officer has asked the consultants to come on 14th July 2009. Others have asked the consultants to confirm the appointments on phone.

6. DIO NIC has given an overview on the importance of the project.



7.

EE, PHD and Chief Medical officer has asked that whether the objective of this project is to do computerization at all line department. On this the consultants and DIO NIC have apprised everyone that this project is going to empower PRIs with the help of ICT infrastructure and at this level of the project we are studying the interaction of PRIs with other line departments so that an efficient ICT based system can be developed.

11.2.2.5 Minutes of the Meeting with BDO/EO Harsiddhi Block

Objective: To take information about Panchayat samiti harsiddhi block. Discuss plan for the block level study.

Date: 15-07-09 Location: BDO office, Harsiddhi



12:30 PM 2:00 PM 1Hr 30 Min

Attendees

Mr. Rajesh Kumar, BDO/EO Panchayat Samiti Harshiddi Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1 KPMG team has asked BDO to organize a block level meeting inviting officials of all concerned line departments and meeting of members of Panchayat samiti.

2 BDO has informed the consultants that the meeting with officials from line departments can be organized on 17th June 09 and the Panchayat samiti meeting can be called on 22nd July 09.

3 The consultants have asked the BDO/EO details about the Panchayat samiti. He has given the details about the structure and functioning on Panchayat samiti.

4 BDO has also given information about different schemes and the role of Panchayat samiti and gram Panchayat in them.



5

Consultants have asked about the G2C services at block level. BDO has informed the the following services are given at block level: Registration of labours and demand for work under NREGS at block level Wage Payment under NREGS Grievance/ RTI based services Stipend for students of class 7-10 Residential certificate Caste certificate Character certificate Income certificate Land possession certificate Land valuation certificate Family member certificate Unemployment certificate BLP certificate

6 BDO informed that around 30-40 certificates are issued per day from the block. BDO spend lot of time in signing individual applications and have limited time for other developmental activities.

7 BDO also pointed out that problems of citizens are not being resolved because of the overhead of G2C services/ certificates at the block level. These services can be given at the GP level it self.

8 BDO also informed that land related problems are a major challenge in Bihar. If something for his can be done then it will help everyone.

9 BDO informed that there is no internet connectivity at the block level. For taking a copy of guidelines of different schemes he has to go the concerned department.

11.2.2.6 Minutes of the Meeting with Pramukh Panchayat Samiti, Harsiddhi Block

Objective: To take information about Panchayat samiti harsiddhi block. Discuss plan for the block level study.






12:30 PM 1:00 PM 30 Min

Attendees

Mr. Kin Dev Prasad Pramukh Panchayat Samiti Harshiddi Mr Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1 The KPMG team has informed Pramukh Panchayat Samiti Harshiddi, about the ePRI project and about the information and services need at the Samiti level.

2

The Pramukh, Panchayat Samiti has informed that, at Samiti level they consolidate the plan of different Gram Panchayats and also add their inputs for NREGS, BRGF and 12th finance commission. Funds also come to the Samiti under these schemes. At Samiti level they require plans from Gram Panchayat on time

3 Pramukh informed that they are also involved in stipend related works for students of class 7-10

4 Pramukh informed that they are not able to constitute any committees at the Panchayat Samiti, because of the lack of resources and infrastructure.

11.2.2.7 Minutes of the Meeting with Workshop Panchayat Samiti Harsiddhi Block

Objective: To apprise members about ePRI project and to take their inputs.




1:00 PM 2:30 PM 1 Hr 30 Min

Attendees



Mr. Kin Dev Prasad Pramukh Panchayat Samiti Harshiddi Mr. Rajesh Kumar, BDO/EO Panchayat Samiti Harshiddi Uppramukh Panchayat Samiti Harshiddi Memebrs of Panchayat Samiti Mukhyia of all Gram Panchayats Mr Sameer Sharma, Pr. Consultant, KPMG Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG Mr. Vishwajeet Kumar, NGO, Member

Discussed Items

1 BDO/EO Harsiddhi has given a brief overview about the ePRI project.

2 KPMG consultants have given presentation on ePRI project

3 Status of devolution of power under different schemes was discussed. The involvement of Panchayat Samiti in Planning, Accounting, Implementation Monitoring and fund flow of these schemes was discussed.

4

Mukhiya of different Gram Panchayats informed that they have no information on schemes - NFSM, RKVY, NHM. They also informed that they have information about the schemes but don’t know what work they can do under the schemes like PMGSY, ARWSP, TSC, NRLMP, IWLDP.

5

The Pramukh, Panchayat Samiti has informed that, at Samiti level they consolidate the plan of different Gram Panchayats and also add their inputs for NREGS, BRGF and 12th finance commission. Funds also come to the Samiti under these schemes. At Samiti level they require plans from Gram Panchayat on time

6 Pramukh informed that they are also involved in stipend related works for students of class 7-10

7 Members also informed that all agriculture related schemes are being carried out with the department of agriculture along with NGOs and PRIs have no role in them

8 Members also informed that in NREGS payment to workers are made as late as 2 months. For this reason people don’t want to work under NREGS because their requirement is daily payment



11.2.2.8 Minutes of the Meeting with Mukhiya, Harpur rai GP

Objective: To inform Mukhiya, Harpur rai GP about the ePRI project and to take details of GP level study.

Date: 16-07-09 Location: Harpur Rai GP



5:00 PM 6:00 PM 1Hr

Attendees

Ms. Bachhi Devi, Mukhiya, Hari pur rai GP Mr. Dhannjai Paswan, Up-Mukhiya, Hari pur rai GP Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1 KPMG team has informed the Mukhiya about the project and asked her to organized gram sabha. The consultants have also asked the Mukhiya about the G2C services given at the Panchayat level

2 Mukhiya in consultation with BDO has finalized 24th July 2009 for gram sabha. Mukhiya informed the consultants that she will identify the G2C services.

3 Mukhiya informed that they want to do work at village like construction of community building etc. but they don’t know under which fund they can do it. They want to know whether they can combine funds of different schemes for carrying out a task.

4 Mukhiya also said that they are scared of taking initiatives at Gram Panchayat level, because of lack of transparency govt. officials often charge them for corruption.

5 Upmukhiya informed that villagers don’t have information about different schemes by the central and state government. Students are not able to access resource due to lack of information.



11.2.2.9 Minutes of the Meeting with Panchayat Secretary Harpur rai GP, Motihari Bihar

Objective: To inform Panchayat Secretary Harpur rai GP about the ePRI project. To discuss the plan for block and GP level study




11:00 AM 12:00 PM 1hr

Attendees

Mr. Ram Ahodhya Saha, Panchayat Secretary Hari pur rai GP Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Rahul Singh, Sr. Consultant, KPMG Mr. Vishwajeet Kumar Member

Discussed Items

1 KPMG team has briefed the Panchayat Secretary about the project.

2 The consultants has informed the Panchayat Secretary that we need to organize Gram Sabha and also discussed the plan for the village level study.

3 Panchayat Secretary has conveyed his cooperation and informed that Gram Sabha can be organized, but we need to inform the BDO/EO.

4.

The consultants have asked the Panchayat Secretary about the different G2C services given at the Panchayat level. The Pancayat Secretary have given the list of following services: 1. Information on schemes, health and immunization camps and wait list of IAY 2. Information on Panchayat meetings and availability of previous proceedings 3. Application for inclusion in BPL list 4. Birth Certificate 5. Death Certificate 6. Registration and issuance of job card under NREGS 7. Demand for work under NREGS 8. IGNOAPS- identification of beneficiaries 9. Student scholarship for SC/ST and OBC



10. Social justice pension 11. Information and distribution of ration coupons 12.Grievance 13. Kabir antyosthi yojana 14. Mukhyamantri Kanya Vivah Yojana 15. Distribution of Ration Coupons

5 The consultants have also taken detailed information for the As-Is status of all the above services.

11.2.2.10 Minutes of the Meeting Gram Sabha, Harpur Gram Panchayat

Objective: To inform the members of the Gram Sabha about ePRI project. To take information related to the project and finalization of 15 existing and 5 new G2C services.

Date: 24-07-09 Location: Krishi Bhawan Harpur Rai GP



11:00 AM 1:30 PM 2 Hr 30 Min

Attendees

Smt. Bacchi Devi, Mukhiya Harpur Rai Panchayat Ward Members (10) 268 Gram Sabha Members Shri Rajesh Kr. Singh, Block Development Officer Mr. Ram Ayodhya Shah, Panchayat Secretary Mr. Sameer Sharma, Principal Consultant Mr. Atul Mohan, Jr. Consultant, KPMG Mr. Vishwajeet Kumar, NGO Resource

Discussed Items

1 KPMG team and BDO explained the Gram Sabha members and the members of Gram Panchayat Harpur Rai about the e-PRI project.

2 KPMG team asked the Gram Sabha questionnaire to the Gram Sabha members and Mukhiya of Hari pur Rai. The questionnaire and the answers are attached herewith.



3

KPMG team asked about the existing services from the Panchayat. These existing services are Birth Certificate, Death Certificate, information of Gram Panchayat meetings and proceedings, Application for inclusion in BPL, Application for NREGS Job Card, Application for work under NREGS and Payments, Application for IGNOPS, Application for Scholarship and disbursement of same, Application for Social Security Pension schemes and payments, application for Ration Cards, Public grievance, Wait list of IAY, application under Kabir anteyasthi Yojana and payment and marriage registration.

4

Gram Sabha expressed their desire to have the following services from Panchayat itself:- Land revenue collection Caste and Income Certificate Residential Certificate Land Possession certificates Application for EPIC

5

Members of gram Sabha identified the following areas of concern: Problem of availability of water Difficulty in availing pensions for physically challenged and widows Limited availability of Mukhiya. Limited information on schemes of state and central government Panchayat should take up development work such as Hospitals, Schools, Street Lamps, Hostels, Coaching for weaker sections etc.

6 Mukhiya informed that lack of funds have major factor in providing services such as NREGS, Kabir Anteshati Yojana, Mukhayamantri Kanya Vivah Yojana etc.

7 Mukhiya was not satisfied by the current devolution and wants more schemes related to construction of Hospitals, Schools, Hostels, solar lights etc. to be given to Panchayats. Mukhiya informed that Panchayat get the funds after long delays.

8 The meeting ended with vote of thanks.

11.2.2.11 Minutes of the Meeting Final District Workshop at East Champaran

Objective: District Workshop. Presentation on Key findings of ISNA report at district level

Date: 08-08-09 Location: DM office, East Champaram





10:30 AM 11:00 AM 30 Min

Attendees

• Mr. Narmdeshwar Lal, DM East Champaran • Smt. Manju Devi, Chairman ZP, East Champaran • Mr. Shailandera Kr. Pandey, CEO ZP/DDC, East Champaran • Mr. Ram Bhagwan Singh, DIO, East Champaran • Mr. Arvind Kumar, District Welfare officer, East Champaran • Mr. Ram Kishore Mishra, DPRO, East Champaran • Mr. Rajesh Kumar, BDO, Harsiddhi • Ms. Bachhi Devi, Mukhiya, Harpur rai GP • Mr. Ram Ahodhya Saha, Panchayat Secretary Harpur rai GP • Mr Sameer Sharma, Pr. Consultant, KPMG • Mr. Atul Mohan, Jr. Consultant, KPMG • Mr. Rahul Singh, Sr. Consultant, KPMG

Discussed Items

1.

KPMG team has given presentation on the key findings of the study at East Champaran. The presentation covers the following: Overview of ePRI project to apprise the district level officers about the project. The expectation of Secretary Panchayati Raj, Bihar. Salient features of Bihar Panchayati Raj Act 2006. Information flow in PRIs. Status of Committees at ZP/BP/GP. Status of Devolution of power to PRIs in the district. Information and Services needs of Govt. Employee, PRIs and Rural Citizens. Best Practices in the district Training needs of PRIs and the current status State ICT readiness Existing and new services selected at Gram Sabha Way forward



2. A draft report would be submitted to the DIO, East Chamaparan and the district magistrate for their kind perusal.

3. District Magistrate informed that the Government of Bihar is in the process of making the Panchayat and Hulka Karmachari’s jurisdiction co-terminus.

Follow up Action Items Responsibility Target Date Status

1 A draft report would be submitted by KPMG team to the DIO for validation.

2 The inputs, suggestion and corrections provided by the DIO would be incorporated in the INSA Report of East Champaran district



11.2.3 Minutes of Key Meetings – District Gaya

11.2.3.1 Minutes of the Meeting with District Workshop, Dist. Gaya, Bihar

Objective: To apprise the representatives, about the concepts and objectives of the ePRI Project along with the time schedule of the meeting.

Date: 07-07-09 Location: District Magistrate Office, Gaya



01:00 PM 03:00 PM 2 Hrs

Attendees

• Mr. Sanjay Kumar, District Magistrate, Dist. Gaya, Bihar • Mr. Shakir Zamal ,DDC/CEO Zila Parishad, Dist. Gaya, Bihar • Mr. Tarun Kumar Sinha, Senior System Analyst and NIC, Dist. Gaya, Bihar • Shri Prakash Chandra Mishra, District Agriculture Officer, Dist. Gaya, Bihar • Mr. Baban Kumar, District Planning Officer, Dist. Gaya, Bihar • Smt. Indu Bala Sinha, Additional Director Social Security, Dist. Gaya, Bihar • Sri Ajay Kumar Sinha, Executive Engineer Public Health and Engineering, Dist. Gaya, Bihar • Mr. Ojha, District Education Officer, Dist. Gaya, Bihar • Mr. Ranjit Kumar Singh, District Superintendent of Eductaion, Dist. Gaya, Bihar • Mr. D.B Sharma, Civil Surgeon, Dist. Gaya, Bihar • Mr. Pawan Kumar, District Program Manager, District health Society, Dist. Gaya, Bihar • Mr. Srinivas Singh, TCS Representative, BSWAN DHQ, Dist. Gaya, Bihar • Mr. Sameer Sharma, Pr. Consultant, KPMG • Mr. Amit Shukla, Pr. Consultant, KPMG

Discussed Items

1KPMG team has briefed the district level officials about the concepts and objectives of the ePRI Project along with the time schedule of the meeting and urged the officials to participate in the discussion to make the project successful

2Bodh Gaya Panchayat Samiti and Mora Mardana Gram Panchayat were selected for the study by the DDC and DM



11.2.3.2 Minutes of the Meeting with DDC/CEO Zila Parishad, Dist. Gaya, Bihar

Objective: To apprise the DDC/CEO Zila Parishad, about the ePRI Project and to know the status of various schemes running through DDC and DRDA including the National Rural Employment Guarantee Scheme (NREGS), Indira Awas Yojana and National Land Resource Management Program.

Date: 10-07-09 Location: Zila Parishad, Gaya



06:30 PM 08:30 PM 2 Hrs

Attendees

• Mr. Shakir Zamal,DDC/CEO Zila Parishad, Dist. Gaya, Bihar • Mr. Sameer Sharma, Pr. Consultant, KPMG • Mr. Amit Shukla, Pr. Consultant, KPMG


Office order on formation of standing committees under Zila Parishad Proceedings of previous four DPC meetings

Discussed Items

1.KPMG team has briefed the Additional Director Special Security about the ePRI Project

2.

Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ in the context of the status of various schemes running through DDC and DRDA including the National Rural Employment Guarantee Scheme(NREGS), Indira Awas Yojna and National Land Resource Management Porgram were asked.

3.Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed

4.The failure of Integrated Child Development Scheme (ICDS) was related to the lack of appointment of CDPS

5.The reason for not carrying out devolution of power was stated to be the impotency of the Zila Parishad to assume responsibility, who only seeks power for personal benefits

6.Planning and management capabilities, along with technical man power are found to be lacking in Zila Parishad which makes regular training a primary requirement



7.

Zila Parishad does not focus on the holistic development of the district but promote certain schemes to reap personal benefits. For examples, certain areas of interest have been provided with basic infrastructure such as roads and street lamps whereas the others have been neglected

8.It was suggested that the post of Chairman of Zila Parishad be made independent from DDC and should focus on the functioning of Zila Parishad

9. Infrastructure in completely lacking in terms of buildings, man power and IT infrastructure

11.2.3.3 Minutes of the Meeting with Chairman Zila Parishad, Dist. Gaya, Bihar

Objective: To apprise the Chairman Zila Parishad, about the ePRI Project, who undertakes the roles of overseeing the development of various schemes in the district as well as the management of role development schemes. Also, to gather an insight over the status of devolution of power from Chairman of Zila Parishad

Date: 08-07-09 Location: Zila Parishad, Gaya



11:30 AM 01:00 PM 1 Hr 30 Min

Attendees

• Kumari Shobha Sinha ,Chairman of Zila Parishad, Dist. Gaya, Bihar • Mr. Sameer Sharma, Pr. Consultant, KPMG • Mr. Amit Shukla, Pr. Consultant, KPMG

Discussed Items

1 KPMG team has briefed the Chairman of Zila Parishad about the ePRI Project

2Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ in the context of development of various schemes in the district as well as the management of role development schemes were asked

3Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed

4It was learnt that the District Administration has resistant in giving power to Panchayati Institutions



5Synchronization between Panchayat and district administration is lacking. District sought clarification on Government order to delay the process of transferring power to Zila Parishad

6

Zila Parishad does not have technical capabilities due to which it faces following bottleneck in operations Preparation of estimates – for example District Engineer of ZP has to do this job but this post is vacant for last eight years There is no staff for accounting

7 Zila Parishad has limited or no participation in workflow

8CEO, Zila Parishad should be independent post and Zila Parishad should be equipped with technical skills for improving the functioning of Zila Parishad

9Chairman was non aware of the meetings of various committees formed under Zila Parishad and their role and responsibility

10There is ego clash between district administration and Zila Parishad, which is largely hampering the roll out of various development schemes

11.2.3.4 Minutes of the Meeting with Additional Director Social Security, Dist. Gaya, Bihar

Objective: To apprise the Additional Director Social Security, about the ePRI Project and to know the status of Indira Gandhi Old Age Pension Scheme in the state.




04:30 PM 05:30 PM 1 Hrs

Attendees

• Smt Indu Bala Sinha ,Additional Director Social Security, Dist. Gaya, Bihar • Mr. Sameer Sharma, Pr. Consultant, KPMG • Mr. Amit Shukla, Pr. Consultant, KPMG

Discussed Items

1KPMG team has briefed the Additional Director Social Security Officer about the ePRI Project



2Questions related to Planning, monitoring, Budgeting, ICT assessment and involvement of PRIs’ related to Indira Gandhi Old Age Pension Scheme were asked.

3Issues related to empowerment of PRIs’ and the potential benefits to the department were discussed

11.2.3.5 Minutes of the Meeting of Block Workshop, Dist. Gaya, Bihar

Objective: To study the devolution of power at Panchayat Samiti level To study the status of the Centrally Sponsored Schemes at the Panchayat and Block level

Date: 18-07-09 Location: Block Development Office, Gaya



11:00 AM 03:00 PM 4 Hrs

Attendees

• Vikas Kumar Jaiswal, Block Development Officer, Bodhgaya, Dist. Gaya, Bihar • Smt Anita Devi, Pramukh, Gram Samiti, Bodhgaya Dist. Gaya, Bihar • Block Panchayati Raj Officer, Bodhgaya Dist. Gaya, Bihar • Smt Shruthi, Program Officer, Bodhgaya Dist. Gaya, Bihar • Smt Parvathi Purte, CDPO , Bodhgaya Dist. Gaya, Bihar • Medical Officer in charge, Bodhgaya Dist. Gaya, Bihar • Aslam, Itra Panchayat Member, Bodhgaya Dist. Gaya, Bihar • Dr Zakhir , Morata Panchayat Member, Bodhgaya Dist. Gaya, Bihar • Smt Meena Devi , Palarya Panchyat Member, Bodhgaya Dist. Gaya, Bihar • Block Education Officer, Bodhgaya Dist. Gaya, Bihar • Block Agricultural Officer, Bodhgaya Dist. Gaya, Bihar • Mr Chandra, Jr. Engineer, PHED department • Abhishek, UNICEF • Amit Shukla, Pr. Consultant, KPMG • Robin Mathew, Sr. Consultant, KPMG • Harshwardhan Jaju, Jr. Consultant KPMG

Discussed Items



1 KPMG team briefed the participants about the ePRI project and objectives of the study

2The devolution of power for the various schemes was assessed and discussed along the broad headings of Planning, Accounting , Implementation and Monitoring

3

The BDO gave us insights on the lack of any real power given to the Pramukh. An example cited was that the Pramukh was given the power to sign off on checks but with the changing government at the centre this right was withdrawn. He also referred to some mismanagement of funds during that period.

4The Pramukh informed us that Samiti cannot take NREGS work in a Panchayat. Samiti can take only work which are connecting two Panchayats under NREGS. This is a major bottleneck in taking work under NREGS by Panchayat Samiti.

5The BDO and the Pramukh informed us about the existence of a joint account for the funds of the Samiti but later it was withdrawn. He stated that delay in clearing the payment and directions from state Government was the reasons of roll back of this provision.

6Pramukh apprised us about the limited or no involvement of Panchayat Samiti in planning process of any of the schemes. The plans are made at state and district level and targets are given to Block and Gram Panchayat for implementation of the schemes.

7All schemes under ePRI project were highlighted and the presence and effectiveness of each scheme was found out both at the Block and the Panchayat level

8

It was general consensus that Panchayat Samiti is in supporting role in planning and implementation of the scheme. The accounting part is not with Panchayat Samiti. Though, monitoring of various schemes can be done by Panchayat, but in absence of necessary operational and financial provisions for conducting the field visit and their limited impact on the administrative decision making, it is not practically feasible to do the spot verification. Pramukh informed us that all the schemes are not monitored in Panchayat Samiti on regular basis.

11.2.3.6 Minutes of the Meeting with Pramukh, Bodhgaya Dist. Gaya, Bihar

Objective: To apprise the Pramukh about the ePRI Project and to study the devolution of power to the Panchayat Samiti level

Date: 18-07-09 Location: Office of the Pramukh , Bodhgaya





03:00 PM 04:00 PM 1 Hrs

Attendees

• Smt. Anita Devi, Pramukh, Bodhgaya Dist. Gaya, Bihar • Aslam, Itra Panchayat Member, Bodhgaya Dist. Gaya, Bihar • Dr Zakhir , Morata Panchayat Member, Bodhgaya Dist. Gaya, Bihar • Smt Meena Devi , Palarya Panchyat Member, Bodhgaya Dist. Gaya, Bihar • Amit Shukla, Pr. Consultant, KPMG • Robin Mathew , Sr. Consultant , KPMG • Harshwardhan Jaju, Jr. Consultant , KPMG

Discussed Items

1 KPMG team briefed the Pramukh about the ePRI Project

2Pramukh informed that the standing committees have been formed but meetings are not happening. Standing committees other than general standing committee have not met even once till date. All the decisions are taken in general standing committee meetings.

3

The ceremonial position of the Samiti was highlighted as no actual power is in its hands. While at the Zila level the need to route each and every decision through the Samiti becomes cumbersome and eventually is stopped. Similarly at the District level the ensuring of each and every proceeding going though the Samiti leads to unnecessary delays and hence is bypassed. If formalities like could be structured then the Samiti could have some more powers in their hands

4Panchayat does not receive funds for the various schemes. The fund goes to BDO’s/ respective PO’s account. Responsibility of signing the cheques was revoked by the present state Government due to some political and administrative reasons.

5General Standing Committee of Panchayat Samiti has met four to five times in a year but the records of the proceedings are not held by the Samiti. These can be procured from the office of the BDO on a request.

6A member stated that there is discrepancy in the BPL list. When the matter was probed, he said that signatures on the list were taken without the intricacies of the document made clear to the signing parties.



7

The main issues highlighted by this meeting was that the Gram Samiti is not the concerned body regarding the planning of the schemes and adjustment of these needs based on the specific requirements of the Samiti. As the Samiti is still financially dependant on the Block and the Zila their role in accounting of the various schemes is negligible. Even though the implementation of some schemes is done at the Samiti level the effective implementation of the schemes requires the avenues of planning and accounting to be handled by the Samiti itself.

8The devolution of power for the various schemes was assessed and discussed along the broad headings of Planning, Accounting , Implementation and Monitoring and these schemes were mapped

11.2.3.7 Minutes of the Meeting with Mukhiya and Panchayat Sewak, Mora Mardana Panchayat

Objective: To apprise the Mukhiya, about the ePRI Project and to know the status of involvement in the district.

Date: 17-07-09 Location: Hotel Sujatha



11:00 AM 02:00 PM 3 Hrs

Attendees

• Sitaram Yadav, Mukhiya Mora Mardana Panchayat • Panchayat Sewak Mora Mardana • Mr. Amit Shukla, Pr. Consultant, KPMG • Mr. Harshawardhan, Jr. Consultant, KPMG

Discussed Items



• Mukhiya informed us that there are delays in transfer of fund from Government to Panchayat – it takes 20 days for transferring fund from Block Panchayat to Panchayat Samiti. He suggested to establish the direct fund transfer facilities from Government to Panchayat

• He informed us that he is sending fund utilization details & utilization certificate in timely manner. He also told us that due to poor performance of some Panchayat whole district suffers

• The scheme with more than one lac expenditure goes to BDO for approval. He feels that this limit should be increased. He can take scheme of more than a lac by taking approval from BDO

• There is only one PTA and one Jr. Engineer in a block for assisting 17 Panchayats • Panchayat receives funds for scheme

• NREGS (Not received money for last 6 months) • BRGF • 12th Finance Commission

• Scholarship for SC/ST and backward students • There is no office/ Panchayat Bhavan for sitting & conducting the regular meetings and

gram sabha in Panchayat • He also told us that Panchayat gets fund on the basis of their political importance.

There is disparity in allocation of fund. For e.g. – A village Panchayat has cleared the complete waiting list of IAY and Panchayat bhavan has been built. The fund allocation to that panchyat is in crore.

• Panchayat can take service of contractual employees like accountant and engineers on his own for discharging the duties. Availability of these staff at gram Panchayat level can give autonomy to Panchayat in it’s functioning. Accountant is essential for assisting in planning and maintaining accounts of various schemes running by Panchayat.

• Mukhiya also helped us in doing activity mapping for various schemes

11.2.3.8 Minutes of the Meeting of Gram Sabha, Mora Mardana, Dist. Gaya, Bihar

Objective: To conduct a Gram Sabha in order to realize what services are being provided by the Panchayat and on the basis of the needs and requirements of the public, carve out new services that should also be delivered by the Panchayat.

Date: 19-07-09 Location: Mora Mardana, Dist. Gaya, Bihar





11:30 AM 03:30 PM 4 Hrs

Attendees

• Mr. Tarun Kumar Sinha, Senior System Analyst and NIC, Dist. Gaya, Bihar • Sitaram Yadav, Mukhiya Mora Mardana Panchayat, Bodhgaya Panchayat Samiti, Dist Gaya,

Bihar • Panchayat Secretary, Mora Mardana, Dist Gaya, Bihar • Members of Gram Sabha • Amit Shukla, Pr. Consultant, KPMG • Robin Mathew, Sr. Consultant, KPMG • Harswardhan Jaju, Jr. Consultant, KPMG

Discussed Items

1. KPMG team briefed the Gram Sabha about the ePRI Project

2. The total membership of the Gram Sabha is 613. Mukhiya informed us that the Sabha is attended by 70 to 75 members. The attendance for the conducted Sabha was 96.

3. A discussion was carried out in order to realize what services are being provided by the Panchayat (existing services) and on the basis of the needs and requirements of the public, new services were carved out that should also be delivered by the Panchayat.

4.

Through the dialogue, a total of 20 services were listed of which, 13 existing service and 7 new services were identified. These services are as follows:

Existing Services:

1. Information on schemes, health and immunization camps and wait list of IAY 2. Information on Panchayat meetings and availability of previous proceedings 3. Availability of forms for all schemes 4. Application for inclusion in BPL list 5. Birth Certificate 6. Death Certificate



7. Registration and issuance of job card under NREGS 8. Demand for work under NREGS 9. IGNOAPS 10. Student scholarship for SC/ST and OBC 11. Social justice pension 12. Information and distribution of ration coupons 13. Grievance and Right to Information Service

5.

New Services:

14. Collection of land dues 15. Issuance of Land Possession Certificate (LPC) 16. Issuance of copy of khasra khatauni 17. Kisan Credit Card 18. Application for animal husbandry and fisheries 19. Issuance of caste certificate, residence certificate and income certificate 20. Application for EPIC

6. It was informed to the team there is no ANM for the village and the nearest sub centre is 5 km away. An application for placing a sub centre in gram sabha already has been submitted by Mukhiya.

7. A discussion was carried out to highlight the schemes which are promoted in the villages and the presence and effectiveness of these schemes was found out

9. Under NFSM, the seeds and other amenities are distributed directly from the block for which, the list of beneficiaries is sent but, only 1 or 2 people from every village receive the amenities

9. Under NHM, Leverage was given last year and the list of beneficiaries had been sent to the Program Officer 2 months back but no fund was received

10.

Attendees raised their concerns about allocation of houses under IAY. Under Indira Awas Yojana, 40 houses were allotted which were distributed as follows:

• 60% to SC/ST

• 25% to Backward Class

• 15% to Minorities It was found that wait list has been already printed in Gram Sabha and houses are given to beneficiaries as per the list.



11.2.3.9 Minutes of the Meeting with District Workshop, Dist. Gaya, Bihar

Objective: To apprise the representatives, about the findings and the analysis of the study

conducted in Dist. Gaya, Bihar for the ePRI Project




02:00 PM 03:30 PM 1 Hr 30 Min

Attendees

• Mr. Sanjay Kumar, District Magistrate, Dist. Gaya, Bihar • Mr. Shakir Zamal ,DDC/CEO Zila Parishad, Dist. Gaya, Bihar • Mr. Tarun, Senior System Analyst, NIC, Dist. Gaya, Bihar • Mr. Baban Kumar, District Planning Officer, Dist. Gaya, Bihar • Sri Ajay Kumar Sinha, Executive Engineer, Public Health and Engineering, Dist. Gaya,

Bihar • Mr. Navin Agrawal, Executive Director, KPMG • Mr. Amit Shukla, Pr. Consultant, KPMG • Mr. Harshwardhan Jaju, Jr. Consultant, KPMG


Presentation on Information and Service Need Assessment report of district Gaya

Discussed Items

1. KPMG team briefed the district level officials about the concepts and objectives of the

ePRI Project

2.

KPMG team briefed the district level officials about the findings and the analysis of the

study conducted in Dist. Gaya, Bihar for the ePRI Project and urged the officials to

participate in the discussion to make the project successful

3.

District Magistrate informed us that Gram Panchayat has significant role in NRHM scheme

as the Mukhiya, Gram Panchayat decides and approves the utilization of untied fund

under NRHM.



4.

Executive Engineer, Public Health and Engineering, Dist. Gaya, Bihar informed the KPMG

team that there is no role played by the Panchayat Samiti in the Total Sanitation

Campaign (TSC)

5. The team’s analysis was approved by the attendees

Follow- up Action Points from previous meetings (if any)



1 Submission of ISNA report to DIO, NIC after incorporation of changes suggested in

workshop.

Based on the discussion the following line of action has been decided:-


1 The Recommendations given by the attendees has been incorporated in the study.



11.3. Glossary

Abbreviation Description

PRI Panchayati Raj Institutions

ICT Information and communication technology

CSS Centrally Sponsored Scheme

BRGF Backward Regions Grant Fund

IT Information technology

NREGS National Rural Employment Guarantee

Scheme

NeGP National e Governance Plan

CSC Citizen Service Center

G2C Government to Citizen

MoPR Ministry of Panchayati Raj

MMP Mission Mode Project

INS Information and service needs

DPR Detailed Project report

PEU Project Execution Unit

CLM Central Line Ministries

SIO State Informatics Officer

DIO District Informatics Officer

DDO District Development Officer

DRDA District Rural Development Agency

VO Village Organizations

PRA Participatory Rural Assessment

DDC District Development Commissioner

DAO District Agriculture Officer

NRHM National Rural Health Mission

SGSY Swarnjayanti Gram Swarozgar Yojana

IAY Indira Awas Yojana

PMGSY Pradhan Mantri Gram Sadak Yojana



NFSM National Food Security Mission

RKVY Rashtriya Krishi Vikas Yojana

NHM National Horticulture Mission

DEO District Education Officer

SSA Sarva Shiksha Abhiyan

MDM Mid Day Meal

DWO District Welfare Officer

IGNOAPS Indira Gandhi National Old Age Pension

Scheme

ICDS Integrated Child Development Services

ARWSP Accelerated Rural Water Supply

Programme

TSC Total Sanitation campaign

NLRMP National land resource management

programme/ National Land Records

Modernization Programme

IWDP Integrated Wasteland Development

Programme

DPC District Planning Committee

ZP Zila Parishad

GP Gram Panchayat

BDO Block Development Officer

EO Executive Officer

BPL Below Poverty Line

NIC National Informatics Officer

UC Utilization Certificate

PHC Public Health Center

SDO Sub-Divisional Officer

BSWAN Bihar State Wide Area Network

PPP Public Private Partnership

BIC Block Informatics Officer

MPR Monthly Progress Report



G2G Government to Government

CO Circle Officer

PWD Public Works Department

REO Rural Engineering Organization

PHED Public Health and Engineering department

ISNA Information and Services Needs

Assessment

BELTRON Bihar State Electronics Development

Corporation LTD

SCA Service Center Agency



11.4. References

11.4.1 State references

11.4.2 East Champaran District references

Document Reference no. Gram Sabha Proceedings BIH/EC/01

11.4.3 Gaya District references

Document Reference no. District Workshop Proceedings BIH/GY/01 Panchayat Samiti Proceedings BIH/GY/02 Gram Sabha Proceedings BIH/GY/03

Document Reference

Ministry of Panchayati Raj Portal www.Panchayat.nic.in Bihar Government Portal www.gov.bih.nic.in Books published by Bihar institute of Public Administration and Rural Development for Panchayati Raj

Books Published by BIPARD and UNICEF

Devolution Orders issued by Bihar, Letter-4/Sanchika/meeting-12/2001/330(Secretary)/Agri, Dated 25.09.01 Letter-8/LR-Pancayat-22/2001-632 R, Dated 26.09.01 etc.

Letter issued by Secretary Panchayat Raj to all the line departments

Letter-2P/V-6/52/2006 3048/PR, Dated 03.07.09

Letter issued by Secretary Panchayat Raj regarding selection of G2C services

Letter No. 3202/PR, Dated 09.07.09



Gram Sabha East Champaran Proceedings BIH/EC/01



District Workshop Proceedings BIH/GY/01



Block Workshop Proceedings BIH/GY/02



Grram Sabha Gaya Proceedings BIH/GY/03



Gram Sabha Gaya Proceedings BIH/GY/03



Grram Sabha Gaya Proceedings BIH/GY/03



11.5. Brief Profile of District(s) covered

11.5.1 East Champaran Profile

The name Champaran owes its origin to Champa-aranya or Champkatanys. Champa or Champaka means Magnolia and aranya mess forest. Hence, Champaranya means Forest of Magnolia (CHAMPA) trees. It is popularly believed that the nomenclature was made while the forest was inhabited by solitary ascetics. On 1st of December 1971 Champaran district was split up into two districts, viz. East Champaran and West Champaran .The headquarter of East Champaran district is at Motihari .Presently East Champaran consists of Six Subdivisions and Twenty Seven Blocks. Nepal makes its northern boundary; Sitamadhi and Sheohar eastern while Muzaffarpur South and with part of Gopalganj bound it in western side.

East Champaran District Profile

Established

Champaran 1866

Purbi Champaran 1971

Political

Area 3968.0 Sq. Km.

Nearest Railway Station Motihari

Nearest Airport Patna

Distance From

Patna 170 Km.

Muzafferpur 90 Km.

Hazipur 150 Km.

Bettiah 50 Km.

Natural

Rivers Gandak, Sikarhana, Bagmati And Lal

Climate

Rainfall(Normal) 1241.6 Millimeter

Temperature Max 46 & Min 5 Degree Celcius

Administrative




No. of Subdivision 6

No. of Blocks 27

No. of Police Station 41

No. of Panchayat 409

No. of Revenue Village 1345

Agriculture (As per 2003-2004 Data)

Area 391401 Hectare

Cultivable Land 303923 Hectare

Non Cultivable Land 87478 Hectare

Irrigated Land 176115 Hectare

Non Irrigated Land 127808 Hectare

Major Crops Rice Paddy (Basmati Rice), Sugar Cane,

Demography (According to 2001 Census)

Urban

Male 135366

Female 115720

Total 251086

Rural

Male 1941681

Female 1747006

Total 3688687

Literacy (According to 2001 Census)

Male 49.3%

Female 24.3%

Aggregate 37.5%

Education : No of Primary Schools

Rural 1734




Urban 31

Total 1765

Upper Primary

Rural 384

Urban 21

Total 405

High School

Rural 83

Urban 6

Total 98

Degree Colleges

Rural 11

Urban 6

Total 17 *Source East Champaran NIC website



11.5.2 Gaya Profile

Gaya formed a part of the district of Behar and Ramgarh till 1864. It was given the status of independent district in 1865. Subsequently, in May 1981, Magadh Division was created by the Bihar State Government with the districts of Gaya, Nawada, Aurangabad and Jehanabad. All these districts were at the level of sub-division when the Gaya district was created in 1865. About the origin of the name ‘Gaya' as referred to in Vayu Purana is that Gaya was the name of a demon (Asura) whose body was pious after he performed rigid penance and secured blessings from Vishnu. It was said that the Gayasura's body would continue to be known as Gaya Kshetra. Gaya finds mention in the great epics, Ramayana and Mahabharata. Rama along with Sita and Lakshmana visited Gaya for offering PINDAN to their father Dasharath. In Mahabharat, the place has been identified as Gayapuri

Gaya District Profile

Longitude 84.4 to 85.5 Degree towards East

Latitude 24.5 to 25.10 Degree towards North

Area 487607.83 Sq. Kms.

Boundary

North Jehanabad District

South Chatra District of Jharkhand

East Nawada District

West Aurangabad District

Subdivision 4

Block 24

Circle 23

Panchayat 332

Village 2,860

Police Station 27

Municipal Corporation 1

Nagar Panchayat 3

Zila Parishad 1

Main River Phalgu



Gaya District Profile

Average Rain Fall

Temperature (Max.) 49

Temperature (Min.) 2

Relative Humidity


Total Male 1,792,163

Total Female 1,681,265

No. of House Holds 510,968

Literacy rate 1,405,453

Male Literate 913,020

Female Literate 492,433

Parliamentary Constituency 1

Assembly Constituency 10

Total Electors 2,111,098 *Source Gaya NIC website

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