Vision For Panchayat in West Bengal, India

Draft for Discussion & Feedback
Roadmap for
the
Panchayats in
West Bengal
A Vision
Document
Roadmap for the Panchayats in West Bengal
Panchayat & Rural Development

Department,
Government of West Bengal
ROADMAP FOR THE PANCHAYATS IN WEST BENGAL

Foreword and Introduction........(to be added later)
A brief outline of this White Paper.............(executive summary – to be added later ).
TABLE OF CONTENTS
THE NEED FOR A ROADMAP....................................................................................................5
Evolution of Rural Local Governance in West Bengal...............................................................5
Major Activities of the PRIs of the State Since 1978..................................................................6
The Need for Change.................................................................................................................11
Bringing About Change.............................................................................................................15
Approaches for the Roadmap.....................................................................................................17
STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS.............20
Introduction................................................................................................................................20
Participation at the Village Level ............................................................................................20
Organizing the Poor for Their Participation in Panchayats.......................................................22
Strengthening Functioning of the Upa-Samitis and Standing Committees...............................24
Defining the Roles of Members Who Are Not Office Bearers..................................................27
Increasing Participation of the Political Parties in Opposition .................................................28
Functioning of the District Council...........................................................................................28
Improving Accountability..........................................................................................................28
Other Ethical Steps for Good Governance.................................................................................29
Interface between Panchayat and Civil Society ........................................................................29
IMPROVING CORE CIVIC SERVICES.....................................................................................30
Providing Civic Services to the Citizen.....................................................................................30
Drinking Water Supply and Sanitation......................................................................................30
Services Related to Public Health..............................................................................................32
Services Related to Universal Literacy and Elementary Education .........................................39
Road Connectivity.....................................................................................................................42
Irrigation, Drainage and Flood Protection.................................................................................45
Housing and Development of Habitat........................................................................................45
Sanctioning Building Plan and Enforcing Other Regulations for Community Living .............46
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Marketing and other facilities for Promotion of Economic Activities......................................47

Issuing Trade Registration Certificates and Licenses................................................................47
Special Requirements of the Urbanised Gram Panchayats........................................................48
Management of Disaster............................................................................................................48
DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC
DEVELOPMENT AND SOCIAL JUSTICE................................................................................49
Introduction................................................................................................................................49
Land Reforms ............................................................................................................................49
Better management of Natural Resources and Improved Land Use..........................................50
Promotion of Livelihood Opportunities in Non-Farm Sectors..................................................55
Alleviation of Poverty & Social Equity.....................................................................................56
Measures for Social Security.....................................................................................................61
Planning from Below for Economic Development and Social Justice......................................63
Developing Panchayat-Private Partnership................................................................................65
AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL
MANAGEMENT...........................................................................................................................65
Introduction................................................................................................................................65
Current Status of Mobilisation of OSR......................................................................................65
Improving Collection of OSR....................................................................................................67
Improvement of Budgetary Control and Financial Management..............................................68
Improvement of Accounting Practices and Computerisation of Accounts................................68
Internal Audit of Panchayat Accounts.......................................................................................69
Social Audit...............................................................................................................................70
Scrutiny of Panchayat Accounts by the Legislature..................................................................70
Capacity Building for Better Management of Fund..................................................................72
FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES..........72
Introduction................................................................................................................................72
Employees of the Panchayats.....................................................................................................72
Capacity Building of Employees & Other Functionaries of Panchayats...................................74
Strengthening SIPRD, the ETCs ............................................................................................76
Use of Information and Communication Technology for Efficient Functioning......................76
Strengthening the Directorate Office.........................................................................................76
HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE
PANCHAYATS.............................................................................................................................77
Introduction................................................................................................................................77
Acts for which Amendments are proposed................................................................................78
Amendment of Panchayat Act / Rules.......................................................................................93
ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS.............................................96
Introduction................................................................................................................................96
Sharing the vision in terms of human outcomes and setting goals locally .............................96
Strengthening the Panchayat institutions .................................................................................98
Delivery of services for social justice & economic growth.....................................................100
Acquiring capacities by the Panchayat institutions ...............................................................101
Monitoring and Evaluation......................................................................................................102
The citizen and the Panchayat..................................................................................................102
1.THE APPENDICES.................................................................................................................104
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Benchmark for Implementation Strategy of Roadmap ...........................................................104

9.1Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the
Constitution..............................................................................................................................139
9.2Self Evaluation Format for GPs..........................................................................................159
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THE NEED FOR A ROADMAP
Evolution of Rural Local Governance in West Bengal
Conceptualization of the present role of Panchayats in the rural polity has charted a historical
course from time immemorial. Panchayats in the village in ancient India was a loosely-
formed body of the village elders, who used to resolve disputes among the villagers,
looked after the common interests and tried to contend, often ineffectually, with external
onslaughts. Since the life, especially the rural life was simple in those days; the
Panchayat also had simple roles. In pre-independence era, the colonial rulers constituted
Panchayats with acquiescent people assigning certain functions of palliative nature.
Those Panchayats often acted as buffer walls against various grievances of the village
people. Post-independence first generation of Panchayats, which came up in late fifties
and early sixties of the last century, were constituted in the wake of the report of the
Balwant Rai Mehta committee. Those were envisaged to be institutions that would reflect
aims and aspirations of the people they represent and would help in steering the
development programmes for their benefit. These Panchayats ultimately failed to deliver
because of certain basic flaws in their composition and ideological approach and lack of
political will for devolution. The major flaws in these institutions were (i) the Panchayats
constituted particularly at the higher tiers consisted of a large number of members
indirectly elected and therefore were not truly representative in character, (ii) the
functional mandates for these institutions were neither clear nor coherent, (iii) they were
on various issues, controlled and regulated by the appointed executives of the state
government and (iv) the institutions were almost entirely dependent on contributions and
grants from the government, which was too little and they were endowed with very
limited opportunity for building up their own financial resources. Besides, the mandate
for holding regular elections had no compulsive force since it was not backed by any
legal sanction. Socio-politico environment of the period also did not lend support to these
institutions and did not care for regular elections for their reconstitution.
5
The second generation of Panchayats constituted in 1978 under the aegis of a new Act, viz., The
West Bengal Panchayat Act, 1973 (West Bengal Act XLI of 1973), brought some fresh
air in the Panchayat system. The members in all three tiers are elected through universal
adult franchise. Elections at regular intervals have been made mandatory without any
discretionary power of any authority to postpone such elections indefinitely [sections 7,
96 & 141]. Powers to collect tax and non-tax revenue are clearly defined. Functional
domain of the Panchayats is more clearly delineated as compared to earlier Panchayats.
The new legislation empowers the Panchayats to spread its wings in various fields of
activities encompassing rural life. On this issue, provisions relating to the functional
ambits of Gram Panchayat may be examined. Its roles in the education and mass
education extension [section 20(1)(a) and 21(o)], health support, curative, preventive and
environmental [sections 19(a), (b), (g), 20(1)(b), 21(h)], supply of drinking water [19(c)
and 21(c)], agriculture [20(e), (j), (l), (m), 21(d)], irrigation [20(d)], animal resources
development [20(h)], village plantation [20(k), 21(b)], cottage industry [21(i)], social
welfare [20(f) and (g)] has been delineated. In fact, the provisions under section 19 to
section 28 lay down various powers and functions of the Gram Panchayat with the
objective of uplift of rural life. Although on some issues, the provisions are inadequate or
ambivalent or not sustainable without supportive order or opportunity, powers and
functions assigned to the Panchayats cover almost the entire spectrum of rural life and
livelihood and these institutions have been very clearly recognized as the most
dependable vehicle for rural development.
In course of a little more than another decade, the role of Panchayat has been further expanded
and its functional area has been increasingly extended to include additional activities. All
poverty alleviation programmes sponsored by the Government of India or otherwise,
have been assigned to the Panchayat institutions (major portion to the Gram Panchayat).
In any programme or scheme for extending any benefit to the weaker section including
Schedule Castes and Schedule Tribes, the Panchayats even when it is not implementing
the scheme, has been assigned the definite role of selection of sites and of beneficiaries
relating to such schemes. In public distribution system, Panchayat institutions have been
assigned the powers to intervene by way of supervision and monitoring. The Panchayats
have been given a space for taking initiative in the field of raising nutrition level of the
poorer people. However, through a recent amendment of the W.B. Panchayat Act, the
Panchayats have been given more clearer functional responsibilities for taking up various
works as provided under Eleventh Schedule of the Constitution. It is however a fact that
despite larger powers and responsibilities of the Panchayats, the major role of the
Panchayat during the eighties and early nineties, remained largely confined to acting as
the delivery mechanism of the programmes of the Central and the State Governments and
their own initiatives were not of very high order.
Major Activities of the PRIs of the State Since 1978
6
The panchayat election in 1978 was a trendsetter, as it broke new grounds in two areas. First, for
the first time in the country the political parties were allowed to contest elections openly
with their party symbols. Secondly, direct elections were held to all the three tiers.
Previously, the practice followed in all the states was to hold direct election to only the
lowest tier and indirect election to the other tiers. In another way also the panchayats set
up in 1978 were different from those of the rest of the country. Those who came to the
leadership of these bodies through elections did not belong to the traditional upper
stratum of the rural society, namely the landed gentry, who lost their economic and social
power substantially due to massive vesting of ceiling surplus lands in the late 1960s and
early 1970s. The new leadership came largely from the class of middle peasantry and
professional groups like schoolteachers. It is the only state in the country where
Panchayat elections have been held with clock-like regularity since 1978. No
constitutional support was needed for this. The state was self-motivated to ensure
continuity of the institution. Immediately after the new panchayat bodies took position,
the state experienced one of the worst floods in 1978 that rendered thousands of people
homeless and caused enormous loss of food crops, livestock and other moveable
property. The entire work of flood relief and post-flood reconstruction work was
entrusted to the newly elected panchayat bodies. They shouldered this responsibility in
exemplary manner demonstrating unmistakably the strength of these representative
institutions in providing services that require intimate knowledge of the grassroots and
responsiveness to the local needs. Thereafter the state government entrusted
implementation of the ‘food-for-work’ scheme – a wage employment generation scheme
sponsored by the central government. At that time it was certainly a bold step. For, there
was hardly any precedence either within the state or, for that matter in any other part of
the country, to entrust the Panchayats with the responsibility of implementing very
important development programmes practically without the control and supervision of the
district bureaucracy. The programme relating to rural water supply was also handed over
to them.
Panchayat and Land Reforms – West Bengal had a very high level of rural poverty as
compared to many other states and the all India average. In 1973-76, when the all India
rural poverty was at 56 per cent, as much as 73 per cent of West Bengal’s rural people
lived below the poverty line. The wide difference however has narrowed down, more so
after 1987-88. During the period from 1983-84 and 1987-88, rural poverty in West
Bengal registered a fall of 15 percentage points from 63 to 48 per cent. The declining
trend continued and as a result, rural poverty in West Bengal in 1999-2000 came down to
32 per cent, which is much closer to the national average of 27 per cent. In fact, in terms
of the rate of reduction in rural poverty, West Bengal came next only to the state of
Kerala. While agricultural growth seems to be the most proximate reason for the sharp
decline in rural poverty various scholars have identified land reform and
institutionalization of panchayats as the most crucial factors that could account for both
accelerated agricultural growth and poverty reduction. (Dasgupta 1995, Saha and
Swaminathan 1994, Rawal and Swaminathan 1998, Lieten 1992, Mukharji and
Mukhopadhyay 1996).
The measures taken up in the land reform programme of West Bengal consist of the following
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• Vesting of ceiling surplus lands in the state, the ceiling of agricultural lands one can
hold being fixed by the West Bengal Estate Acquisition Act and the Land Reform
Act (as amended from time to time) of the state. (There are separate ceilings for
irrigated and non-irrigated areas).
• Taking possession of vested lands by the state and distribution of the same to the
landless and the land-poor households.
• Registration of bargadars (sharecroppers) to ensure security of their tenure and fair
share of the produce, as per the provisions of the Land Reform Act. (Previously, the
contracts between the landowners and the sharecroppers were invariably oral, as a
result of which they used to receive disproportionately less share of the produce of
the land and were subjected to arbitrary eviction and other extra legal extortions.)
• Distribution of homestead lands to the poor who had no title over the lands of their
shelters.
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Beyond its direct effects, which are measurable, the land reform did have many other beneficial
effects upon production and productivity, such as, bringing ‘peace to the countryside’
(though that happened after the initial disturbances, which led to many law and order
situations, for establishing the new order) and creating an investment-friendly ambience,
transformation of a rentier class into productive agents and the rise of the middle
peasantry as enterprising cultivators. Land reform could provide substantial relief from
the clutches of acute income-poverty to a large section of rural people. Removal of an
important element of dependence and vulnerability of the land owner by the land-poor or
the sharecroppers must have made a profound impact upon various aspects of the rural
society, including dignity of the sharecroppers and the assignees of the vested land, and
the rural economy. Panchayat’s most important role in land reform has been in respect of
selection of the beneficiaries for distribution of vested lands, and helping the
beneficiaries to exercise their rights against the powerful land owning class. The
Panchayat Samiti – the intermediate level panchayat – has been given the authority to
select the beneficiaries. Identification of so many beneficiaries spread over innumerable
villages was not an easy task for the bureaucracy.
Panchayat & Alleviation of Rural Poverty – The Panchayats of the State has been entrusted
with the responsibilities for implementation of all programmes directly aimed at
alleviation of rural poverty. After 1978 all the centrally sponsored poverty alleviation
programmes beginning with the Food for Work programmes and IRDP have been
gradually entrusted with the Panchayats. There are several studies and concurrent
evaluations by the GOI showing better targeting of both the employment generation and
self-employment programmes, which have contributed in faster decline of poverty in the
State as mentioned above. In fact alleviating poverty has been a core activity of the
Panchayats of the State right from the beginning. Apart from economic gains of the
poorer sections the major contribution of the Panchayats has been providing dignity to all
of them and enhancing their freedom to participate in various development programmes.
The Panchayats are also associated with various social security programmes and are
instrumental in reaching those benefits to the poorest sections. Availability of all those
services from the Gram Panchayats have helped the people to access the same and
ventilate their grievances in case of failure, which keeps a check on the quality of those
services.
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Panchayats and Agricultural Growth – In spite of being endowed with rich natural resources
and favourable climatic conditions including large areas of alluvial soil, abundant surface
and ground water resources and good amount of rainfall, West Bengal was characterized
by agricultural stagnation from the time of independence to the 1970s. For many decades,
the state lagged behind the national average in terms of the growth of agricultural
production. James Boyce (1987) estimated that between 1949 and 1980, the annual
growth rate of agricultural output in West Bengal was only 1.74 percent. But the scenario
started changing since the early 1980s. Between 1981 and 1991, the food grain
production of West Bengal grew at an annual growth rate of 6.5 percent, which was
highest among the 17 major states of the country. Taking 1981- 82 as the base year, it is
observed that with the exception of 1982 – 83, when the state suffered from severe
drought, agricultural production increased more or less constantly up to 2000 – 2001 and
since 1996 – 97 the state has been producing double the amount produced in 1981 – 82.
The increase in agricultural output of West Bengal has been mainly driven by an increase
in productivity rather than increase in agricultural area. 81 percent of the growth in
agricultural output can be attributed to the growth in productivity. (Saha and
Swaminathan, 1994). This trend has continued even in the 1990s. While agricultural area
of the state increased by only 10 percent during the last two decades (from 1981-82 to
2000-2001), there has been 90 percent increase in productivity during the same period.
Land Reforms for which the Panchayats played a crucial supportive role and helping the
marginal producers with inputs including minor irrigation by the Panchayats played an
important role in achieving the growth in production.
Along with the agricultural growth since early 1980s, agricultural wages have also increased.
The most proximate reason for this is the higher demand for labour because of higher
productivity and cropping intensity of agricultural lands. While in 1981 – 82, the average
daily wage rate was not even Rs. 10, it increased to more than Rs. 55 during the last two
decades. It is also observed that the wages have increased at higher rate during 1990s
than that in the 1980s.
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Many scholars have noted close relationship between agricultural growth and the institutional
reform of Panchayats.1 One of the reasons for this is that apart from the services provided
directly by the Panchayats for facilitating the growth process, this linkage has to be
discerned from the intangible, but valuable, contributions made by them in creating a
production-friendly environment in the countryside. One of the areas where the
Panchayats made important contributions relates to the creation of local public assets.
Creation of infrastructure for improving communication or for irrigation facilities has
facilitated the growth process. The involvement of Panchayats in creating and
maintaining local public assets has made a qualitative difference. First, fixation of
priorities and ‘location decisions [of Panchayats] for various facilities correspond
relatively more closely to the felt needs of rural population’. Second, being relatively
more transparent than a bureaucratic institution, chances of funding on ‘bogus schemes’
are much less in Panchayats. Thirdly, the individual schemes undertaken by the
Panchayats are small, but the schemes executed every year by them are large in number.
No centralized bureaucracy could handle the planning and implementation activities of
such large number of small schemes spread over numerous villages. A recent survey
shows that among the recipients of the ‘mini kits’, the share of small and marginal
cultivators is noticeably high, amounting to approximately 87 per cent of the total kits
distributed (Bardhan and Mookherjee 2004).
The Need for Change
Although iconic shift in the role and relevance of the Panchayat in the development matrix has
been gradually taking place for some time, the amendment of the State Panchayat Act in
1994 following the 73rd Constitutional amendment has brought in the major change in
policy and programme relating to the Panchayat.
1
The wages have increased at higher rate during 1990s than that in the 1980s. (BAES, Economic Review). Between
1979 – 80 and 1992 – 93, West Bengal showed the highest rate of growth of wages among all states (Rawal and
Swaminathan, 1998). According to another calculation as quoted by Rawal and Swaminathan (1998), the daily wage
rate for male agricultural labourers in terms of rice increased from 2.56 kilograms in 1983 to 5.07 kilograms in
1990. Though the information on wage rate of female agricultural labourers of West Bengal is not available in any
government report since 1980s, some studies reveal that male-female wage differential is either non-existent or
insignificant in rural Bengal (Rawal and Swaminathan, 1998, Sengupta and Gazdar 1997).
11
In order to make the Panchayat institution an effective tool for socio-economic development of
the rural population, it is not enough to leave the entire initiative to the people’s
representatives elected through regular elections. The elected functionaries are
representatives but not substitute of the people. Therefore, there is need for further
deepening and strengthening the process of decentralisation for wider and more effective
participation of the people. The Panchayat bodies particularly those at the lowest levels
must have continuous interaction with the people and must be responsive to their needs
and aspirations. The higher tiers of Panchayats should interact continuously with the
lower tiers. Such interaction with the people is deemed to be achieved not only through
frequent meetings of the Gram Sansads, and institutions at the lower level, proper
functioning of the Gram Unnayan Samiti, and regular meetings of the Block Sansads and
Zilla Sansads, but also through dissemination of information to the people and collection
and collation of their reactions for improvement of the planning and implementation
process. Organinsing the poorer section and raising their voice for placing their felt needs
only can make the planned interventions meaningful to their lives in contrast with the top
down plans which by and large are not so well integrated and effective to their needs.
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The Panchayats have now been empowered under the State Act as also under the Constitutional
mandate to prepare development plan – perspective plan for five-year span and annual
plans on its basis – with regard to resources available and also implement schemes for
economic development and social justice as may be drawn up or entrusted upon them
[section 19(1)]. An initiative has recently been taken to amend section 19 of the State
Panchayat Act accentuating the role of the Gram Panchayat as a unit of self-government
for achieving the goal of human development including social and economic
development and securing social justice for all. It has further been laid down that in order
to achieve the aforesaid goal, the Gram Panchayat shall prepare a development plan for
five years, an annual plan based on Gram Sansad plan for each year and shall implement
schemes under such annual plans as also schemes entrusted upon, transferred to or
devolved upon it. Sub-section (2) of the said section has been amended to delineate the
major thrust areas of the Gram Panchayat which have been enumerated as promotive and
preventive health care including improvement of nutritional standard and community
health management, pre-school and primary education as also parallel and mass
education, development of women and children with empowerment of women and
formation and facilitation of self-help groups, social welfare including welfare of the
weaker sections, development of livestock, promotion of agriculture including irrigation
facilities, development of fisheries, promotion of cottage-village-mini industries with
welfare of artisans, improvement of the scope and quality of public distribution system,
construction of minor irrigation system including water management and watershed
development as also their maintenance and equitable distribution of benefits, construction
and maintenance of various sources of safe drinking water, construction, maintenance
and protection of public roads, promotion of social forestry and similar initiatives for
development of plantation and environmental sanitation including management of
polluted water and social waste. The amendment proposal has since been passed by the
State Legislature and is likely to come in force in no time. The provision clearly indicate
that the development effort should have a multi-faceted approach for improvement of
quality of life of the people including its weaker groups so as to enable them to identify
themselves as active partners in the process. By inference, such plans should have a
holistic approach embracing all aspects of rural life. They should also be prepared in such
a manner so that they have sustainable effects. In other words, each annual plan shall be
built upon the progress made through the preceding annual plan. In all cases, such plan
should have realistic approach based on the financial, human and other resources
available.
It has been mentioned earlier that the Panchayat should have continuous interaction with the
people since they are source of their power and authority and since their active
participation shall ensure the success of the planning process. Transparency in all stages
of functions is a sine qua non for achieving the desired goal of improving the quality of
life of the weaker section of the community as also community as a whole. Besides, it is
necessary to bear in mind that the human nature is intrinsically acquisitive and tend to
occupy the central position in the process of decision-making and implementation. This
phenomenon should be curbed by making all decision-making processes collective and
participatory.
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In order to make the functions of the Panchayats more responsive, decentralized, transparent and
accountable, certain legislative initiatives as shown below, has since been taken:-
(a) Sthayee Samitis (Standing Committees) at the Zilla Parishad and the Panchayat
Samiti level were constituted earlier, such organs remaining responsible to the
main body; they function as the executive arm for implementing programmes and
schemes in various fields of activities.
(b) In the year 2003, five Upa-Samitis have been constituted at the Gram Panchayat
level; their functions are similar to that of the Sthayee Samitis.
(c) In the year 2003, provisions have been made so that opposition members are
represented in each Sthayee Samiti.
(d) Also in 2003, Block Sansad and Zilla Sansad has been constituted as accountability
forums for Panchayat Samiti and Zilla Parishad
(e) Gram Unnayan Samitis constituted by the Gram Sansad, shall be the executive
wing of the Gram Sansad and act as an extension arm of the Gram Panchayat.
(f) It has been emphasized that all major initiatives of the Gram Panchayat shall be
validated by the Gram Sansad; on certain issues, initiatives shall begin at the Gram
Sansad level.
(g) District Council for Panchayats have been constituted with the leader of the major
opposition party in the Zilla Parishad as its Chairperson, with effect from 1994; the
Council is empowered to examine whether financial norms and propriety is
observed in the functional ambience of all Panchayat bodies within the district. It is
proposed that the composition of the Council may be made a little more
representative by bringing in larger number of members of different political
colours so that impartial and balanced approach in all matters may be ensured.
Besides, at present, the Council has an advisory role. Without prejudice to this role,
the advices and recommendations of the Council may be given more importance
and it may be enjoined upon the Zilla Parishad and the District Magistrate (when
necessary, the State Government) to issue specific directions on the basis of its
advices and recommendations. It may also be provided that the advices and
recommendations of the Council should be placed before the auditors at the time of
their inspections for their consultation.
It is felt that these measures are yielding good results in functioning of the Panchayats. There is,
however, scope for considering further initiative through legislative as also executive
route for making the Panchayats more functional and responsive.
In order to make the Panchayat a successful vehicle for socio-economic development, the
following strategic approaches are necessary:
• In all development initiatives, participation of the people should be ensured. They
should be sensitized and made to feel about their ownership in the process.
• Plan should be prepared on the basis of resources available – local resources, human
and material and external resources from the government, non-government or
financial institutions. Productive aspect of all such resources should be explored and
dovetailed suitably with different programmes and schemes.
• Plan should address the immediate felt-needs of the people and should aim at
improving their quality of life. Plan should be prepared and implemented in a
14
manner to bring some beneficial impact in the livelihood of the poorer section. This
will help them to identify themselves with the planning process. For this purpose,
bottom-up planning should be resorted to. In other words, planning process should
start from the Gram Sansad level.
• Apart from the schemes for economic development of the marginalized families,
planning process should cover the areas (i) education, (ii) nutrition, (iii) health and
sanitation and (iv) social security of such people. Apart from building up additional
facilities in these areas, it is necessary to ensure that the families living in the
peripheral area of the society should get equal opportunity from such facilities. In
order to make such programmes successful, promotional and motivational initiatives
should be taken up by making them a part of the planning process.
• In order to enable the Gram Panchayat to formulate and implement such plan,
capacity building of the Gram Panchayat is an imperative necessary. A sustained
programme should be drawn up for a major thrust to enable all functionaries at the
Gram Panchayat and sub-Gram Panchayat level to function and discharge their
responsibilities at the desired level.
The Government will provide opportunities and incentives for a fundamental shift of culture by
putting in place a renewed framework in which Panchayat bodies in West Bengal will
operate. That will not only include aspects of planning and implementation for faster and
more equitable economic development and social justice, there will be more focus on
better delivery of quality citizen services for ensuring better quality of life for all. This
will address the weaknesses and shortcomings in the existing framework, and allow and
encourage the Panchayat bodies to be more participatory, transparent, accountable and
responsive. It will open the door to more effective local political leadership, to re-
invigorated local democracy, and to improve quality and expansion of local services.
Only if Panchayats whole-heartedly embrace this agenda for change will they be able to meet the
needs of local people, businesses and the voluntary sector in their area, and fulfill their
potential to lead their communities. It is local government, not state government, which
has that vital local day to day relationship with people. Government programme is setting
out an agenda for central and local government to work together. Within the conceptual
framework designed, local government too needs to change and modernise, so that people
everywhere can have the quality of life they have the right to expect.
Bringing About Change
Since 2003 the Government in the P&RD Department has been trying to accelerate the pace of
rural decentralisation through various changes in the legal and administrative systems
supporting the Panchayat bodies. A wide range of consultation was also initiated
subsequently as a part of an initiative for “Strengthening Rural Decentralisation”. The
main areas for the changes are:
• Amending the W.B.Panchayat Act and Rules framed under it to enable the
Panchayat bodies to function in a more effective manner
15
• Defining the functional domain of the Panchayat bodies more specifically to enable
them to focus their activities in improving the quality of services delivered by them
and respond to citizens demand for diversifying the areas of service
• Improving capacities of the Panchayats including providing additional manpower
support to the Panchayat bodies
• Putting in place a structured system for preparing and implementing participatory
plans at the village level and their integration with the plans prepared by the
Panchayat bodies
• Taking up in depth studies of various management practices of the Panchayat bodies
for business process re-engineering.
• Taking various steps for improving the ethical and functional framework for good
governance and better delivery of citizen services.
This Roadmap is about the proposed roles and responsibilities of the Panchayats and how to
reach the goals including the steps the Government should take for affecting the changes.
It charts the future path of the decentralisation agenda for Panchayat bodies of West
Bengal. The Roadmap will set out a strategy to give a bigger say for local people by
• activating the new political structures and widening democratic functioning of
the PRIs,
• strengthening financial and administrative accountability,
• establishing a new ethical framework projecting dignity for every citizen
irrespective of their socio-economic status to encourage participation for all in
affairs of the community,
• improving local services to be judged by the citizen,
• promoting the well-being of every one and achieving greater equity and will
focus on outcomes concerning various components of human development.
16
Approaches for the Roadmap
17
The Roadmap for the PRIs of West Bengal has been prepared based on the evolution of the
system that has taken place so far and capacities acquired in delivering various services.
The process of evolution has been guided by both the top down and the bottom up
factors. The former relates to the steps taken from above by the State Government in
assigning responsibilities and resources for delivering various services, which has been
mostly structured in the lines of various schemes. The later relates to the demand from
the people below, which impelled the Panchayats to deliver certain services sometimes
without any mandate from above. The former is the supply driven and the later is the
demand driven progresses in the process of evolution of the Panchayats in the State.
Panchayats in West Bengal may be characterized by existence of a strong demand driven
process of evolution in owning responsibilities and in future also the process should be
facilitated through building up of capacities to enable the Panchayats to take on new
responsibilities of their own. This also reaffirms that Roadmap for the Panchayats of the
State will not be merely the Roadmap for devolution of responsibilities by the various
departments of the State Government through the conventional exercise of activity
mapping and assigning responsibilities from above but also the Roadmap for developing
various capacities within the PRIs so as to respond to the need-based demands of the
people and acquire more responsibilities of their own for realization of such demands,
depending on local needs and aspirations. This process should be guided by setting
milestones in various fields related to socio-economic development of the people so that
the PRIs may work on their own, irrespective of formal devolution to reach those goals.
In fact devolution through activity mapping provides certain space to the Panchayat
bodies, which were so far occupied by the Government, but the experience shows that
much space is available beyond that occupied by the Government and a pro-active
Panchayat may tread on such spaces uncharted so far provided they have the capacity to
do so. To provide due authority to the Gram Panchayats for taking activities related to
those functions the W.B. Panchayat Act has been proposed to be amended shortly
through which specific responsibilities shall be assigned to the those bodies by the State
legislature. This assignment shall not reduce the responsibility of the state government in
any way but shall also encourage the Panchayats to be more proactive in many areas,
sometimes independently and sometimes in collaboration with the State Government.
One can argue that those are not exclusive functions but concurrent jurisdiction of the
Panchayats in taking up those activities. The considered views of the State Government is
that in the present context it is more logical, pragmatic and productive to provide
concurrent jurisdictions, which will help the Panchayats to acquire adequate capacities in
voluntarily taking up those activities or utilizing the infrastructure and expertise of the
government machinery on suitable occasions; the State Government may in due course
provide exclusive responsibilities as and when the same will be necessary and
appropriate. It is envisaged that the Panchayats of the State will be engaged broadly in
three types of activities. The first one is the regulatory functions of the Gram Panchayats
and it has been decided that section 21 of the State Panchayat Act shall be suitably
amended to enunciate such regulatory functions of the Gram Panchayat. The proposed
section 21 encompassing such regulatory functions, shall enlist, inter alia, functions
relating to according permission for erection of new structure/building, assessment and
collection of taxes, rates and fees under the Act, registration of trades, registration of
vehicles not registered under the Motor Vehicles Act, 1988, registration of shallow or
18
deep tubewells with motor-driven pump-sets installed for commercial purpose,

registration of birth and death in the area, management of Gram Panchayat Fund, relief of
distressed persons, drainage of rain water or accumulated water, preventive measures on
epidemic, establishment and control of ferries, establishment and control of burning
ghats, control of eating places enforcing hygienic practices and maintaining street lights
where deemed necessary. This provision shall empower the Gram Panchayat to control
and regulate private activities to ensure planned growth, to generate and maintain certain
data for making future plans and to run its own administrative machinery. The envisaged
amendment shall also identify some of the complementary functions of the GPs for
improving the quality of life of the people. Another section 21A shall be provisioned in
the proposed Amendment Act referred to in this paragraph, indicating complementary
activities which should be undertaken by the Gram Panchayat for good governance and
for frequent interaction with the people to sensitise them about their rights as also
responsibilities and to make them conscious about their stake in the development process.
Such activities are, inter alia, generation of awareness among the people on their role in
the development process ensuring their participation in all stages of development
beginning from preparation of development plan, enhancement of livelihood
opportunities of the people, organizing voluntary labour for collective activities,
organizing campaign against social evils, creating legal awareness among disadvantaged
sections about their rights, maintenance of community assets, awareness building on civic
responsibilities, promotion of co-operative movement, prevention of food adulteration,
encouragement for consumption of bio-gas, providing bathing and washing ghats and
construction of waiting sheds for travelers. The provision shall emphasize the need for
building awareness among the people about their rights as also responsibilities and also
the need for better life of the people. The second types of activities are those which will
be assigned on the Panchayats to perform tasks on behalf of the State as an agent of the
Government. The Functions assigned to the different tiers of the Panchayat bodies at
different levels are detailed in the table at Appendix II. Implementation of many of the
poverty alleviation schemes come under this category. In implementation of these
programmes, the role of Panchayats is not actually limited to agency function only.
Because of nearness to the people, they can select the right nature of schemes that will
not only generate employment but create durable assets of the society for sustained
development and for improvement of quality of life of the people. Besides, the
Panchayats are best placed to select the proper group of beneficiaries for the related
schemes and programmes with special emphasis on the disadvantaged groups of the
community. Third types of activities, which are gradually gaining strength, are those
which are taken up by the Panchayats neither as a devolved function nor as an agency
function but those are taken up concurrently by the Panchayats for economic
development and social justice for the people residing within its area and the proposed
amendment of the W.B. Panchayat Act shall give legal authority to the Panchayats to do
most of those activities. The Panchayats are required to keep the broad objectives of
development of the state and existing interventions of the Government in mind to plan
and implement schemes to strengthen the effort of the Government and execution of such
activities depends on availability of fund and acquiring capabilities by the Panchayat
bodies. The State Government should facilitate both building up capacities as well as
augmenting resource of the Panchayats for strengthening local interventions by the
19
Panchayats. The sector specific Roadmap presented below takes into account all those
types of activities and try to spell out the goals and the processes through which the same
will be achieved and what will be the role of the State Government in that process.
STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS
Introduction
Panchayats as democratic institution are to function with the active leadership of the elected
functionaries. However, the elected functionaries are mere representatives of the people
and not their substitutes. Though this is true for all elected bodies but the same is more
significant, particularly at the lowest tier of the Panchayat, because they function with
local issues requiring more active participation of the people. This chapter describes how
the democratic functioning of the Panchayats will be strengthened and expanded for more
widely and effective participation of the people, particularly the weaker section of the
community and how to build capacities at all levels for achieving the same.
Participation at the Village Level
20
Several changes have already been made in the W.B. Panchayat Act and Rules framed under the
Act for expansion of democracy through more participation of the people in planning and
implementation of various developmental activities at the village level. Though there is
mandatory provision for calling meeting of the Gram Sansads for discussion and approval
of local plans, the participation is still low. Legal changes have been made to entrust
more responsibility including execution of schemes involving less fund and simple
technology by the villagers themselves through constitution of the Gram Unnayan Samiti
(GUS). The GUS is not a new tier of Panchayat but an integral part of the GP. GUS will
be the representative body of the villagers at the village level to continuously interact
with the people and maintain liaison with the GP. Proper functioning of the GUS will
ensure more active involvement of the people in designing and ensuring their own
development. However, to make it happen more than 45,000 GUS are to be formed and
enough capacities to be built up to make them functional. The goal will be to form all the
GUS, building capacities of their members and involving them in low cost or even no-
cost activities for their own development as well as implementing some of the Sansad
level plans to be assigned to them by the GPs within the next five years. The outcome
will be measured by participation of at least 20% of the citizen in the Gram Sansad
meetings and ability of the GUS to help in preparation and implementation of Gram
Panchayat plans showing Sansad-wise break up. Experience shows that the activities,
which can be planned and taken up at the Sansad level, though small in size yielding
limited benefit in isolation, have considerable impact when multiplied and are very
important in the local context. For this purpose, there is no need for devolution of
functions by the State Government as no such micro-level activities are planned or
implemented by the State Government. The main challenge is to improve the social
capital at the village level and organizing the GUS involving all political parties and
various sections of the community including the women and the poorer sections as
provided under the rules and improving their capacities to be able to plan and implement
micro-level interventions with whatever resources they may get hold of.
21
Organizing the Poor for Their Participation in Panchayats
22
Making legal provision and providing structural framework is not enough for the poorer section
of the community and the women to participate in the process of development. In order to
have their voice heard they are to be organized in groups and their capacities are to be
increased for being able to voice their demands and influence functioning of the
Panchayats in their favour. This will be done by organizing the poor, particularly the
women in Self Help Groups (SHGs). SHG movement, especially of women, in the State
has gained a lot of momentum and more than four lakh SHGs have been formed out of
which majority are women. Organizing the poor in groups will be strengthened further
through the initiatives of the Gram Unnayan Samiti, Nari, Sishu Unnayan O Samajkalyan
Upa-Samiti of the Gram Panchayat and Sishu O Nari Unnayan, Janakalyan O Tran
Sthayee Samiti of the Panchayat Samiti so that every poor rural family has at least one
member included in an SHG. Under the guidance of PRDD, special drive will be taken
up by the Block level officials with active support from the DRDC to improve their
understanding of the socio-economic situations in their own context and services
available for its improvement so as to enable them to avail of those services and
participate in social and economic development of the area including augmenting their
own income. All of them will be provided, with facilitation from the State Government
machinery and the Bankers Committees like SLBC and DLBC, access to credit from
banks/financial institutions within the Eleventh Five Year Plan period. Office bearers of
the Panchayats particularly at the Gram Panchayat shall render their support in the
negotiations with the Banks for extending credit facilities to these poor groups. Their
achieving minimum level of income will be crucial for being able to participate freely,
which is essential for expansion of democracy. Legal provision has been made for their
representation in the GUS. Also, the SHGs are being organized further in Clusters within
the GPs and the Clusters are being federated in bigger bodies known as Federations in
each Block. Those are being formed by the women SHGs in general and men are also
involved in certain areas. Orders have been issued for representation of the Clusters and
the Federations in the Upa-Samitis and Standing Committees of the GP and the PS
respectively, as invited members, so that the they can give their feedback for decision
making in their favour and whatever decision is taken can be communicated to their
members for wider knowledge and participation. The task is to form Clusters and
Federations in all the GPs and PSs respectively within the Eleventh Five Year Plan period
so that every Upa-Samiti and Standing Committees has representations of the poor group
of women to act as a pressure group. Though they will not have voting rights, they will
function as the watch dog of the poorer section and the women as well as to influence
those bodies to protect and promote their interests. The process will also strengthen the
civil society to build up healthy pressure on the Panchayats to remain pro-poor in their
functioning and to pay enough attention to the issues relevant for the women. The
Government proposes to take up a time bound programme for federating the SHGs within
the year 2012 as mentioned. In order that the Clusters and the Federations can function
and work for the development of their own members they need to function in close
association with the PRIs. Within the period mentioned every Cluster and every
Federation will have their office within the premises of the GP or the PS, as the case may
be, or will have their own offices in the immediate vicinity of the Panchayat offices. The
Gram Panchayats and the Panchayat Samitis shall extend active co-operation to this
process. Building capacities of the Panchayats to utilize the Clusters and Federations as
23
their agents for poverty alleviation and making social changes for upliftment of the
women will be an important task to be achieved within the said period. Respective roles
of the Panchayats as also the State Government along with a time frame for different
functions have been captured in the Matrix showing implementation strategy in item No.
2 of the key issues under the heading ‘Organising the poor for their participation in
Panchayats’.
Strengthening Functioning of the Upa-Samitis and Standing Committees
24
The process described in sections 2.2 and 2.3 will strengthen vertical decentralization for active
involvement of the people at the village level and those, particularly the women
belonging to the poor community, in the affairs of the Panchayats. There is also need for
horizontal sharing of power and responsibilities in functioning of the Panchayats. All the
three tiers of Panchayats now have standing committees (the committees at the GP level
are known as Upa-Samitis), whose roles have been broadly specified. Guidelines have
also been laid down for their functioning. This is the forum for developing appropriate
coordination and convergence of activities of the Panchayats and the State Government
through its line departments. While some of the functions of the State Government have
been devolved on the Panchayats there are other district sector activities, which will be
implemented by the respective departments. In such cases also all the decisions related to
planning should be taken in consultation with the Panchayats in general and the Standing
Committees in particular, which is in consonance with the guidelines for formulation of
the Eleventh Five Year Plan. In respect of district sector schemes of the line departments
the Panchayats will be required to play a stewardship role in reaching full benefit of the
programmes to the people and ensure convergence with its own activities either as a part
of the devolved function or as per their own initiatives beyond the periphery of such
devolution. In respect of the District sector activities which are to be devolved on the
Panchayats, the Standing Committee will formulate its own plan keeping the broad policy
of the State and the local needs in mind. The Development and Planning Department of
the State Government has laid down the policy and principles of the Government in this
respect. In its communication to all departments of this Government, it envisaged that all
schemes shall be split up into two groups – one for implementation by the departmental
machinery and the other for implementation by the local bodies i.e. the Zilla Parishad,
Panchayat Samiti, Gram Panchayat and urban local bodies. Such schemes will be
assigned, inter alia, to the Zilla Parishad, Panchayat Samiti or Gram Panchayats in
consideration of their territorial jurisdictions as also the administrative, technical and
financial requirement of any of these schemes. Such assignments will be coupled with
flow of fund and technical support where necessary. Such schemes shall be drawn up
with their focus on human development with special emphasis on concerns of women and
children. Besides, Scheduled Castes, Scheduled Tribes and backward areas should get
their due shares of such schemes. This methodology is in process and is expected to begin
its course on and from 2007-08. Both in case of implementation by the departmental
officials or by the Panchayat body itself, there is need for regular interactions between the
Standing Committee and functionaries of the concerned departments at the appropriate
levels. The Standing Committees have representation of officials of the line departments
of the appropriate levels and there is need for more convergence of activities related to
the own district sector programme of any department as well as devolved functions
related to the department for which decisions are primarily taken by the Standing
Committees.
25
At present the functioning of the Standing Committees are still weak and there is need for both
development of capacities of the elected members of the Standing Committees as well as
changing the attitude of the official members for their better participation in functioning
of the Standing Committees. The linkage between the State level functionaries and the
Standing Committees of the Zilla Parishads are also weak and varies widely for different
departments. The State Government will ensure interactions between the State level
functionaries, including ministers in charge of departments and the elected members of
the Standing Committees of the Zilla Parishads at least once in a quarter for guiding and
apprising them of the State policy and development programmes. The district level
officials will interact with the members of the Standing Committees at the Block level.
There will be similar integration of activities between the Block level standing
Committees and the GP level Upa-Samitis. The proposed system may be accommodated
well within the existing legal framework. At present, the district-level officers of different
departments are appointed members of one or other Sthayee Samiti of the Zilla Parishad.
Likewise, Block level and sub-Block level officers are members of the Sthayee Samitis of
Panchayat Samiti and Upa-Samitis of the Gram Panchayat. In some cases, higher level
officers have also been made members of a lower tier Panchayat. Besides, a Sthayee
Samiti may invite an officer/functionary for facilitation/discussion. It may also be
mentioned that the policy of linkage and interaction is pronounced in the Act by making
the MPs and MLAs ex-officio members of the Zilla Parishads and the Panchayat Samitis
and by making Zilla Parishad members and Panchayat Samiti members ex-officio
members of the Panchayat Samitis and Gram Panchayats from where they are elected.
Based on this analysis, there is no legal obstruction if a higher level officer or functionary
attends any meeting of a Sthayee Samiti for discussion or deliberation. In fact, it will
strengthen the process of interaction and collaboration envisioned in the Act. The Sthayee
Samiti may invite such persons suo motu in consideration of the issue involved or at the
suggestion of an officer-member. This will ensure convergence of activities of the State
and the Panchayats and will help taking up various concurrent activities for promoting
the same goals without duplicating each other’s effort. For example if the Agriculture
Department feels that growing of oilseeds will be promoted in certain area they may take
up distribution of mini-kits for oil seeds in consultation with Standing Committees
concerned and at the same time the Panchayat may also decide to increase the coverage
by distributing additional mini-kits out of their own fund and may also provide other
local supports like extension of irrigation. This is in fact happening in a very small scale
and the strategy will be to develop capacities at all levels so that the Panchayats join
hands with the State Government to intensify development activities with its own
resources. Since the programmes with umpteen number of sub-programmes are varied
and divergent, it is not possible to suggest a rigid line of action in this regard. The
Sthayee Samitis / Upa-Samitis or the Panchayat bodies shall be required to shape their
decisions on the basis of the local needs and available resources to meet that need. This
will also help better implementation of the State plans because of convergence of
activities at the lower level.
26
One essential requirement for proper functioning of the Standing Committees is to have their
own budgets. The process is to start with allocation of budget Standing Committee wise
before starting the planning exercise for the next year. Provisions have been made for
taking all those steps and financial power of each Standing Committee has been
prescribed for all the three tiers. For decisions involving higher amounts approval of the
Standing Committee on Finance or the General body is to be taken, as the case may be.
Steps were taken for preparing budget Standing Committee wise from the year 2006-07.
It seems that there is need for tremendous capacity building and sustained monitoring for
achieving the desired goals. The same will be achieved for all the Standing Committees
of the Zilla Parishads and the Panchayat Samitis by the year 2007-08 and 2008-09
respectively. In respect of the Gram Panchayat preparation of prior allocation and
working out budget for all the Upa Samitis will be achieved by the year 2009-10.
Training and capacity building exercises including improvement of the manuals for
functioning of various Standing Committees will be organized for that purpose.
Defining the Roles of Members Who Are Not Office Bearers
The role of ordinary members would be to represent their constituents, participate in the policy
and budget decisions of the general body, suggest policy improvements, and scrutinise
the executive's policy proposals and their implementation. The precise balance between
the roles of the office bearers and other members in initiating policies will depend on the
detail of the arrangements in place. Each member will become a champion of his/her
constituency defending public interest in the Panchayat body and channelising the
grievances, needs and aspirations of their electorate into the scrutiny process. They will
get feedback from the GUS of which they are the chairpersons and will take up those
issues in the general Body meetings of the GPs. Regular meetings of the General Body
and participation of all the members is a salient part of what they own to their
constituents and will be an important indicator of democratic functioning of those bodies.
The members would also continue to have other important responsibilities vital to the
effective functioning of their constituency. These would include:
• reviewing and questioning decisions taken by the office bearers.
• advising them on decisions and policy on local issues;
• reviewing policy, formulating policy proposals and submitting proposals to the
standing committees;
• suggesting plan proposals and contributing in final preparation of annual action
plan;
• considering the budget proposed, proposing amendments and voting on the
final budget; and
The Government will take steps for defining their roles and set up mechanism for their
capacity building and monitoring of the process.
27
Increasing Participation of the Political Parties in Opposition
In order to make the development initiatives more inclusive there is need for consensus building
among all the political parties, who have representation in the Panchayat. Provision has
been made for representation of one member from the opposition political parties in each
of the Standing Committees and the Finance Upa-Samiti of the GP. Provision of law
provides the framework only and effective participation of all political stake-holders will
require imbibing democratic spirit by all the members and the majority will have to create
conditions for participation of the members from the political parties in opposition with
freedom, mutual respect and dignity. There is need for change in attitude of the members
of the majority to listen to the voice of the minority and place all facts before them to
justify decisions, if taken with disregard to the suggestions of the minority opinion. The
minority on the other hand, should also not feel discouraged and frustrated just because
one or two proposals mooted by them, have not been accepted by the majority. The State
Government will plan for providing more training and capacity building inputs for
effective participation of members from the political parties in opposition. Since all the
political parties are in opposition in some of the Panchayat bodies there is need for active
involvement of political parties in consensus building for the development process. Many
of the social and economic objectives, some of which are even covered by legislation, are
beyond any political debate and all the parties support the same in public. The capacity
building initiatives will attempt to unite all of them behind those issues for maximizing
benefit.
Functioning of the District Council
One very important aspect of involvement of the political parties in opposition is to work as the
watch dog for monitoring activities of the majority. An institutional structure for the same
has been provided by creating the District Council in all the Zilla Parishads, which are
supposed to go through records and physically inspect all schemes being taken up by any
tier of the Panchayat. The District Council is still weak as an institution and the same will
be strengthened for its more effective functioning. The approach towards strengthening of
the District Council has been focused in the preceding paragraph 1.3.5, sub-paragraph
(g). It is expected that the appropriate statutory provision shall come into place by the end
of 2007. Steps will also be taken to strengthen its staff support for augmenting its
delivery mechanism.
Improving Accountability
28
Improving accountability is one key pre-requisite for better functioning of the Panchayat. At the
village level such accountability is attempted by calling all the voters in Gram Sansad
meetings once in six months for sharing information and receiving suggestions of the
people. In higher tiers such method of direct accountability to the citizens cannot be
worked out. As an alternative, forum known as Block Sansads and Zilla Sansads have
been created for the intermediate and the district level. Those Sansads are constituted by
all the elected members of the concerned body and the representatives from the lower
tiers as well. The system is still evolving and the State Government will take up measures
for strengthening the system by improving upon the institutional mechanism for
organizing those Sansads as well as the quality of transactions that will take place in such
forum. The institutional mechanism will include working out the essential disclosures to
be made in those meetings, format for disclosures and standardization of some of the
essential items to be included in the discussions. Improvement in functioning of those
institutions will be continuous in nature. However, it is expected that some minimum
standards will be achieved in the next three years.
Other Ethical Steps for Good Governance
Strict observance of rule of law, following financial disciplines and maintaining objectivity and
integrity are essential ethics on which the Panchayat system has to be built upon.
Maintaining transparency in all transactions and providing access to information to the
citizen will be given due importance. Apart from scrutiny by the District Council, the
auditors and administrative inspections, emphasis will be given on development of
citizen’s report card to judge the ethics being followed in the affairs of the Panchayat
with simultaneous development of the capacity of the citizen to collate, sift and evaluate
available information within the precincts of the rules and procedures and the ground
realities. It is difficult to work out a Roadmap on those items. However, the State
Government will take up appropriate advocacy programmes for the people to demand
highest standards of honesty, integrity and objectivity. Also in order that any person can
judge the same there should be access to all information upholding the spirit of the Right
to Information Act. Experience shows that individual person, who is from the
marginalized section and have apprehension of loosing patronage of such bodies are not
in a position to come forward for demanding transparency and information, particularly if
the same has been taken against their interest until and unless the persons coming from
the same stratum and having similar stakes, can form well-knit groups, maintain
solidarity and place their demand in a unified voice. There is need for engagement of
civil societies for taking up the cause of such persons to facilitate formation of groups of
such persons and to work as pressure groups for maintaining objectivity and integrity in
functioning of the Panchayats. Subject to certain conditionalities involved, a timeframe to
achieve this goal has been indicated in the Matrix showing Implementation Strategy in
item No. 2 against the issue captioned ‘Other ethical steps for good governance’.
Interface between Panchayat and Civil Society
29
Development of social capital by encouraging civil society to get engaged with the functioning
of the Panchayats will be an important aspect of institutional strengthening of the
Panchayat system. To promote that the Government wishes to see consultation and
participation embedded into the culture of all Panchayat bodies. The Government
proposes to ensure that all statutory obligations for consultation at all levels are followed
up in letter and spirit to ensure grater transparency of functioning. This would imply a
more focused set of interventions for improving the quality and regularity of the
consultation process in which the participation of the civil society will be very much
desirable. However, this will be an evolving process and it is difficult to chart a Roadmap
for the same except that all possible steps will be taken for promotion of civil societies
and for creation of an ambience so that they may mutually reinforce each other in better
understanding of the issues and strengthening the processes of good governance. A Civil
Society Support Programme (CSSP) is also being launched in the state shortly primarily
with the purpose of supporting a more accountable civil society influencing government
policy and practice to ensure better access to services by the poor. The goal is effective
implementation of pro-poor policy in West Bengal.
IMPROVING CORE CIVIC SERVICES
Providing Civic Services to the Citizen
Most of the civic services are best provided by the Gram Panchayats (GPs), being the closest to
the people. The upper tiers may also remain associated with directly providing certain
services requiring higher engineering skill and organizational capacities or having impact
over a wider geographical area and may also bear the responsibility of providing
necessary supports in delivering services by the GPs. Therefore, the general approach
should be to provide as much services as possible by the lowest tier, that is the GP, and
the upper tiers working for providing support to the GPs in realizing that goal. The
services that the PRIs should provide in various sectors are described mostly in this
chapter and some of the other services have been described in subsequent chapters.
Drinking Water Supply and Sanitation
30
Let us first discuss the issue of conservation of water for sustainability of drinking water sources
and regulation of use of ground water for use in industry/agriculture. At present there are
a few programmes running in this field. Watershed Development Programme to capture
and store rain water is implemented by the Panchayat Samiti under the guidance of the
Zilla Parishad in the drought prone area. Gram Panchayat may also implement such
programmes of smaller dimensions. Newly introduced Hariyali programme for
conservation and utilization of surface water also has a place in this scenario.
Swajaldhara programme is again an initiative for piped water supply in rural areas
especially where sub-soil water cannot be extracted. Besides, the Bengal Tanks
Improvement Act, 1939 (Bengal Act XV of 1939) and the West Bengal Tanks
(Acquisition of Irrigation Rights) Act, 1974 (West Bengal Act XXIII of 1974) have
provisions for acquisition and improvement of tanks for irrigation and other purposes.
Although Gram Panchayat has no authority under these Acts, it may initiate proposals
and facilitate utilization of available water. In all such cases, Gram Panchayat may take
the initial steps to identify the location of the schemes and to select the beneficiaries for
specific actions at the higher level. The State Government may disseminate information
relating to these programmes and statutory provisions among the Gram Panchayats in
particular and may facilitate implementation of these programmes initiated by the Gram
Panchayat or any other Panchayat body. Initiatives in this respect by both the GP and the
higher tiers may be taken depending on the geographical area and the technology
involved.
Water supply to all the habitations needs to be ensured. To do this it is necessary to develop
database for habitations with seasonal shortage of supplies and those having water quality
problems. This will be best done by the Panchayat Samiti with full support from the Zilla
Parishad with access to the database of SWID and similar other organisations linked with
local knowledge and experience.
Source based committees will be promoted for maintenance of installations through regular
collection of user charges and acquisition of skills by selected (women) users.
Maintenance of these installations is entrusted upon either the Panchayat Samiti or the
Gram Panchayat. Formation of users’ group is the responsibility of the Panchayat body
concerned although the Panchayat Samiti may take the help of the Gram Panchayat in
formation of such users’ group and in monitoring and supervising its functions. Users’
group may be given the responsibility of running the installation, equitable distribution of
available water, collection of charges and minor repairs. Such joint ownership of the
users’ group is very likely to result in better utilization of water.
Promotion of habitation based small piped water supply schemes has been targeted under
Swajaldhara with connection to every household in the locality and group stand post in
certain cases with recovery of at least 50% of the running cost from the user group and
having maintenance liabilities.
Capacities of the Rural Sanitary Marts (RSM) will be built up by the Panchayat Samitis to also
deliver water supply engineering related services and monitoring quality of water by
establishment of laboratories or using existing laboratories.
31
Surveillance of water qualities in each Block by the RSMs on payment will also be targeted.
Special drive will be taken in areas with arsenic contamination/salinity. This will be the
primary responsibility of the PSs but the part of the implementation related to collection
of samples etc will be the responsibility of the GP. The water quality testing
arrangements are to be financially sustainable.
Attempts will also be taken for promotion of surface water based water supply arrangements in
areas with arsenic contamination/salinity or exhibiting seasonal problem because of
excess drawal of ground water. This will be the responsibility of the Zilla Parishads (ZPs)
to take up with the State Government for actual implementation by the State Government
(PHED). The PRIs may be associated with distribution of water to the household level
after receiving water in bulk from the PHED.
100% access to safe sanitary toilets in all the habitations have to be ensured. GP/Block wise plan
for such 100% coverage is needed in each district depending on the present progress and
keeping the area free from open defecation.
It has also been targeted to provide sanitation facilities at all public places and the responsibility
will lie on the GP, PS or ZP depending on the place. Major initiatives in this respect shall
be taken by the Janaswasthya O Paribesh Sthayee Samiti of the Panchayat Samiti and
Siksha O Janaswasthya Upa-Samiti of the Gram Panchayat. They will take actions in
regard to public places under their respective control and management. Janaswasthya O
Paribesh Sthayee Samiti of Zilla Parishad shall monitor the progress in this respect. This
has been indicated in the Matrix showing Implementation Strategy in activity (j) under
the issue ‘Drinking water supply and sanitation’ in item No. 3.
Sewerage and solid waste management plan in each habitation for proper environmental
sanitation have also been targeted. It is also targeted to provide conservancy services in
urbanized or other GPs where such services are necessary.
Services Related to Public Health
32
Improvement of public health is associated with a large number of activities and responsibilities
by the local bodies, besides those related to water and sanitation as described above.
Responsibility for improving public health lie with all tiers from the central government
to the GPs and the same also demands informed and active participation of the people for
desirable outcome. There are many national level programmes, including the National
Rural Health Mission (NRHM) as well as separate state government initiated measures
for improving various aspects of preventive and promotive healthcare. The Panchayats
will be responsible for organizing IEC activities and mobilizing the community for their
active participation in those programmes and will attempt to reach the targeted objectives
in respect of their areas by utilizing the available services. The National Rural Health
Mission envisages that a) The District Health Mission will be led by the Zila Parishad, b)
The DHM will control, guide and manage all public health institutions in the district,
Sub-centres, PHCs and CHCs, c) ASHAs would be selected by and be accountable to the
Village Panchayat, d) The Village Health Committee (A functional committee of the
GUS) of the Panchayat would prepare the Village Health Plan, and promote intersectoral
integration, they will also be provided with sectoral untied fund of Rs. 1000/- per year, e)
Each sub-centre will have an Untied Fund for local action @ Rs. 10,000 per annum. This
Fund will be deposited in a joint Bank Account of the ANM & Pradhan and operated by
the ANM, in consultation with the Village Health Committee, f) PRI involvement in Rogi
Kalyan Samitis for good hospital Management, g) their would be adequate provision of
training to members of PRIs. All these elements have been included in the plan of action
worked out by the Health and Family Welfare department in their implementation plan
for NRHM in West Bengal. The Panchayats will also add their own resources for making
those programmes reach the entire community, particularly the weaker and the poorer
sections and will ensure better delivery of all such public health programmes to those
people. In case such services are not available or are of poor quality the Panchayats will
mediate with the Government for ensuring delivery of public health related services for
which the responsibility lie with the Government. Many of the proximate factors for good
health are either delivered or may be coordinated by the Panchayats for proper
convergence of all efforts by various bodies. The GP will provide that forum at the lowest
level, which will be most crucial for ensuring convergence for all such activities. The
other two tiers will also remain responsible for similar convergence at respective levels.
All these bodies will also be associated with surveillance of public health outcome for
assessing status in respect of their citizenry and will work for possible improvements
with available resources. The following gives a broad outline of what the Panchayats will
be doing in respect of public health apart from what has been stated earlier in relation to
water and environmental sanitation.
33
Registration of birth and death – Power has been already given to the GP for registration of
birth and death. In exercise of power conferred under section 6(5) of the Registration of
Births and Deaths Act, 1969 (18 of 1969), the Chief Registrar of Births and Deaths, West
Bengal (Director of Health Services), empowered the Block Sanitary Inspectors or any
other person functioning as Registrars under the aforesaid Act to appoint the Pradhans of
the Gram Panchayats within their respective jurisdictions to act as Sub-Registrars
(Notification No. HF/O/FW/14C-2/94(I)/174-P dated 19/5/1997). On being so appointed,
the Pradhans are acting as Sub-Registrars, that is, they are collecting information on
births and deaths, maintaining registers in the prescribed manner and making available
such extract copies of the registers as may be intended for. They are also sending
periodical reports to the Registrars on the work done by them. The PRDD has circulated
an order No. 4231-PN/O/1/4P-5/2003 dated 12/11/2003 delineating the functions and
responsibilities of the Pradhans on this issue. At present all such events, particularly all
deaths are not registered though such services are provided free of cost. The GPs will be
required to ensure cent percent registration of birth and death, which occurs within its
jurisdiction. In order to achieve this purpose, the Gram Panchayat shall motivate all its
members as also members of the Gram Unnayan Samitis to sensitise the people in general
and to collect follow up information in this respect. That will also help the GPs to
maintain the vital statistics of the population living within its area. Based on analysis of
such data the GP will make possible interventions in reaching services related to family
planning, mother care and child health interventions, campaigning for following the legal
provision related to the age at marriage etc.
Immunisation of the children – The GP will be responsible for mobilizing the community in
order to achieve 100% immunisation of children with appropriate support from the upper
tiers of Panchayats and the State Government. The responsibility of the GP will be to see
that adequate services are available within its area and, if not, will mediate with the State
Government through PS, if necessary, so that every newborn has access to such services.
The GP will also mobilize the parents and the community to take benefit of the services
and will keep track of the actual coverage. All the doses are not taken by some children
and to avoid that the GP will try to maintain the immunization data child-wise in
computers, as and when they acquire the capacity to do so. The state Government will
assist the GPs to acquire such capacities within next three years. The purpose will be to
track every new born to be sure that all the doses have been administered to every child.
The GPs will take the assistance of the ANMs and the ICDS workers in accomplishing
this job. Necessary outreach services will be organized by the GP with the available
health and ICDS workers for reaching the immunization related services to the areas
located far away from sub-centres.
34
Safe motherhood – The Panchayats will work towards providing access to government services
related to birth preparedness for safe motherhoods to its residents and will utilise the
support to be available under NRHM towards that goal. The poorer section of the society
do not always access such services because of their lack of awareness as well as difficulty
in access or even non-availability of such services. The Panchayats will work for
increasing awareness about availing such services like tetanus vaccination, pre-natal and
post-natal check-ups and other good practices for safe motherhood. Those bodies will
also take follow up measures including medical check up in deserving cases. Members of
ASHA and women SHGs will be utilized to campaign and to keep vigilance on such
matters. In case such services are not accessible to all, the GP will identify those areas
and will mediate with the State government directly or through the PS for making
available such services. GPs will also work towards taking appropriate measures for
achieving at least 80% institutional deliveries and will ensure that the remaining births
are attended by at least skilled persons. If the government maternity facilities are far off,
the GPs will develop infrastructure in their head quarter health sub-centres or in other
suitable places for safe delivery of mothers with the help of the ANMs working in their
jurisdiction. They may arrange skilled birth attendant from among the local women for
providing services. The GPs will also monitor events related to maternal death and will
take all preventive measures directly or with the support of the higher tiers or the State
Government to avoid death of either the mother or the child.
Preventing malnutrition – High incidence of malnutrition among the adolescent girl, mother
and children is a major area of concern related to public health. Prevention of
malnutrition will depend on several interventions by the Government, Panchayats and the
households. The GP will be the lowest level at which the nutrition related data, mostly
collected in the ICDS centres, will be monitored, aggregated and analysed for all possible
interventions at that level. In order to do that the GPs will ensure that all the children of
the area up to the age of three years are brought under regular surveillance through the
ICDS programme or otherwise. Monitoring and analysis of the weight at birth and latter
months of all the babies will be an important component of the activities for planning and
implementing both short and long term interventions. Such interventions will include
identifying the malnourished children and ensuring that they get adequate supplementary
nutrition through local arrangements for which the GP will make, for economically
weaker households, provision out of their own resources, if no such provision is there out
of any programme. This is one of the concurrent activities where GP will take measures
on its own initiative where State intervention is inadequate or has not reached at all. The
Panchayats will also work for increasing the awareness of the people particularly the
women including the adolescent girls for promotion of adequate nutrition for all. To
supplement the general publicity and institutional efforts (medical advice) of the Health
& Family Welfare Department of the State Government, the GP will also work for
spreading awareness related to breast feeding and promotion of low cost nutrients
including motivating the poorer families for developing kitchen garden for increasing the
supply of nutrient foods and proper functioning of various feeding programmes at the
ICDS centres and schools. GPs will also remain responsible for construction and
maintenance of ICDS centers.
35
Prevention of diseases – Prevention of communicable diseases in general is the task of the

Government. However, the same becomes effective only when the entire community
participate in those programmes. The role of the Panchayats will be to participate in all
such programmes and utilize the resources available through existing programmes of the
State and the Central Government to prevent communicable diseases by ensuring active
participation of the people and adding their own efforts and resources for effective
implementation of all those programmes. The outcome will be measured by the reduction
of burden of disease of their residents and absence of outbreak of communicable diseases
for which the GP will remain vigilant. The GP will pass on any incidence of outbreak of
communicable diseases to the appropriate agencies and will provide all local supports to
make government interventions in containing the same along with taking up local
measures for preventing recurrence of such incidents. The Panchayats will take initiatives
for control and home management of diarrhea and prevention of other water-borne
diseases through awareness building and skill training. The Panchayats will also assist in
building up awareness on diseases like AIDS for its prevention within its area. West
Bengal has high incidence of Thalasemia and the same can be reduced by avoiding
marriage in which both the bride and the groom (their mismatch) are carriers of the
congenital ailment. Awareness building in such case also, which is not really
communicable diseases, should be taken up by the Panchayats for preventing such
ailments. GP should motivate the people through group discussions and discussions in
larger forum to check the blood groups of the prospective bride and groom before
marriage so that there is no mismatch and if necessary get medical advice.
Vector control – The Panchayats will work in association with the Government for controlling
breeding of mosquito and other insects which are responsible for spreading disease.
Those bodies will also take local measures for vector control and ensure participation of
the people in all such measures like avoidance of accumulation of water, regular clearing
of shrubs and bushes. Maintenance of environmental sanitation through proper drainage
and sewerage, as already described and keeping the area free from open defecation will
be important tasks of the Panchayats in this respect.
Food safety – As local government, the GP being too weak will not be able to enforce measures
related to food safety nor have the Panchayats been legally empowered with that
responsibility. However, even without such formal assignment the GPs may promote
adoption of certain broad hygienic measures in respect of sale of readymade food to
reduce the probability of spreading of infectious diseases and link the same with issuance
and renewal of trade licenses for food related business or vending of food in public places
and fairs etc. In order to spread awareness in this respect, GP may request the local
officers of the Health and Family Welfare Department to participate in the meetings of
Gram Sansad and Gram Sabha and explain the relevant issues to the people.
36
Monitoring of events of death of children and pregnant mothers – In order to reduce the IMR
and the MMR to the desired level the Panchayats will be required to monitor all such
events, which occur within their areas. The Health Supervisors, posted at the GPs, have
already been entrusted by the Health & Family Welfare Department with the
responsibility of conducting audit of all such deaths and reporting the same to the Gram
Panchayats. The GP will have the responsibility to act on the basis of such reports by
taking up suitable interventions locally as well as mediating with the higher tiers as well
as the officials of the Health & Family Welfare Department for initiating possible
measures in preventing such deaths.
Convergence of all public health Related Activities – Convergence of all public health related
activities and assessment of quality and extent of delivery of all the related services will
be an important task of the GPs. The State Government has already introduced a review
meeting by the GP in the last Saturday of every month and officials of Health & Family
Welfare Department and the Women & Child Development and Social Welfare
Department along with functionaries of the GP attend this meeting. Convergence of such
efforts at the Block and District levels will be similarly coordinated by the PS and the ZP.
37
Provision of elementary curative services – Access to curative services in interior rural areas is
still limited because of non-availability of qualified doctors in villages and because
government doctors are available only in the PHCs, which caters to a large area and are
located far away from many villages. Even traveling to those centres by the sick people
involves considerable expenses and loss of time and income. As a result of that the poorer
sections of the community are not in a position to take full benefit of available curative
services of the Government and the only solution is to reach curative services closer to
the people. The State Government will ensure that curative day care facilities are
available within the geographical area of every GP. Such services are already available in
GPs where government health centres like BPHC and PHC are located. The GPs, where
no such centre exists, will be provided assistance by the State Government to run a
dispensary by engaging a graduate doctor from any system of medicine. The doctors of
the PHCs, which run only out-patient services, will also attend outdoor clinic in some of
those GPs, particularly which are located in remoter places, to the extent permitted by the
strength of doctors available in such PHCs of the same Block. In fact homeopathic
dispensaries are being run at present in 675 GPs and 300 more such dispensaries along
with 200 Ayurvedic dispensaries are going to be opened soon in GPs without having any
Government or Panchayat owned clinic. The remaining GPs will also be covered as soon
as possible (preferably by the year 2007-08, subject to availability of doctors on hire) so
that every GP has some dispensary to provide elementary curative service to the people.
All the doctors in those GPs are engaged on contract by the GPs and expenses for
medicines etc are borne both by the State Government and the GPs themselves.
Depending on availability of allopathic doctors, the GPs will be allowed to hire such
doctors to treat patients in those clinics at least once a weak, in addition to the
homeopathic/Ayurvedic doctor to improve the coverage. As already mentioned, in some
of the remoter GPs Government allopathic doctors will be sent on rotation to provide
outdoor treatments. Patients from all the clinics will be referred to the PHC/BPHC, if
necessary. Every GP will develop appropriate infrastructure to allow running of such
clinics and will maintain data related to treatment in such clinics for necessary disease
surveillance. In fact the GPs are being assisted to develop proper infrastructure in their
head quarter sub-centre as per model plans circulated for that purpose. All the GPs will
have such infrastructures within the year 2008-09. Such sub-centres will also have labour
rooms to provide facilities for delivery with the help of the ANMs at the sub-centres, if
the Government health centres are located far away from the GP. The GPs will be also
encouraged to arrange for simple pathological tests facilities in the head-quarter sub-
centres with private partnership, if necessary.
Building capacities of the Panchayats – The State Government will work to augment the
capacities of the Panchayat functionaries, particularly those at the GP level for being able
to converge all the activities related to public health, monitor the progress of
implementation of various programmes and be able to plan and implement local
interventions for better outcome of the existing programmes to be judged by reduction of
burden of diseases and better nutritional status of the population. The available
functionaries of the State Government will be responsible for providing necessary
support to the local body concerned for achievement of the said tasks.
38
Services Related to Universal Literacy and Elementary Education
The 86th Amendment of the Constitution confers right to all for receiving education up to the
age of 14 years. The PRIs should work in association with the State Government for
realizing the goal for their entire population. This is one of the most important sectors,
where the Panchayats will have activities of all the types like the devolved function, the
agency function and the collaborative function. The State Government will gradually
devolve all the non-academic functions related to school education, which will include
maintenance of buildings and other physical infrastructure like water supply and
sanitation facilities, play grounds etc. in respect of schools run by the West Bengal
Primary Education Board, West Bengal Board of Secondary Education and the Board of
Madrasah Education. This is being done at present only partially out of own fund of the
Panchayat and there is need for devolving responsibilities in respect of activities being
taken up under the SSA (Sarva Shiksha Abhiyan). For implementation of the SSA, the
Chairperson of the Zilla Parishad is involved as Chairman of the District Level
Committee on SSA and the same should be replaced by proper institutional involvement
of the Zilla Parishad and other Panchayat bodies through clear assignment of
responsibilities. The Government of India has to take a decision in this regard for
ensuring involvement of the Panchayats in implementation of the SSA. There is a Siksha,
Sanskriti, Tathya O Krira Sthayee Samiti (Standing Committee on education, culture,
information & sports) at Zilla Parishad and Panchayat Samiti level. Likewise, there is
Siksha O Janasasthya Upa-Samiti at Gram Panchayat. Sabhadhipati, Zilla Parishad,
Sabhapati, Panchayat Samiti and Pradhan, Gram Panchayat are ex-officio members of
these bodies at appropriate level. These bodies may be entrusted with the responsibility
for implementation of the SSA and the parallel committees set up for the purpose, may be
dissolved. At present the field functionaries of the School Education Directorate is not
associated with the Panchayat Samitis excepting in attending meetings of the Standing
Committees. There is need for placing their services with appropriate levels of the
Panchayats for obtaining their help in managing all non-academic activities of the schools
by the Panchayats. They may be given a Panchayat related designation to highlight their
role in the Panchayats. PRDD proposes to take up this issue with the School Education
Department so that the State Government may take a firm decision in this respect with a
specific timeframe to implement the decision.
39
However, the Panchayats of the State has been fully devolved the responsibility of opening
community managed education centres for primary and upper primary level education.
This is being done under a special programme of the State Government for universalizing
elementary education with focus on reaching the education related services to the
backward areas and ensuring participation of all those sections of the community, who
are lagging behind. The programme known as the Shishu Shiksha Karmasuchi allows
opening of Shishu Shiksha Kendra (SSK) for imparting primary education and
Madhyamik Shiksha Kendra (MSK) for imparting upper primary education by the
community after obtaining concurrence of the Panchayats. The Panchayats have been
assigned the responsibility of extending support to the SSKs and MSKs in area having
inadequate access to such services with the initiative of the local community. The
community takes responsibility of managing the schools and financial support for the
same are received by them from the Panchayats. It will be the responsibility of the GPs to
ensure 100% enrolment and their retention till class VIII standard using the State
sponsored or Panchayat sponsored institutes. The PS will remain responsible, for which
necessary support will be provided by the State Government, for bridging the gap in
available infrastructure and improving the existing infrastructure to provide access to all
the children living in its area. Adequate physical infrastructure for all primary and upper-
primary schools & SSKs/MSKs are to be built up within the 11th Plan period and the ZP
and the State Government will overview the progress and bridge the gap with resources
in their command, including those available under the SSA, wherever necessary.
Assigning responsibility on the Panchayats in this regard will not be enough unless their
capacities in achieving tasks of cent per cent enrollment and retention of all children at
least up to the level of elementary standard (class VIII) are augmented by the
Government. The responsibility of the State Government will be to augment the
capacities of all the tiers of Panchayats for achieving this important goal. Achieving
universal elementary education is also related to abolition of child labour. The
Panchayats will be sensitized to the urgent need for abolition of child labour from
respective areas and achieve the status of “No child labour GP” as soon as possible. It
will be too ambitious to think that the problem will be solved by merely involving the
Panchayats in achieving the same. However, this will be a priority of the Panchayats in
addressing this issue for which necessary support has to be also provided by the State
Government. The PSs will organize bridge courses for the liberated child labour for
which support will be extended by the state Government.
40
The Panchayats work as an associate of the School Education Department in implementing the
Mid Day Meal programme with due support from the upper tiers. The GPs engage the
SHGs for cooking and distribution of food and also have constructed kitchen sheds for
running the programme. The GPs face the day to day administrative problems and
mobilize the community for improving the quality of food through local donations. The
responsibility should be totally devolved to the GPs and responsibility of supervising the
same should be entrusted with the PS and the ZP by issuing formal orders, which is yet to
be done. The GPs should also be given the responsibility of procuring rice locally and get
paid at the usual rate so that local rice could be used and local people get market for
adding value to their agricultural produce and sell the same there itself. Thus, the local
people shall acquire ownership to this programme and participate actively in its
implementation. This will also ensure quality of food for children. However, that will
require concurrence of the GOI for which they have been moved. PRDD proposes to
take up this issue with the School Education Department so that the State Government
may take a clear decision on it and refer to the GOI for concurrence as may be necessary.
The National Literacy programme is being implemented through the Zilla Saksharata Samiti.
The Panchayats are asked to support the programme whereas the need is to devolve the
responsibilities on the Panchayats. Item 19 of the Eleventh Schedule of the Constitution
includes Adult and non-formal education as one of the subjects to be considered for
devolving on the Panchayats. It is, therefore, quite natural that the activities related to
adult and non formal education, which need to be taken up at the district or below that
level, should be devolved on the local bodies. Such devolution will help the Panchayats
to own the task of bringing their entire citizen from out of illiteracy through local
initiatives and the same will have the following advantages.
• It will be easier to mobilize the entire community within the jurisdiction of the
Panchayats towards achieving a society free from illiteracy.
• Convergence with other programmes for socio-economic development, which are
implemented by the Panchayats, will be easy to achieve for more functional use of
the acquired literacy.
• It will ensure bottom up planning for all activities related to Continuing and
Lifelong Education and the same will be more effective to suit the local need.
• If the Panchayats envisage the programme as their own, it will encourage those
bodies to utilize all their resources for enriching the programme.
• Close monitoring by the local government will improve quality of implementation
of the programme. Also, all corrective measures can be taken more quickly and
precisely based on local need.
• The implementing machinery will be directly accountable to the community
through the local bodies. That will improve the quality of implementation and help
in achieving locally determined targets.
• Since success of the programme centres around effective sensitisation of the
people, the Panchayats with their closeness to them, are most likely to achieve
success.
• Since most of the target group people are otherwise occupied, it may be necessary
to restructure on the basis of ground reality, the operational strategy for which the
Panchayats are best equipped.
41
The State Government will devolve the responsibility of managing all programmes related to
adult and continuing education to the appropriate level of the Panchayats. The National
Literacy Mission Authority should issue enabling guidelines to make it happen faster.
Road Connectivity
The Panchayat of the State are constructing and maintaining roads from the beginning of
constitution of those bodies as an important civic service. A large share of fund under the
control of the Panchayat is used for that purpose. Each Zilla Parishad has already
developed a District Rural Road Plan (DRRP), of which some of the roads are owned by
the Government and the rest are maintained by the Panchayats or are required to be
constructed for providing all weather road connectivity to all the habitations of the State.
Each tier of Panchayat will have exclusive jurisdiction on certain types of roads included
in the DRRP and not owned by the Government and High-Way authorities. All
“THROUGH” roads and “LINK” roads, shown in the Core Network prepared for the
district under the PMGSY should be owned by the Zilla Parishads (ZPs). All other
existing metal roads shown in the DRRP and constructed under RIDF or other
programmes and not owned by the PWD or other government departments will be owned
by the ZPs. Other roads constructed by the PS wll be maintained by those bodies. All
roads constructed by the GP, other roads connecting the “LINK” roads with the
habitations fully confined within the GP and roads within the habitations will be owned
by the Gram Panchayats (GPs). Out of roads owned by the GPs those which are wide
enough for movement of small four wheel vehicles will only be termed as village tracks.
Minimum width of carriage way of such roads should be 2.5 meter although efforts
should be made to widen the road to a width of 5.0 meters at least in different sections as
far as practicable. GPs should not construct or maintain any road of width less than the
minimum width of 5.0 meter for the carriage way, to make the same at least of the
standard of a village track particularly where such track connects the village with a major
arterial road. All the ZP roads will be all weather metal roads, whether sealed or
unsealed. Roads of PS will be all weather roads but the riding surface may or may not be
metalled. GP roads will be either all weather or fair weather. Responsibility of
maintaining the roads will be on the Panchayat body owning that road. Any Panchayat
body not having enough technical expertise or if it finds otherwise convenient may
entrust construction or repairing of a particular road owned by those body to the higher or
lower tier of Panchayat on mutual consent and will also bear the related expenses. The
right to collect toll or impose condition on flow of traffic as per law will lie on the
Panchayat body owning that road. Other responsibilities of the Panchayats related to road
connectivity are as mentioned below.
42
Panchayats to maintain the list of roads – Based on the said principle all the Panchayat bodies
will prepare a list of roads already owned by them or required to be constructed by them
to provide effective connectivity to all the habitations under their jurisdictions and show
the same in map. The maps should be preferably GIS based. Roads already in existence
and the roads, which are proposed to be constructed to provide the desired connectivity,
should be clearly shown on the map. Existing road should be shown in continuous line
and the proposed roads should be shown in broken lines. The maps should be made
public for their knowledge and comments. All the roads should be properly named and
the identity of the roads should be unique so that the same could be identified without any
ambiguity by ordinary people. The list of existing roads will be maintained in a register in
the name of Road Register, which will be treated as a subsidiary Asset Register of the
Panchayat body concerned. The entry should include exact length, specifications and the
year of construction. Asset value of the roads appearing in the register should be worked
out every year, if possible. Total investments made on each road for construction and
upgradation, which are of capital nature should be entered in the register. At the end of
each year total investment made by any Panchayat body for construction and upgradation
of roads, which will be classified as capital expenditure should be entered in such Road
Register. A timeframe for preparation of the list of roads, existing and proposed, is
indicated in the Matrix showing Implementation Strategy in item No. 3 under the issue of
Road Connectivity.
Preparation of a perspective road plan by each Panchayat body – Each Panchayat body
should work out the length of the existing roads which satisfy the specifications, roads
which are to be upgraded to reach the specifications and the new roads to be constructed
separately. All new roads are to be constructed as per specifications only. Based on the
said information all the Panchayat bodies should come out with a perspective plan
showing the list of new roads to be constructed and the roads to be upgraded. The plan
should be prepared after wide consultation with the community and the same should be
formally approved by the General Body. The draft should be shared with the higher
bodies before finalization of the same by the Gram Panchayats and the Panchayat
Samitis. The document for the plan so prepared should be in readiness for taking decision
on all future investment on road sector by the Panchayat bodies. A timeframe for this
purpose has been shown in the Matrix showing Implementation Strategy in item No. 3
under the issue of Road connectivity.
43
Maintenance of roads owned by the Panchayats – Maintenance of roads will be an important

responsibility of the respective Panchayat bodies and the body will allocate enough fund
based on its resources for that purpose in the annual budget. Maintenance of roads should
be given more priority in respect of utilization of own fund including untied fund and
grants as per recommendations of both the central and the state Finance Commissions.
Depending on the total length of roads under its jurisdiction and asset value of the roads
there will be need for investment on maintenance every year, which should be reflected
in the budget. The Panchayat bodies should take up new roads with their resources only
after ensuring that the existing roads will be maintained properly. Requirement of fund
for that purpose should be worked out to assess whether it will be possible for
maintaining the roads regularly. Instead of repairing the roads after the riding surface gets
damaged seriously, preventive and regular maintenance including sectional repair is to be
done on a regular basis and the budget of the Panchayat body should clearly reflect
allocation of fund for maintenance of roads. Maintenance should be such that value of the
total road assets does not get reduced and there is no need for fresh capital investment to
reconstruct the road within its life span. The Panchayat bodies should mobilize more
revenue including collection of tolls from newly constructed roads to meet the
maintenance needs.
Documentation of all maintenance works – The Road Register maintained by each Panchayat
shall have provision to show the year wise and road-wise amount spent on maintenance
of road. This register will provide the history of maintenance of each road by the
Panchayat body concerned. Thus at the end of each year total investment made by any
Panchayat body for maintenance of existing roads will be entered in the Road Register
and will be classified as revenue expenditure and will be clearly shown road-wise and
will be shared with public as a part of Annual Report. Zilla Parishad, Panchayat Samiti or
Gram Panchayat, as the case may be, shall entrust upon an employee the task of entering
the required data in the Road Register as soon as a scheme for repair/maintenance of a
road is competed and the final payment in this respect is made. It shall be provided that
final payment shall be made after it is certified on the claim paper that the particulars
have been entered in the Road Register. An officer shall supervise this function. A
direction in this behalf shall be issued to the Panchayat bodies by PRDD.
Road safety – The Panchayat body owning any road should be responsible to ensure safety of
the roads to the extent possible. Some of the aspects are to be taken care of while
designing the roads. The Panchayats should also arrange proper road signs particularly in
sharp turns and by controlling traffic speed in congested areas and will educate the
inhabitants about all safety measures. The Panchayat body should regularly monitor if
there is any place, particularly on new roads, where accidents are occurring repeatedly for
taking necessary corrective measures. The technical officer in charge of
construction/maintenance of the road shall be responsible for monitoring the extent of
risk element and initiate action accordingly.
44
Street lighting – The Panchayats owning the road will also remain responsible for providing
street lights in places where the road passes through habitations and deserves such
facilities and in places where lighting is necessary from the safety point of view. Section
21 of the State Panchayat Act has entrusted the responsibility for street lighting upon the
Gram Panchayat. However, the operational aspects like identification of the locality, rates
to be imposed on the people and other related issues shall be decided by the Gram
Panchayats. Stretches of roads requiring street light shall be determined on the basis of
density of population in the locality and because of traffic hazards as a result of sharp
bend, fog etc. Gram Panchayat may fix a lighting rate prescribed under the West Bengal
Panchayat (Gram Panchayat Administration) Rules, 2004.
Irrigation, Drainage and Flood Protection
The Panchayats are providing irrigation facilities to the farmers mostly through surface water
irrigation sources and individuals have been facilitated to own ground water installation.
In some cases the Panchayats have also installed irrigation sources like deep tube wells
and river lift irrigation facilities, which are generally maintained by the users. All the
three tiers have been involved in such works depending on the size and complexity of the
irrigation system. The Roadmap for irrigation will be to utilize the available rainfall to
create as much irrigation potential as possible and to sustain the same. However, medium
and large irrigation will be under the jurisdiction of the State Government.
Providing appropriate drainage facilities for each habitation will be an important task of all the
tiers of Panchayats depending on their geographical spread and technical complexity. The
responsibility will primarily lie on the GPs and what cannot be taken up by the GP on
ground that the same is beyond its technical competency or the command or impact area
is spread over more than one GP the higher tiers will be involved. Flood protections from
major rivers are done by the Irrigation & Waterways Department. The Panchayats
maintain the traditional Zamindary embankments and also takes up other local measures.
This will be generally the responsibility of the PS and the ZP will extend necessary
technical assistance directly or with the support of the I & W Department.
Housing and Development of Habitat
45
Availability of durable houses for all the households residing within any GP will be an important
goal of all the GPs. Also, every household should have at least two rooms, one kitchen
and toilet facility with piped water supply, proper sewerage and electricity connection.
The present status is far behind the desired goal and the GP as well as the other tiers of
the Panchayat should facilitate in all possible ways to reach the goal. Since the decision
to have such facility to be taken is in the private domain the Panchayats can only
facilitate the process and make it easier for the households to achieve that goal through
appropriate infrastructure development and other possible interventions. It is felt that in
order to motivate the people for construction of a model residential house, the GP should
allow some incentive to the less affluent people. A person submitting a building plan on a
homestead land measuring 0.02 acres to 0.03 acres may be encouraged to construct a
house having at least two habitable rooms, one kitchen and one bathroom-cum-water
closet of at least minimum prescribed size (it is not possible to construct such house in
the prescribed manner on a land of lower size). If such a building is constructed, the GP
shall refund fifty per cent of the fee paid for obtaining permission for the construction on
application by the owner after completion of construction. Besides, if for the purpose of
taxation, such a building to have an annual value of rupees twelve thousand or less, the
GP shall allow special rebate of fifty per cent on the assessed tax on such land and
building under section 46 of the State Panchayat Act. PRDD shall finetune this proposal
and issue a direction to the Gram Panchayat. Availability of homestead land and proper
development of the habitat for healthy living are essential for realizing the goal related to
housing for all. The GP will be responsible for development of eco-friendly sanitized
atmosphere around the neighbourhood and enforce the prescriptions for allowing building
set-backs and open spaces, among others, for ensuring proper habitat for all the families
living in within its jurisdiction so that providing essential civic services to all the
households becomes easier. The State Government will extend necessary resources for
achieving the same. Very poor families are to be assisted to have at least one permanent
dwelling house on their own land and those who do not own homestead land should be
provided with minimum quantum of land. The GPs should be assisted to acquire the
capacity for proper planning and development of habitat to accommodate every
household, living within its geographical area, to have a durable house. The building
plans, for which Gram Panchayats are the sanctioning authorities under the law, should
also be regulated to ensure healthy living for every one. There should be access to
adequate playing ground, space for the children and enough community space for healthy
living. The GPs will be assisted by the state government to acquire capacities for
providing all those services and depending on their capacities they have to decide on the
time frame for achieving the goals. The upper tiers will provide possible support for the
GPs to reach the said goals. It is very difficult to prescribe a time frame for achieving
such goals, which require flow of substantial resources beyond the reach of the
Panchayats and even the State Government. However, the vision will help to channelise
the available resources more effectively towards that goal.
Sanctioning Building Plan and Enforcing Other Regulations for Community Living
46
As per section 21 of the W.B. Panchayat Act, as amended recently, one of the regulatory duties
of the GP is to accord permission for erection of new structure or new building or
addition to any structure or building to prevent unplanned growth and to protect
environmental ambience. The scope for intervention on this issue has been further
elaborated in section 23 of the said Act. The GPs are doing the same traditionally.
However, with growing trend for construction of bigger buildings, increasing density of
population and more need for protecting environment there is need for augmenting
capacities of the GPs and in some cases that of the higher tiers for proper assessment of
building plans and control growth of urbanization. The State Government will take
measures to augment capacities of all the technical staffs of the Panchayats. The State
Government has created a post of Nirman Sahayak – a Diploma Engineer – in the
establishment of GP in place of para-technical staff. The process is going on and such an
employee will be available ultimately in all the GPs. Besides, the State Government shall
take measures for capacity building of the engineers at all levels for
preparation/validation of building plans ensuring abundance of light and air and other
eco-friendly features. This apart, a new provision has already been introduced to
encourage construction of structure for rain water harvesting on the roof of a building.
The technical officers concerned shall be given training on construction of such
structures.
Marketing and other facilities for Promotion of Economic Activities
There should also be adequate marketing facilities for selling local products as well as for buying
the commodities ordinarily required by the citizen within reach of all the habitations.
With gradual transition of the economic activities from the primary to secondary and
tertiary sector activities and keeping in mind the intense pressure on land in the State, the
Panchayats will be responsible for creating infrastructure for taking up non-farm
economic activities including activities in the service sectors. Each GP will be required to
promote one marketing centre cum business hub for meeting their local needs unless
bigger centres adequately catering to such needs are promoted by the PS or the ZP within
its area. Planning and implementation of development of larger marketing centres for
taking up wider range of economic activities will be the responsibilities of the PS and the
ZP depending on the complexity and size of the same. The State Government shall
encourage the Panchayats to take up such programme on application of available untied
fund and/or own source fund as a supplement to the agricultural markets built up or
proposed to be built up under the sponsorship of the Department of Agricultural
Marketing. This department shall also be requested by the PRDD to maintain close
liaison between these two streams of initiatives.
Issuing Trade Registration Certificates and Licenses
47
The GP has the authority to issue trade registration certificate for carrying out any business
within its jurisdiction. The GP will ensure prompt services for obtaining such certificates
against prescribed fees and renewal of the same. Similarly, the Panchayat Samiti is
empowered to issue license for running certain offensive and dangerous trade and realise
license fee therefor. The State Government has issued notifications enlisting offensive
and dangerous trades and the maximum rates of license fees and renewal fees that may be
realised. Maximum rates that may be imposed as fees for issue of Trade Registration
certificate for different trades, have been laid down in item No. 6 of the Table for fees,
rates and tolls to be levied by a Gram Panchayat under section 47, annexed in terms of
rule 58 of the West Bengal Panchayat (Gram Panchayat Administration) Rules, 2004.
Again, in terms of section 116 of the West Bengal Panchayat Act, 1973 as subsequently
amended, the State Government has issued notification No. 4236/PN/O/I/1T-1/04 dated
21.12.2004 declaring 28 types of trades and business as offensive and dangerous and
another notification No. 1272/PN/O/I/1T/04 dated 28.03.2005 specifying the maximum
rates that may be levied by the Panchayat Samiti for running such trades.
The objective behind empowerment of the Panchayats for issue of such certificates/licenses is
not limited to augmentation of their resources. It is expected that the Panchayats will take
initiatives for providing required services through the network of trades and businesses in
the locality, ensure environmental sanitation and eco-friendly ambience, prevent unlawful
business in the area and keep tab on trades and businesses within the area. The State
Government proposes to amend the related legal provision under which GP may limit
scope of trade in a particular commodity on the ground that the local market is saturated
or may advice trade in a specified commodity which appears to be scarcely available in
the area.
Special Requirements of the Urbanised Gram Panchayats
Some of the GPs of the State are experiencing more rapid urbanization. 2001 census has
identified 282 census towns and out-growths, which are located within Gram Panchayats.
Because of higher density of population in those areas there will be more need for
improving certain types of civic services like solid waste management, drainage, street
lighting etc and the GPs should be more equipped in assessing building plans before
passing the same. Many of those GPs come under some of the authorities formed under
the Town and Country Planning Act and there is need for convergence and harmony of
plans taken up under the said Act as well as the plans of the local bodies. A special
initiative will be taken to build capacities of those GPs to improve the quality of lives of
the people living in those areas. In order to identify the target areas and to prepare a blue-
print of action, PRDD shall take up a study by an expert team.
Management of Disaster
48
Proper management of disaster depends a lot on preparedness and many of those activities are to
be taken up at the community level and at the levels of the local governments with due
support of the State Government. All preparatory steps that can be taken up locally may
be taken up by the GP and the PS for which separate devolution is not necessary. The real
constraint is developing capacities of the local bodies and the community, who invariably
face the first onslaught of any disaster before external helps can reach the affected areas.
Steps will be taken by the state government for building up such capacities in all the GPs
with emphasis on areas which are more prone to certain types of disaster like cyclone,
flood etc. The State Government has already issued orders for involvement of the
Panchayats in identifying beneficiaries in providing relief to persons in post disaster
situations. Panchayats of the State has successfully handled such situations in the past and
further capacity building of the Panchayats will include both better preparedness for
minimizing loss of human life and property by taking preemptive measures and imparting
management skills for tackling such situation with total involvement of the community
for early restoration of normalcy.
DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC

DEVELOPMENT AND SOCIAL JUSTICE
Introduction
It is very difficult to distinguish between what are the essential responsibilities of the nature of
core services and what are the other responsibilities of the Panchayats for economic
development and social justice as laid down in article 243G of the Constitution [inserted
by the Constitution (Seventy-third Amendment) Act, 1992 coming into force with effect
from April 24, 1993]. The line of demarcation in this respect is in many segments very
thin or blurred. However, the previous chapter broadly describes mostly those civic
functions which are essential for all those living in their jurisdiction irrespective of their
social and economic position for living in a society. The present chapter describes more
of those activities which are to promote economic development of the poorer sections and
social justice. Through recent amendment of section 19 of the W.B. Panchayat Act many
of those activities have been mentioned as obligatory duties of the Panchayats. Most of
those are of developmental nature for promotion of economy and social equity and,
therefore, has been mentioned here.
Land Reforms
49
The State Government has been already entrusted with the responsibility of identifying
beneficiaries of land reforms on the Panchayat Samiti. While the same responsibility will
continue, the Panchayats will be more associated with improving land of the beneficiaries
of land reform so as to improve their productivity and helping those beneficiaries for
accessing other inputs like irrigation water, fertilizer and bank credit etc. Irrigation
facilities are extended by the Panchayats by taking up surface water schemes out of
employment generation programmes and the same will be intensified and in other cases
the Panchayats will mediate with the banks for acquiring pump sets or getting other credit
related inputs. Those beneficiaries will also be assisted for producing bio-fertilisers for
improving productivity. Land of assignees of vested land, if not fit for cultivation or not
so productive will be improved using fund available from NREGA or other programmes
so as to improve the productivity and asset value of the land. In addition to such
programme related fund, the State Government encourages the Panchayats to apply
untied fund and own source revenue for this purpose. The State Government shall also
open dialogues with the Bankers’ forum to provide credit to such persons without being
too fussy about the security provision. The State Government shall also advice the
Panchayats to motivate the small and marginal farmers on this issue.
Better management of Natural Resources and Improved Land Use
50
Agriculture and allied sector – Sustainable development and management of natural resources
like land and water is essential for providing livelihood to large numbers of families
depending on such activities. The PRIs should be responsible for assessing the available
natural resources and how the same may be utilized for generating maximum economic
gains keeping in mind the need for generating as much employment as possible and
ensuring food availability. Although land belongs to private individuals and crop
planning is done in the private domain the Panchayats along with the State Government
will work for maximum utilization of available land resources for intensifying
agriculture. The role of the Panchayat will be to provide supporting infrastructure to
ensure optimum and sustainable utilisation of land and water. The same will include land
reclamation utilizing fund from various employment generation programmes so that
every plot of land excluding the water bodies are either covered with crop or if the land is
not suitable for cropping the same should have tree cover. Degraded land is generally
owned by the poorer sections having no means to improve the same and Panchayats will
be responsible for improving all such land to at least have tree covers using fund
available for employment generation or under various watershed development
programmes. Land which can bear crop should be cultivated at least twice for which the
Panchayats will play a stewardship role to utilize the available State extension
machineries and programmes as well as will also work concurrently for improving
cropping intensity and diversification of crop for better return and sustainability. The
officials of the line departments will provide necessary assistance for this purpose and the
Panchayats, particularly the GPs will be allowed to develop para-professionals within its
areas for utilizing their services. Arrangement shall be made with the intervention of the
ZP or if necessary, of the PRDD to impart training to such para-professionals by the
agronomists and other experts of the Agriculture Department. Such training module shall
focus on regional variation as regional needs and opportunities. In order to improve the
cropping intensity the PRIs will work for providing micro and minor irrigation and will
also mediate with the State extension machinery for improving agronomic practices for
improving yield. In order to introduce new crops or improving cropping intensity the
Panchayats of all the three tiers will be at liberty to act concurrently with the State
Government for providing mini-kits to the poor farmers. They will assess the crop yield
every year and work for increase in total production and economic returns of the farmers.
Farmer’s perception and satisfaction are the ultimate measures for the crop yield and the
result of improved practices on crop yield. In addition to the result of sample-based crop
cutting method usually adopted by the Agriculture Department, the GP shall be
encouraged by the PRDD to gather farmers’ views on crop yield and rate of increase of
crop yield and compare these figures for future actions. Some of the activities, for which
the Panchayats have required competence, will be taken up directly by those bodies and
in respect of other interventions requiring more resources or technical expertise they will
mediate with the State machineries for achieving desirable goals. Some funds are
available from the Agriculture Department of the State Government for implementation
of various programmes. GP and other higher tier Panchayats shall see that such funds are
properly and productively utilized. Besides, untied fund may be utilized as additive to
such programmes where necessary. PRDD shall also see that the experts of the
Agriculture Department and the Water Investigation and Development Department
provide technical inputs to these farmers. They will have the liberty to introduce new
51
crops, with the support of the state extension machinery for higher economic returns
keeping in mind that such diversification does not affect the need for cereal consumption
of the area. The PRIs will similarly promote activities related to horticulture, sericulture
and cultivation of different commercial crops.
Promotion of agro-forestry and social-forestry – Those activities have been already devolved
on the Panchayats for taking up plantation in all possible areas excepting those which are
declared forests. Every GP will prepare nurseries of their own with the help of the local
SHGs and take up plantation of only those species which are preferred by the community.
The GPs will study the area to find out which land is unfit for cropping and irrespective
of its ownership will either direct plant trees or assist the owner if they belong to the
SC/ST families or are land reform beneficiaries for planting trees. The other owners will
also be motivated for improving tree cover for meeting the bio-mass need of the area.
Promotion of horticulture and other species will be taken up for generation of further
economic activities using the planted trees and the Panchayats will also develop their
own assets in terms of plantation of valuable trees for generation of income on a
sustainable basis. There will be a few cases where absentee landlords may not take any
initiative in this respect. In such cases, GP shall act as a catalyst to motivate the
landowner to allow a group of local persons like SHG to utilize the land either for raising
crops or for plantation under an agreement, leasehold or otherwise. If these initiatives
substantially fail, PRDD plans to approach the Land and Land Reforms Department of
this Government for a legislation to the effect that no landowner shall keep any portion of
his holding as fallow and if any plot of land remains fallow for one year, the GP shall
take possession of the land without any prejudice to the right of ownership and if such
land is utilized for raising crop or for plantation, the owner shall have no claim on the
accretion or its usufruct.
Development of Water-bodies and Promotion of Fishery – Water conservation by storing

surface water is an important activity which all tiers of Panchayats will carry out using
employment generation programmes. That will help growing at least two crops in the
command area of such water bodies, which will be actively promoted by providing mini-
kits to all poor farmers having land in the command area. There is an increasing trend of
SHGs taking lease of land for growing second crop and all such groups will be assisted to
grow second crop and augment their income. The water bodies will be also intensively
utilized for pisciculture. Those bodies owned by the Panchayats or for which Panchayats
will spend fund for excavation will be given on lease preferably to the SHGs or the
fisherman groups, for which enabling order has been already issued. Taking up composite
culture of fishery and duckery together on such water bodies will be promoted for
generation of more economic activities in their areas. The Panchayats at the intermediate
level and as and when necessary at the Zilla level will also mediate with the officials of
the Fishery Department for extension of technology and with banks for providing credit
to the producers for more production of fish.
52
Water and Soil Conservation Measures – The Panchayats have been entrusted with the
responsibility of taking up water and soil conservation measures out of various
programmes including wage employment programmes and the watershed development
programmes. This is in addition to what some of the Government departments like the
soil conservation wing of the State Government is doing. Technical supports for taking
such schemes are available at the level of the PS. In case of need for higher level
technical support the same will be provided by the DRDC of the Zilla Parishads as well
as the soil conservation wing of the Agricultural Department. The State Government will
be responsible for strengthening the technical capabilities of the Zilla Parishads through
the DRDC and the WBCADC for supervising and supporting all activities of the lower
tiers of the Panchayats in better conservation of soil and water within its area.
53
Promotion of Animal Husbandry – Animal husbandry and development of livestock is

extremely important for expanding the economic opportunities of the poorer section of
the community. Activity mapping for this sector provides the responsibility of selecting
beneficiaries in various government schemes and getting associated with the effort of the
government for better extension of improved practices as well as taking other promotive
measures. One Livestock Development Assistant has already been placed with the GPs
for better integration of the activities of the State with those of the Panchayats. A team of
para-professionals, known as “Prani-bandhu”, who are identified by the GPs have also
been developed to provide services to the community against payment. They remain
tagged with the GP and provide useful support in the field of animal husbandry. In
addition to getting associated with the effort of the State the Panchayats are promoting
activities in this sector with its own fund as well as fund received from poverty
alleviation programmes and they receive support from the field officials of the Animal
Resource Development Department, who works as officers of the Panchayats in their ex-
officio capacities. Providing inputs for animal husbandry like chicks, ducklings, kids and
piglets etc out of own fund of the Panchayats to the poor families and particularly the
members of the SHGs have been found to be very useful for augmenting income.
Capacities of the Panchayats will be augmented for intensifying those works as well as
increasing the supply of inputs within its area by promoting breeding and hatching
activities in consonance with the provisions under clause (i1) of section 21 of the State
Panchayat Act entrusting the responsibility of the GP relating to dairying and poultry.
They are also associated with development of infrastructure and providing skill training
for promotion of both breeding and rearing activities. The Panchayats will also organize
the producers for having better bargaining power in negotiating for buying inputs and
selling products and the Panchayats will also mediate with the large producers for linking
the small producers, particularly the SHGs with such larger organizations for better price
realizations and marketing support. Upgrading of marketing skill is a prime need for
success of this programme. It is not possible for an SHG to organize a marketing channel
except for a limited marketing arrangement in local area. In order to streamline this
activity, SHGs are encouraged to join together and form Clusters. Such Clusters are again
grouped into Federations. An effort is also in the offing to constitute a society under the
Societies Registration Act that will, inter alia, help in the marketing of SHG products.
Larger organizations of Federations shall also take initiatives in marketing of products.
PRDD is taking initiatives to improve the marketing skill of larger organisations with the
help of Government Departments, NGOs and corporate bodies. There are veterinary
dispensaries for improvement of animal health and day-to-day running and maintenance
of those dispensaries will be handed over to the appropriate tiers of the Panchayats.
Service of LDA should be placed with the Gram Panchayat. Running and maintenance of
veterinary dispensaries may be made the responsibility of the Panchayat Samitis when
Veterinary Surgeon and higher level technical officers should continue to render
technical support. Block Livestock Development Officer and VS should also have closer
ties with the Panchayat Samiti for which they may be given a Panchayat related
designation. Similarly, the district level officers may be linked with the Zilla Parishad.
54
Restructuring the West Bengal Comprehensive Area Development Corporation – The West
Bengal Comprehensive Area Development Corporation (WBCADC) is a statutory body
under the Government of West Bengal. This organization came into being in 1974 for
taking up intensive activities mostly in the agriculture and allied sectors in the notified
project areas. The same was brought under the administrative control of the Panchayat &
Rural Development Department from February 2004 with the intention to make them
work in close association with the Zilla Parishads and provide support in those fields. The
Corporation has 21 notified Projects, which are located throughout the districts of West
Bengal and all agro-climatic zones of the State are covered by the Projects. The State
Government will restructure the WBCADC so that instead of taking up developmental
activities in certain notified locations the project units function under the overall control
and guidance of the Zilla Parishads and become the technical support organizations of the
Zilla Parishads in promoting livelihood in the agriculture and allied sectors. The
WBCADC also produce seeds of various crops and other inputs like horticulture saplings,
fingerling for fish, chicks, piglets etc. The WBCADC will work as per directions of the
Zilla Parishads for supplying inputs as per their requirement and will also provide
extension support for introduction of new crops or adoption of new technology. The Zilla
Parishads will also invest on the available infrastructure of the WBCADC for augmenting
their production capacities and will engage experts to work for that organization for
which fund will be provided by the state government to the Zilla Parishads.
Promotion of Livelihood Opportunities in Non-Farm Sectors
The Panchayats will also work for expansion of livelihood opportunities in the secondary and
tertiary sectors by developing appropriate infrastructure, arranging skill training for the
people, particularly those from the poorer and weaker sections of the community. They
will also mediate with the financial institutions for providing better access to credit for
deployment of the same in production of goods and services. Under Article 243G of the
Constitution of India as also under section 19 of the State Panchayat Act, GP is
empowered to take measures for economic development of the people of its area. GP
may, therefore, carry out programmes for such economic development. In such cases,
however, GP will essentially act as a facilitator and extend handholding support to the
needy persons. All those activities are normally done by the State Government. However,
the nature of the activities are such that the Panchayats have no difficulty to promote
those activities within their areas with their own initiatives and resources as well as
mediating with the State machineries and other available institutions for better
implementation of their plans and programmes in those sectors.
55
Household and Other Small Scale Industries – In addition to the efforts being made by the
State Government for promotion of small scale and household industries, with all
possible supports of the Panchayats, the Zilla Parishads and the Panchayat Samitis are
permitted to develop infrastructure for promotion of those activities. Some of those are
taken up as part of implementing various schemes, which have been assigned to the
Panchayats. They are also allowed to buy land and develop infrastructure, arrange skill
training and mediate with banks for credit support. Some of those activities are linked to
the self-employment programme, implementation of which has been assigned to the
Panchayats. On certain occasions, GP plays the role of advocacy. In addition to that the
Panchayats are permitted to hire experts, draw up special plans either out of its own fund
or fund from various programmes. Identification of key economic activities and
development of skill, common infrastructure including production infrastructure and
marketing supports will also be provided mostly through the District Rural Development
Cell (DRDC) of the Zilla Parishads. The role of the State Government will be to increase
the capacities of the DRDCs for extending support to the Zilla Parishads and creating
other enabling conditions for expansion of non-farm economic activities in all possible
sectors and in every possible geographical location. Land is a very scarce commodity and
the Panchayats are allowed to acquire land for these purpose. The procedure for acquiring
land by the Panchayats will be streamlined to allow those bodies to acquire land for
promotion of activities in non-farm sectors.
Promotion of Service Sectors – The service sector is fast growing and has the potential to
provide more employment. The benefit of expansion of service sectors has gone mostly
to the urban areas because of available infrastructure and other supporting facilities. The
Panchayats, particularly those located in peripheries of the urban areas will be assisted by
the State Government for development of conducive infrastructure for growth of service
sectors. Some of the services are expanding and have potential to grow fast even in
interior rural areas. As a part of planning exercise those will be identified for being
promoted by the Panchayat themselves or by the State Government on recommendations
of the Panchayats. Developing Infrastructure for Promotion of new economic activities
with larger employment potential like the IT and the ITES services will be an important
task of the Panchayat for which due assistance will be provided by the State Government.
Developments of rural markets have already been assigned to the Panchayats and those
bodies have also constructed several market complexes for private trades of the locality.
It will be the responsibility of the Panchayats to develop the markets and create more
space for conducting business by the local people. The viable proposals will be funded by
the State Government. That will also include establishment of Rural Business Hubs, in
collaboration with private owners, if suitable offer is available.
Alleviation of Poverty & Social Equity
56
Providing wage employment to the unskilled workers – All schemes for providing wage
employment under various poverty alleviation programmes have been the responsibilities
of the Panchayats of the state from the very beginning. This responsibility has reached a
new dimension with the introduction of the National Rural Employment Guarantee Act,
2005, which has been enforced in ten districts (seventeen from the financial year 2007-
08) of the State at present. The GP is the implementing agency for most of the schemes
and the PS are entrusted with implementation of larger schemes. Each GP will be
required to estimate the demand for unskilled wage employment and its seasonality with
active participation of the Gram Unnayan Samiti (GUS) and to meet the demand by
taking schemes which will boost the employment potential of the area. The PS and the ZP
will oversee the work and will ensure that demand for employment is met in respect of its
area and provide support to the lower tiers for achieving the objective. The ideal situation
will be that the economic activities of the area taken up in the private domain will provide
enough employment for all the persons so that there is no demand for employment from
the State. Before, the same is achieved, which may take a very long period, the GPs and
the other Panchayats bodies together should be able to plan and implement schemes for
meeting the demand for employment. There are areas where non-availability of land and
other constraints will not permit generation of so much employment for unskilled
labourers. In other areas the Panchayats should acquire the capability of providing 100
days wage to all the labourers, if there is demand for the same. There are certain areas
where even though the demand is generally perceived, the programme is not being
implemented at the desired level apparently because of some constraints. The State
Government is taking steps to collect information about such constraints, study them and
take necessary actions. The goal, as far as the Panchayats are concerned, is to be able to
provide employment to meet the demand and to simultaneously to build up employment
potential through better management of natural resources so that all the labourers
gradually get more number of days of employment per year from the economic activities
in the private domain or through self-employment leading to lower demand of
employment from the state.
In Howrah district the provisioning of wage employment by the Panchayats are not based on
demand but on supply of fund under the SGRY (Sampoorna Grameen Rojgar Yojana)
programme. In this district also the Panchayats will work for creating such assets so as to
allow increasing generation of man-days per year from the private economic activities
leading to reduction of poverty. In those districts the target will be to ensure that the
Panchayats are in a position to utilize cent percent of the fund allocated to them (which is
yet to be achieved because of various constraints) and to provide scope for employment
to the poorest people and the women for augmenting their income. Since the functions
have been fully delegated to the Panchayats the task is basically to increase the capacities
of the Panchayats for properly discharging their roles. The role of the State Government
will be to augment capacities of the Panchayats and to remove the constraint of not being
able to meet the demand for employment in districts covered under the NREGA and not
being able to fully utilize the available resources under the SGRY in respect of the other
district. The same will entail higher efficiency in planning and making the plan more
useful to the wage earners for augmenting the opportunity for getting wage employment
within their areas.
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Implementation of area development programmes – The Panchayats have been fully

entrusted with the implementation of the watershed development programmes under the
centrally sponsored Hariyali schemes as well as other watershed development
programmes. In this case also the major constraint is that of inadequate capacities and the
Roadmap will be to gradually develop capacities at all the three tiers for proper
implementation of the watershed development programmes. Major focus of such schemes
will be those Blocks covered under the DPAP and other blocks facing land degradation.
Self Help Groups and Self Employment – Alleviation of poverty, through simultaneous
improvement of all its dimensions, is a paramount goal of the State as well as of the
Panchayats. Organising the poor in Self-Help Groups (SHGs) and empowering them to
be the prime mover for their own development by drawing support from the Government
as well as the Non-Government organisations, rather than imposing programmes on
them, is emerging as the key strategy for alleviation of poverty. The role of the
Panchayats in this context becomes primarily to facilitate the process and to ensure
convergence of all the interventions at the community level through the SHGs. The GP,
being closest to the community can play the most important role in development of SHGs
with members drawn from the poor families and ensure that all the desired services and
various other government interventions reach those families through those groups.
Regular savings, even at a very small scale and pulling their resources for meeting small
credit needs has played a vital role in bonding the members and gaining confidence in
extending their group effort in tackling other areas of deprivations. Micro-finance has
been thus found to be an extremely important entry point activity for organising the poor
and harnessing their power to fight together to overcome deprivation, discrimination and
vulnerability. The other common experience has been that the poor women have come
forward in large numbers to get organised in groups and breaking new grounds in social
and economic development of their members through group efforts. Experience over last
decade or so, has proved that if allowed to blossom, the organisations of SHG and micro-
finance can devise own financial products matched to the felt needs of the poor and
manage delivery of those products efficiently. However, maturity of the initiatives still
broadly depends on creating favourable socio-political and economic environment with
necessary legal and administrative structure as well as strong facilitation by dedicated
experts. Desired change in socio-political scenario will obviously be slow and requiring
changes in the mind-set of major players – individuals and institutions – in the field.
However, since the State Government has owned this process, such change shall take
place albeit gradually. Pro-poor attitude is also not overly discernable in every field of
activity. Such attitude is also necessary to be built up. The SHGs of the poor, apart from
playing the most crucial roles of ensuring benefit to their members may also influence the
local governments to remain pro-poor for maximising benefit to the most deprived
section of the community, which has been already mentioned in chapter II.
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In the backdrop of the above the goal set by the Government of West Bengal is to cover all the
poor families, by bringing at least one member from such families, particularly the
women under Self-Help Groups. There are around four lakh such groups and there is
need for forming three lakh more groups, which may be possible by the year 2010. The
role of the Gram Panchayats will be to organize the groups within their areas and to
nurture and monitor them for meeting their economic and social needs and ensuring
convergence of their plans and progrmmes with the needs and aspiration of the group
members. The Roadmap in this regard will be the following:
(1) Each GP will have a team of trained persons for nurturing and monitoring the
SHGs formed under its jurisdiction. For that purpose a GP SHG management Team
(GSMT) is being formed in each GP comprising of elected members, group
members, officials and members of NGOs and civil society for assisting the GP in
accomplishing the task. GSMT shall guide and advice the GP to build up a support
system for the SHGs to foster their social and economic activities. The same will
be completed by the current year but the task for increasing their capacity will
remain to be addressed over the next few years.
(2) Each GP monitors the progress of the SHGs within its area once a month and plan
interventions at their levels for generation of income and pursuing other goals of
the SHGs as well as mediate their other needs, which cannot be addressed by the
GPs, with the higher tiers of Panchayats, banks, DRDC etc.
(3) All the SHGs within the GP are formed in to one clusters (with sub-clusters if
necessary at the Gram Sansad level) and provided infrastructural support for their
functioning. Such clusters will provide a common platform for the SHGs where
they may share experiences, compare problem issues and decide joint course of
action on common issues.
(4) All the three tiers of Panchayats spend out of their untied fund through their
Standing Committees on Women & Children for promotion of the interest of the
SHGs for augmentation of their income as well as expansion of other social
opportunities. The most important component will be providing non-credit inputs
to the group members for pursuing various economic activities. The experience of
the State has been very good in providing inputs like seeds, chicks, kids, piglets to
the group members for unleashing the productive forces of the members of the
SHGs by utilizing their manual labour as also their aptitudes and experiences. The
process needs convergence of extension support and other help for realizing the full
potential for such intervention.
(5) The above will include development of production infrastructure like working
sheds etc at the village level to meet the demand of all the SHGs, imparting
appropriate skills and providing possible marketing support to all the groups. The
same will be coordinated by the DRDCs of the ZPs with the support of the
Panchayat Samitis. This will also require development of dedicated centres for
promotion of livelihoods, which will be developed appropriately by the State
Government in collaboration with the Zilla Parishads.
(6) Every SHG will have access to credit through either cash credit account or scheme-
based lending for earning enough money to come out of poverty.
All such responsibilities have been already devolved on the Panchayats and the Roadmap
boils down to augmenting capacities of the Panchayats in all the three tiers for achieving
59
the objectives as stated above and as fast as possible. This will also require intense
orientation of the Panchayat members for changing their mindset in not spending the bulk
of the available fund in roads and other construction activities and rather utilizing the
untied fund for directly addressing poverty through SHGs. All the activities mentioned
above will promote primarily non-farm activities including household and cottage
industries and will have impact in the society so as to reduce the demand for wage
employment.
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Reduction of poverty and providing other support to the BPL families – Steps like Land
Reforms, better use of natural resources in a sustainable way, providing wage
employment and augmenting self-employment through organizing the poor and
promotion of non-farm activities, as narrated before, will be the main interventions for
alleviating rural poverty. At the same time the existing BPL families need to be identified
and benefits of various schemes are to be focused on such families. Maintaining a proper
BPL list and updating the same is a real challenge at the field level. The list is being
prepared based on certain objectively verifiable indicators and after the list is finalized
the same will be shared with the Panchayats. The Panchayat Samiti will be responsible
for maintaining the list. All the GPs should have the capacity of consulting the list,
preferably by using computer for ensuring proper selection of beneficiaries and
distribution of benefits equitably among the poor. Since computerization of accounts of
all GPs has been targeted to be completed by March 2010, there will be no difficulty to
load the BPL data in the system by a gradual process within the same time. Although the
responsibility of selecting beneficiaries rest with the Gram Sansads but existence of a
easily retrievable BPL list showing all the attributes of the family will help better
selection and focused intervention for bringing those families out of poverty. The goal
will be that the GPs ensure wider dissemination of information and consultation of the
people for updating the list every year and helping the Gram Sansads to identify new
beneficiaries out of the BPL list based on objective criteria and providing access to all the
information to the common people for better transparency in decision making.
Orientation of the people and the Panchayat members at large will improve to eliminate
all bias and will keep following objective norms, which will be the goal to be achieved as
soon as possible.
Measures for Social Security
Food Security and the PDS – There are a few Government programmes like the Antyoday
Anna Yojana (AAY), Annapurna Yojana (AY) and the Targeted Public Distribution
System. The Panchayats have been devolved the responsibility of identifying
beneficiaries and keeping a watch so that the benefits reach the selected beneficiaries.
The target is to ensure selection of beneficiaries without loss of time and to install an
effective system of monitoring so that the desired benefits reach the people. The
Panchayat Samiti and the Zilla Parishad shall intervene with necessary assistance from
the officers of the Food and Supplies Department as also other officers having
supervisory role if the delivery system malfunctions at any stage. The achievement in this
respect will be essentially mentioned in the Annual Report of the GP and reading out the
same in meetings of the Gram Sansads for wider knowledge. The list of new beneficiaries
will be painted in the walls of the GP office for information of the community.
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Social Security Measures – There are a large number of pension schemes for which the
beneficiaries are selected by the GPs and most of the schemes are administered by the
Panchayats. The State Government plans to devolve administration of the remaining
schemes to the Panchayats. These schemes are (i) Old Age Pension Schemes for poor
people attaining 60 years of age, (ii) Widow Pension Scheme for deserving widows
residing for at least 10 years within this State, (iii) Disability Pension Scheme for persons
afflicted by more than 40 per cent of disability, all three schemes presently being
administered by the Department of Women & Child Development and Social Welfare of
the State Government, (iv) Fishermen Old Age Pension Scheme for old fishermen
attaining 60 years of age administered by the Fisheries Department, (v) Farmers’ Old Age
Pension Scheme for poor old farmers attaining 60 years of age administered by the
Agriculture Department, (vi) Artisans’ Old Age Pension Scheme for deserving old
artisans administered by the Cottage & Small Scale Industries Department and (vii)
Tribals’ Old Age Pension Scheme for poor tribal people attaining 60 years of age
administered by the Backward Classes Welfare Department. All these schemes are at
present implemented by the respective administrative departments. On devolution of the
administration of all such schemes to the Panchayat bodies, the State Government will
take necessary measures for reaching fund directly to the tier responsible for making
payment. The largest scheme is that the National Old Age Pension Scheme (NOAPS),
which is administered by the GPs. Fund is transferred directly to the accounts of the GPs
from the State through the state bank of India instead of the earlier practice of funneling
the fund through the district machinery for saving time and order has also been passed for
allowing the GPs to make payment of pension directly to the existing beneficiaries out of
their own revenue, in case there is delay in getting fund transferred to their account by the
Government. In fact the GPs have been authorized and are being encouraged to make
such payment out of their own fund at the beginning of every month as a welfare
measure. The initiative has just been started and the goal will be to ensure that every
pensioner is paid pension by the Panchayat body, which administers the scheme,
temporarily out of their own fund and to transfer the remaining schemes to the
appropriate tier of the Panchayat. The Roadmap in respect of this will be that each GP
becomes capable of paying the pension out of their own fund and get that amount
recouped on receiving fund from the State Government.
Provident Fund for Landless Agricultural Labourers and Unorganised Workers – The
State Government has introduced two schemes for provident fund – one for the land less
agricultural labourers and the other for the unorganized labour in non-agricultural sectors.
The administration of the schemes is done through the Panchayats. There is need for
improving the quality of services in respect the two schemes and each GP will be
required to provide the basic services for collection of monthly subscriptions, maintaining
accounts and returning the matured amounts or extending the benefit on the event of
death of the participating members. The target in respect of this activity is acquiring more
capacity and computerizing the entire data-base for more efficient management of the
programmes. This is being proposed to be achieved within the year 2010. Apart from
computerization of database by 2010, the State Government shall think of augmentation
of staff strength if coverage of these programmes extends beyond the expected level.
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Implementation of the National Family Benefit Scheme (NFBS) – The scheme is to provide
one-time assistance of Rs 10,000 only to the family members of any deceased person
who was living below the poverty line and was the main earner of the family and the
same is administered by the Panchayats of the State. Applications from eligible
beneficiaries are received by the GPs and based on their reports the same are sanctioned
by the Sub Divisional Officers. In this case also there are weakness in implementation
and it is apprehended that such benefit do not reach all the potential beneficiaries because
of lack of knowledge about the scheme or poor delivery system. The target will be to
cover each and every eligible family under the scheme and to reach the benefit within a
month of receiving application by the GPs. The State Government’s role will be to
establish a quick fund transfer mechanism and streamlining the procedure while the
Panchayats will be responsible for generation of awareness about the scheme and to
quickly process all such applications for reaching benefit within a month as stated above.
The State Government shall also consider giving wider publicity to this scheme through
electronic and other media. A discussion at every Gram Sansad meeting of this scheme
and other social benefit schemes shall also resorted to. On the other hand, the concerned
officials shall be alerted by the PRDD to avoid delay in settlement of these claims.
Planning from Below for Economic Development and Social Justice
63
All the activities narrated in the earlier chapters require a planned approach and the target groups
of people are required to participate in preparation and implementation of the plans for
maximizing their gain. Under Article 243G of the Constitution of India all the three tiers
of Panchayats will prepare plans for their areas. Such plans should be prepared based on
the available resources, not only financial to be received from the Government and own
revenue mobilized by the Panchayat but also all the available physical and natural
resources and the human resources. The State Government has conducted various
experiments on planning from below by the Panchayat bodies in selected areas and a
simplified procedure for preparation of people-centred and participatory plan has been
evolved in terms of its format for data collection and analysis in respect of six identified
sectors. The process has been standardized by taking up a pilot exercise of preparing
plans for six GPs of the State in five different districts during the year 2004-05. PRA
exercise for mapping of natural and social resources are taken up by the people of each
Gram Sansad for identifying their needs and priorities and planning for what is possible
within their existing resources and identifying those which are to be taken from above the
levels of GP, to be incorporated in the plans of the PS and the ZP. The concept is that the
GP plan shall be collated and integrated with the PS plan which shall again be collated
and integrated with the ZP plan so that all such plans shall have a converging effect on
the entire development process for improving the quality of life of the people. Those will
also be utilized for preparation of the District Plan as envisaged in the Constitution. The
experience shows that it requires tremendous amount of sustained facilitation by
dedicated experts for being able to prepare GP plans. The external facilitation also leads
to acquisition of local capacities for replicating such exercises in future. Such plans are
being prepared for 304 GPs of the State belonging to the poorest six districts in the
current year. In other districts plans are prepared by the GPs and other tiers, which are
mostly to cater to the need of the various programmes. Even those plans are not prepared
on time resulting in inefficiencies. The need for preparation of holistic plans starting from
the bottom level of governance has become urgent in the wake of the approach for plan
preparation under the Eleventh Plan and introduction of the Backward Region Grant
Fund (BRGF) for selected districts. The Development and Planning Department of this
Government has also issued a circular to all the departments for preparation of plan
showing a district sector component for implementation by the Panchayats and the
Municipalities. It has also required integration of plans of three different tires of
Panchayats. At the same time the experience shows that it is extremely difficult to take up
such planning without development of adequate local capacities for there is need for
sustained facilitation which is time consuming. The target will be to bring all the
Panchayat bodies of the six most backward districts to take holistic planning by the year
2006-07 and to cover all the other five districts, which are to be covered under the BRGF
(out of eleven districts to be covered under the BRGF six most backward districts are
already included), within the year 2007-08. The other districts have more capacities to
adopt the procedure in a simplified way to take up village level planning exercise and
will be provided facilitation from the State level experts so that those districts also adopt
detail planning procedures from the year 2007-08. However, facilitation has to continue
over a longer period for improving the quality of plans and adopting various good
practices to be collected from across the State for dissemination to all concerned. The
role of the state government will be to build up capacities at all levels of Panchayats
64
through training, handholding, showing good practices and exposure visits etc. It also
proposes to make some procedural changes and changes in the timeframe to facilitate the
process. It may also provide additional manpower as may be necessary. The State
Government hopes to reach the desired level of performance at all tiers by 2010-11.
Developing Panchayat-Private Partnership
Some of the services that are required to be delivered may be better delivered in partnership with
private organizations. The functioning of the RSMs, described before, is an example of
such partnership. The Panchayats will be encouraged to enter in to such partnership in
respect of delivery of services on a commercial basis. The principle of social marketing
will be followed in all such cases where the price realization from the people will be
decided in consultation with the Panchayats and they will also be engaged in monitoring
quality of the services and its access by all concerned. It is neither possible nor desirable
to prepare an exhaustive list of areas of such partnership. However, such partnership may
be for collection of tolls, pisciculture invested tanks, construction of public toilet system,
processing and marketing of milk and poultry products produced locally etc. If the system
develops to some extent, the State Government may have to initiate legislative process to
empower the Panchayat in this respect.
AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT
Introduction
The Panchayats have a poor resource base in terms of their own source revenue (OSR). At the
same time those bodies are unable to utilize the entire potential of collection of OSR
because of many factors. What the Panchayats spend is too little to make a substantial
impact on the economic and social life of the people within a reasonable period indicating
that they should have more resources under their command and at the same time the
Panchayats are unable to fully utilize the resources available with them. Therefore,
several measures are to be taken for both augmenting availability of fund with the
panchayats including OSR of the Panchayats and at the same time there is need for
tremendous augmentation of capacities of Panchayats and putting several systems in
place for effective and faster utilization of available resources and maintaining
transparency and financial accountability of a high standard. The present chapter
describes the current initiatives and steps to be taken for realizing the broad objectives
related to both augmentation of OSR as well as proper management and utilization of
fund.
Current Status of Mobilisation of OSR
65
Collection of own resources by the PRI remained a rather neglected area till a few years ago.
Regular monitoring of collection of resources and taking measures for its improvement
has resulted in growth of OSR at all tiers. Only the GP has the power to collect tax from
building etc. Other sources of revenue of all the tiers are through various fees and rates in
exchange of registering license and also for providing other services. All the tiers also
collect non-tax revenue through various commercial activities. In spite of these initiatives
per capita OSR of all the three tiers during the year 2005-06 was merely Rs. 12.61
compared to Rs 11.11 in 2004-05. The GPs, PSs and ZPs of West Bengal were able to
witness a growth of 83%, 131% and 35% respectively in OSR in 2005-06 compared to
the same in 2002-03. A sincere effort for improving the tax collection has been initiated.
The assessment of property tax by the GPs was not very transparent and scientific so far
because the assessment procedure requires huge collection of data of property of
individual tax assessee. The GPs had hardly any capacity to collect and handle the huge
data base and to assess property tax properly. In the year 2006, the West Bengal
Panchayat (Gram Panchayat Administration) Rule, 2004 has been amended. This
amendment provided one way out of this administrative problem. Under this new rule,
every assessee will be asked to submit one self-declaration of properties and market
values of these properties under his/her control. It has been noticed that adoption of self
declaration of valuation of properties for property tax assessment could bring some
success in the property tax collection for some municipal corporations during 1996-97.
Introduction of self-declaration may help the GPs of West Bengal to take a leap towards
adoption of a scientific tax assessment approach. The State Government is for some time
motivating the GP for the prime need for augmenting its resources. It is also being
impressed that if the people find that the tax realised is mostly applied for various
development programmes, they will also be motivated to pay tax. Impact of the aforesaid
amendment is most likely to have a salutary effect.
Though under Section 223 of the West Bengal Panchayat Act 1973, it is mandatory for every
Gram Panchayat, Panchayat Samiti and Zilla Parishad to adopt a bye-law for
enhancement of resources, yet most of the PRIs did not prepare and adopt any bye-law.
In the year 2003, model bye laws were prepared by the Panchayat and RD Department
and the PRIs were motivated to frame their own bye laws. The bye-laws cover basically
the non-tax sources of revenue mobilization. Previously there was no provision in the
rules for assessment of non-tax revenue. The amendment of the West Bengal Panchayat
Act in 2006 has introduced the system of assessment for non-tax sources as well.
Meanwhile, in order that full revenue potential of the Panchayats are realized a list of
assets of all the Panchayats are being compiled. The task is expected to be completed by
end of this financial year (2006-07). This will help to develop the resource base of PRIs.
The task of filling up of both tax and non-tax assessment list will help to assess the
revenue base of the GPs in the days to come. Likewise the GPs, the Panchayat Samitis
and Zilla Parishads are to be advised to prepare a proper and scientific assessment
document for resource augmentation in near future.
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Improving Collection of OSR
This process of preparation of a proper and scientific assessment list requires time, attention and
will of PRI members. It has been stated earlier that resource mobilization was never a
significant area of attention to the PRI members. Most important step taken for improving
OSR is orientation of the members on the need for augmenting OSR and constant
monitoring on the performance. The same will be taken up in the right earnest.
Continuous reminders through orientation camps at district level with PRI members and
officials, campaign through radio programmes, orientation through Lokashiksha Sanchar
[satellite based Training and Development Communication Channel (TDCC)] are some
of the ways to orient PR functionaries. More involvement of the GUS in preparation of
assessment list has been advocated in the amended rule.
The next important aspect of resource mobilization is collection revenue for all tiers. The GP
faces the highest problem in collection of tax. People, generally feel reluctant to pay tax.
Some success stories in this regard suggest that people feel at ease to pay tax when the
payer can relate paid tax with justified spending out of this fund. This idea is percolated
to GPs for adoption. The State Government will also facilitate adoption of measures for
higher collection of non-tax revenue by the GPs. The expenditures out of OSR are also
being tracked which reveals that the expenditure for development purpose is still not at
the required level. The amendment in 2006 lays down, inter alia, that a Gram Panchayat
should utilise at least 50 per cent of OSR collection for development work in the area.
This provision is bound to improve the existing scenario. More attention is needed to
track the expenditure data in higher tiers also.
An incentive scheme has also been launched to encourage collection of OSR. Twelfth Finance
Commission has recommended maintaining parity for release of grants with the resource
mobilised by the respective PRI. This has been able to enliven the attention of the PRIs
towards the need for resource mobilization. In the years to come, complete dissemination
of this information of incentive grant will help to change the mindset of the PRI
functionaries. It is expected that the OSR of GPs will increase at a compounded rate of at
least 20% and that of the other tiers will increase by at least 10% over the next five years.
Emphasis will be given on improving services being delivered by the Panchayats as well
as creating more income generating assets in the coming years for augmenting the
revenue base of the Panchayats. The District Panchayat & Rural Development Officers
(DPRDO) will monitor collection of OSR by different Panchayats more closely within
every district and will facilitate augmentation of OSR of all the Panchayats. A cell has
already started functioning as a part of the programme for Strengthening Rural
Decentralization to analyse all information related to resource mobilization and will
provide special initiatives in augmenting OSR, particularly in the poor performing
Panchayats.
Apart from these initiatives, some more new avenues of resource mobilization may be explored
such as collection of taxes on advertisement by the GP, for which provision has already
been made in the West Bengal Panchayat Act. The State Government in PRDD has
recently given certain suggestion to the Third State Finance Commission in this regard. It
is expected that the SFC will accommodate these suggestions in their recommendations.
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Improvement of Budgetary Control and Financial Management
Since many of the components of expenditure by the Panchayats are scheme based the practice
of proper budgetary control has not received enough attention rather observance of only
the scheme guidelines and maintaining scheme based fund utilization became the sole
criteria. However, when the fund is credited to a Panchayat any expenditure has to be
duly authorized by the competent authority and actual expenditure should be subject to
budgetary control. The target will be to ensure that each Standing Committee/Upa-Samiti
will exercise due budgetary control on expenditure related to its domain of activities and
appropriate management practices will be followed for proper financial management. In
order to achieve that there will be capacity building of all personnel associated with
financial management of the Panchayats. Such capacity building will involve
computerisation of all accounting and financial management related activities, putting
appropriate system for monitoring financial performance in place and organizing training
of all the functionaries for efficient functioning of the system. Norms and formats for
essential disclosure related to financial management of the Panchayats will be developed
for better accountability to the respective Sansads. The members of the Standing
Committee of Finance will be oriented for completing budgetary exercises on time,
ensuring better budgetary control on all expenditure and monitor financial performances
including utilization of fund and avoiding time and cost over run on a regular basis. The
State Government monitors the financial performances of all the ZPs every month and
the ZPs have been advised to take up similar monitoring for all the PS and the GPs within
their areas. Capacities of the ZPs will be appropriately augmented for undertaking that
task.
Improvement of Accounting Practices and Computerisation of Accounts
Better financial management demands better maintenance of accounts. New rule for maintaining
double entry system of accounts for the ZP and the PS has been already introduced and a
new accounts rule for the GP is going to be introduced during the year 2007-08. With
introduction of double entry accounting system it has become easier to track fund
received from different sources and to exercise necessary budgetary control. However,
the same can be done easily only when the accounts is computerized. In order to achieve
that accounts of all the ZPs have already been computerized. The same for the PS and the
GPs will be completed by the year 2007-08 and 2009-10 respectively. All employees
concerned will be trained on the related software, which have been already developed.
The posts of Block Informatics Officer (BIO) and the Data Entry operators (DEO) have
been created in each Panchayat Samiti and the same are being filled up. The work for
computerization of accounts of PS and GP will start in a big way from the year 2007-08
after those posts are filled up. The accounts software now deals with only accounting of
income and expenditure and a package on details of collection of OSR and related
process is being developed and the same will be integrated with the accounts software
from 2007-08. Norms for better control of finance by the Panchayats and sharing
information with all concerned will also be developed by the year 2007-08 for improved
transparency, accountability and efficiency.
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Specific capacity building initiative after the introduction of the West Bengal Panchayat (Gram
Panchayat Accounts, Audit and Budget) Rules, 2007 requires special mention here.
Under this new rule the books of accounts of the Gram Panchayats shall be maintained by
double entry system and the cash book of the Gram Panchayat shall be maintained in
double column basis. Besides, steps have been taken to maintain records of assessment
and collection of each type tax and non-tax revenue for continuous monitoring to ensure
maximization of resources. The whole system requires apart from the Cash Book,
maintenance of a number of books of accounts and other records. Procedure for
computerization of accounts has also been incorporated in the new set of rules. As this
introduces a massive change from the existing single entry – single column system, the
requisite capacity building of the GP office bearers and employees becomes a prime
intervention. Gram Unnayan Samiti is a newly-constituted platform for establishment of
closer linkage between the Gram Panchayat and the people. Gram Unnayan Samiti has
also been statutorily empowered to receive fund either from or through the Gram
Panchayat or by its own initiatives and spend it for development programmes of minor
scale. So, GUS requires a system of accounts and since GUS is run by a few non-
officials, the system is required to be as simple as possible. Such a system of accounts
maintenance has been developed and incorporated in the said rules. However, such
simple process also requires capacity building especially because of their background and
lack of exposure in maintenance of accounts. All such issues centering around capacity
building are being addressed in the following manner:
Capacity building of GP office bearers and employees on the new accounts rule,
Capacity building of GP employees on principles and techniques of double entry
accounting system,
Capacity building of GP office bearers and employees on GPMS software,
Capacity building of GP office bearers and employees on better utilization of fund
available to them and its management,
Capacity building of GUS functionaries on the GUS section of the new accounts rule.
As capacity building of all the GP and GUS functionaries is a mammoth task, it has been
planned to utilize three complementary approaches to complete the task. These are – (a)
Direct Classroom Training with question-answer sessions, (b) Training through TDCC
and (c) Hand-holding support to the select GPs. These capacity building programmes will
be supplemented by handbooks in vernacular written in simple and lucid language with
illustrations and a question-answer chapter. Such handbooks shall be widely distributed
among the Gram Panchayats and Gram Unnayan Samitis.
Internal Audit of Panchayat Accounts
69
Accounts of all the tiers of Panchayats are being audited at present by the Comptroller and
Auditor General of India. There is need for follow up on the audit reports for
improvement of the system. The same is lacking mainly because of large numbers of
vacancies in the cadre of the Panchayat Accounts and Audit Officer (PAAO), Samiti
Accounts and Audit Officer (SAAO) and the Parishad Accounts and Audit Officers. The
effort will be to fill up all the posts, for which necessary steps have been taken and to
train them up appropriately for accomplishing the task assigned on them. For monitoring
the whole arrangement the Panchayat & RD Directorate will be strengthened and an
Audit & Accounts Cell will be established for proper monitoring, follow up and training
of all personnel concerned on accounts and related matters of financial management with
the help of the SIPRD and the ETCs as well as other professional training institutes.
Since this is a continuous process, no timeframe is suggested in the Matrix. The State
Government however expects that the desired level shall be achieved by 2010-11.
Social Audit
If a reliable system of social audit is built up, it will have multi-dimensional salutary effects. It
will bring transparency in the management of fund and shall perforce improve the quality
of accounting system. It will also to a large extent, eliminate misutilisation or
underutilisation of fund. The system will also bring in its wake more meaningful
sensitisation of the common people, increase their awareness and will encourage their
closer participation in the development process. A system has already been built where
the Gram Panchayat will place the annual plan, budget, half-yearly and annual income
and expenditure statement and the audit reports and action-taken reports following
internal audit as also annual audit by the A.G., West Bengal, in the meeting of the Gram
Sansad and the Gram Sabha for scrutiny, debate and recommendation. All such
documents are widely circulated at draft as also final stage for information of the general
people. Besides, any person or organization may have access to all such records at any
stage for their examination. Production and discussion of all such documents are also
available to the members of the Block Sansad and the Zilla Sansad. The idea is to bring
the primary stake-holders in the arena so that they may evaluate the proposals/actions and
may contribute towards their enrichment. Measures will be taken for improvement of the
system so that more informed and meaningful participation of the people may be ensured.
Apart from the issues relating to accounting and fund management, quality of
implemented or ongoing programmes/schemes shall also be discussed in all such fora.
Efforts shall also be taken to enthuse the NGO’s and CBO’s operating in the area so that
they may contribute to dissemination of information and may enable the people to
contribute in the discussions.
Scrutiny of Panchayat Accounts by the Legislature
70
There was no formal arrangement for scrutiny of the accounts of the Panchayats by the State
legislature. Necessary change in the W.B. Panchayat Act has already been made very
recently for allowing formal scrutiny of the Accounts of the Panchayats based on the
report of the Comptroller & the Accountant General of India. That will improve the
accountability of the Panchayats as well as more scrutiny of Panchayat Accountants will
help in improvement of the system.
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Capacity Building for Better Management of Fund
The State Government will take measures to build capacities of the Panchayats for better
management of fund. That will entail both institutional measures for improving the
system of fund management as well as training of individual managing fund on behalf of
the Panchayats. One important aspect of better fund management is faster flow of fund
and related information. This has been already attempted by introducing a system of
direct fund transfer to respective accounts of the Panchayat bodies instead of routing the
same down the line through all the tiers. For that purpose all the Panchayats have opened
a fund transfer account with the SBI and funds are being transferred by passing
instruction to the SBI at Kolkata. The process of informing the Panchayats and obtaining
confirmation of receipt of fund is being improved both at the end of SBI as well as by the
State Government. For faster flow of information all the GPs will be provided with fax
machines, which will also help their reporting system.
FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES
Introduction
More devolution of functions and availability of more fund with the Panchayats are resulting in
growing demand for dedicated and capable manpower with those bodies. More work is
gravitating towards the lower tier and the GPs are facing more problem of capacity
mismatch. Creation of adequate posts will attenuate the problem but obtaining their
services in GPs located in remote and difficult areas has been a problem. Those with
higher capacities are reluctant to work in remote and underdeveloped areas, which
demands availability of adequate and capable manpower. Even outsourcing of such
manpower in difficult areas is a standing problem. The other alternative is to gradually
build up capacities of the existing manpower and those who are willing to work in lower
tiers. There is also need for introduction of better establishment related practices starting
from recruitment and framing related rules to proper administration of the available
manpower and maintaining their moral standards and efficiency for proper functioning of
the Panchayat bodies. The present chapter describes all those matters in terms of current
situations and what is to be achieved within suitable time frame.
Employees of the Panchayats
72
All the employees of the GP, excepting those who belong to group D cadre, now constitute
district level cadres of Panchayat employees. There are four such cadres comprising the
Executive Assistants, Secretaries, Nirman Sahayaks and the Assistants of the GP. This
has facilitated management including recruitment and deployment of those employees.
All the employees are appointed by the Executive Officer of the Zilla Parishad. Similar
arrangement has been made for the employees of the PS and they constitute different
cadres of Engineers, Accountants, Cashiers, BIOs, DEOs and clerical assistants. At the
ZP level several posts have been created recently and steps will be taken to form a state
level cadre for the very senior own employees of the ZPs. The modified system of
recruitment has been introduced recently. Recruitment to the newly created posts is going
on. After some time, a study will be made to assess further requirement of own
manpower of all the tiers of the Panchayats. The study will also identify areas where
better services can be provided by engaging para-professional on contract and to work
out proper arrangement between the service providers and the Panchayats. The
remuneration of such professionals will be either directly collected by the professional for
rendering services or the same will be partly or fully compensated by the Panchayats
against charges to be collected by them for providing services. At present services of
some of the government employees are utilized by the Panchayats though salary is paid
by respective departments. In some cases services are formally placed with the Panchayat
bodies by the Panchayat & RD Department and salary is paid by the Panchayats. The
W.B. Panchayat Act has been amended recently to allow other Government Departments
to place their employees with the Panchayats. The Roadmap will be to ensure that the
Panchayats at every level get the services of own employees, formally deputed
employees, government employees whose services have been placed for being used by
the Panchayats but salary continues to be given by the departments concerned as well as
professional service providers or trained para-professionals to bear the work load of the
Panchayat bodies. All such possible measures have been proposed to take care of the
diverse needs and keeping in mind the existing practices and difficulties on the ground.
However, the goal will be that the Panchayats have adequate functionaries to work for
them with reasonable accountability and not to merely augment the roll strength of the
own employees of the Panchayats.
The reorganized recruitment system as mentioned in the preceding paragraph has resulted in a
pronounced role of the district level Panchayat, i.e., Zilla Parishad in selection of most of
the Panchayat employees within the district at the initial stage of recruitment as also at
the time of promotion. The system improves quality of recruitment, promotion and
administrative control over them ensuring better service. It has also opened up
promotional opportunities for the employees fostering their keener interest in rendering
quality service. Besides, the scope for regular transfer of the employees belonging to
superior cadres will ensure cleaner and more transparent and responsive administration.
The updated rules regulating discipline and control of the employees also confers all
necessary powers to the Panchayat bodies on curbing the role of the government officers
as was prevalent earlier. Such control is expected to enhance the allegiance of the
employees towards not only the Panchayat bodies but also towards the ideals and goals of
the Panchayat system. It is felt that the overhauled process will lead to further
development of better and more effective and pro-people delivery mechanism in the
Panchayat administration.
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Capacity Building of Employees & Other Functionaries of Panchayats
The term capacity building is being used in a broader sense which covers both training for
individual development, building of institutional capacities as well as other enabling
measures for fully utilizing the potential of the employees and elected functionaries
associated with the Panchayats. The following measures will be taken for building up
capacities of the various functionaries associated with functioning of the Panchayats. The
steps mentioned below will be completed by the year 2007-08 unless mentioned
otherwise.
(a) At present arrangement of training of the employees working for the
Panchayats is not adequate. There is need for ensuring both induction level and in-
service training of all the employees working for the Panchayats. A plan will be
drawn up by March, 2007 to ensure that from the year 2007-08 all new recruits are
trained on the basic skills required at that level as well as to orient them for working
as an employee of the local bodies, within three months from their joining the
services. The employees working at the GP level will be trained by the ETCs and the
employees of the PS will be trained by the SIPRD. The employees of the ZPs will be
trained by both the SIPRD as well as other state and national level institutes. In
service training for upgrading their skill will be organized as and when felt
necessary and in any case all of them will be given reorientation once in every five
years. A system will be introduced for tracking the trainings imparted to the
functionaries by the district offices to plan for their training.
(b) For the elected Panchayats functionaries basic training will be imparted to all
the members elected for the first time within six months of their election using the
distance learning mode as well as class room based training. Suitable arrangement
will be built up before the next Panchayat election is held in the month of May,
2008. Important office bearers like Sabhapatis, Pradhans will be provided
appropriate training within six months and others like Chairpersons of the Standing
Committees/Upa-Samitis will be trained within one year of being elected. ETCs will
be responsible for providing such training for the GP and most of the PS level
functionaries. The SIPRD will be responsible for training the functionaries of the ZP
and the Sabhapatis of the PS.
(c) Appropriate manuals will be developed for functioning of each tier of
Panchayats. A lot of training materials, both in print and electronic media, have been
prepared for training of all those persons. All those will be reviewed to identify gap
in training materials, particularly in the context of distant learning using the recently
installed satellite based facilities. Training on using computer will be a major
element. Other technical aspects like maintaining accounts and rural engineering and
promotion of livelihood opportunities will get due importance while designing the
training programmes.
(d) Apart from classroom based training for the Panchayat functionaries more
emphasis will be given on peer learning from exposure visits and sharing of best
practices on good governance. Documentation of best practices in various fields and
increasing access to those materials will be given due emphasis.
(e) Training cells will be established in all the ZPs so that there are dedicated
persons in each district to look after training need of the elected functionaries and
tying up with the ETCs and SIPRD for meeting their training requirement.
74
(f) Suitable training infrastructure will be developed at the district headquarter and
in other locations in case of bigger districts where training could be organized on a
residential basis with the support of the training institutions. The infrastructure of
the WBCADC will be developed further for providing livelihood related training for
the Panchayat functionaries of the district. In order to provide training locally a
resource pool of trainers in various disciplines will be developed in each district.
(g) There will also be need for organizing non-residential training, particularly for
the representatives of the GP and the PS. For that purpose suitable training
infrastructures will be created, if the same do not exist at present, in each Block
office. The infrastructure for distant learning using the satellite channel will be
utilized for that purpose. Resource persons will be developed for each Block to
facilitate such distant learning. One class room for providing training will be
developed in each GP and the same will be completed by the year 2008-09.
(h) In spite of all efforts adoption of correct procedures related to financial
disciplines, good governance and proper utilization of scheme specific fund and
untied fund lags far behind what is desired. Experience shows that hand holding
training by experts, particularly to the GP level functionaries, can increase their
efficiency substantially. Teams of properly oriented retired persons have been
formed for that purpose for assisting the functionaries in selected GPs of the more
backward districts. The same will be scaled up for providing support to more
number of GPs in all the districts, which are not performing at par with others.
(i) Along with expansion of capacities of the functionaries there will be need for
wider dissemination of knowledge about functioning of Panchayats for enabling the
citizen to participate more effectively. The same will be improved by continuing the
interactive radio programme, which is held for one hour every week with the support
of the All India Radio as well as setting up Citizen Service Centres (CSCs)
described below.
(j) The CSCs are proposed to be set up in the villages for every 6,000 population
for easy access to information as well as delivering electronic services to the people
in the rural areas as per the National E-Governance Plan (NEGP). In West Bengal it
has been decided that CSCs will be located, in the first phase, in every GP and PS.
The CSCs will be also utilized for dissemination of information related to
functioning of the Panchayats to help better participation of the citizen in affairs of
the Panchayats. The progress of the work will depend on the progress of
establishment of CSCs under the NEGP and timeframe for completing the task will
be set up in due course. A few pilot CSCs have been made operational to draw
lessons before rolling out the same to the entire state.
75
Strengthening SIPRD, the ETCs
In order to build up capacities of the Panchayats the SIPRD and the ETCs will be required to
play a more proactive role. Those institutions will be strengthened to meet the demand of
training as mentioned above. What are the need of the SIPRD & the ETCs? The ETCs
were not functioning well till recently. Those are being revamped now and all the four
sanctioned ETCs as well as the facility at Rajarhat will be developed so as to start
organizing courses within the current financial year. All the ETCs, including Rajarhat
will be provided with facilities for providing training on computers and computer
laboratories will be set up in all those places. Effort will be made, if adequate resources
are available, to develop a specialized training institute to deal with training requirement
of the SHGs.
Use of Information and Communication Technology for Efficient Functioning
Appropriate use of Information and Communication Technology (ICT) has become an essential
need for efficient functioning of the Panchayat bodies. Steps to be taken for
computerization of accounts have been already described earlier. Suitable software
packages for other activities of the Panchayats will be developed for being adopted by
those bodies. The areas to be given priority will be management practices relating to
proper utilization of available resources, revenue mobilization, monitoring progress of
works undertaken by particularly the ZP and the PS and adoption of suitable management
practices for avoiding cost and time over run, sharing information to the citizen through
CSCs by the GP and PS and through own web site by the ZPs, adoption of standard
engineering practices, better reporting of performances including web-based reporting.
Connectivity up to the PS level will be achieved by the year 2007-08 through optical
fibre linked WEBSWAN. All the PSs will be brought under intra-mail by the year 2007-
08 with the help of the WEBSWAN. For the GPs connectivity will be established by
using the facilities to be provided by the service providers of the CSCs and those being
located in the GP offices the facility of the CSC will be utilized by the GPs to exchange
data with the PS and other tiers of government. E-mail facilities will be utilized wherever
available. For better exchange of information and easier and timely collection of reports
from the GPs all those offices will be provided faxing facilities so that even without e-
mail connectivity important circulars could be disseminated very fast and the GPs will be
able to send their reports without sending messenger, which is costly and slow.
Strengthening the Directorate Office
76
The directorate is required to be strengthened for more proactive facilitation of the institutional
aspects of the Panchayats. Manpower available with the directorate will be restructured
for that purpose. One Audit & Accounts cell, one Fund Management cell, one Resource
Mobilization cell, one Training cell and one Inspection cell will be established in the
directorate to give special emphasis in those areas. The responsibility of the first cell will
be to take follow up measures of the audit reports of particularly the GP and the PS. The
Fund Management cell will be responsible for transfer of fund to the Panchayats directly
through respective bank accounts maintained with the SBI. For those branches having
internet facilities fund will be transferred directly to the Panchayats using on-line banking
facilities by this cell. However, fund under some of the centrally sponsored schemes will
be transferred by the respective programme wing as before. The Training cell will
coordinate with the training cells proposed to be established in all districts for training of
all the Panchayat functionaries and the employees, particularly of the Gram Panchayats.
The Inspection cell will remain responsible for prompt enquiry and follow up actions in
respect of serious allegations of violation of rules and financial impropriety.
HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE

PANCHAYATS
Introduction
In terms of Article 243G of the Constitution of India, every Panchayat has been recognized as an
institution of self-government with power and authority to prepare development plans for
economic development and social justice and implement them. In the perspective of such
constitutional mandate, Panchayat bodies can no longer be treated as mere agencies of the
state government to execute its plans and programmes. They have to be perceived as the
government at the third stratum with a clear functional domain of their own. If such an
exclusive functional domain for the Panchayats is carved out in conformity with the spirit
of the Constitution, then many State or Central laws on different subjects now under
operation in the state will have to be amended for several reasons. Firstly, some of such
laws come in conflict with the functional domain of Panchayats and restrict their
autonomous status. Secondly, in some cases parallel bodies created by some statutes
impinges upon the legitimate functions of local bodies. Lastly, panchayat’s direct
participation in functions specified in some of the subject laws would contribute towards
fulfilling the objectives of such laws. Also many acts were framed before introduction of
the Panchayat system in its present form and therefore require amendments to make
functioning of the Panchayats harmonious with provisions of the fact.
77
In the above background, various statutes at present in force in West Bengal have been examined
to find out whether the powers to be exercised, the functions to be performed and the
duties to be discharged under such statutes have any bearing upon the Constitutional
responsibilities vested in the Panchayat institutions and if so, how Panchayat bodies may
be conferred appropriate rights, functions or duties so that they may perform the
functions entrusted upon them with full justice to the constitutional obligation and to the
aspirations of the people. For the aforesaid purpose, 44 Acts have been scrutinized out of
which 6 are Central Acts and the other 38 are State Acts. These acts are either regulatory
in nature or contain provisions having implications on local development. There is a
group of legislations dwelling on regulatory functions which contain description of
certain offences, penal actions for such offences and the enforcing machinery guarding
against the offences. No role for the Panchayats is envisioned in such legislations. A case
in point is the Rice-Milling Industry (Regulation) (West Bengal Amendment) Act, 1974.
However, there are a few regulatory Acts which safeguard the interest of the general
public and calls for support and co-operation of the people for their success like the
Bengal Tanks Improvement Act, 1939. In such cases, it has been proposed that the
Panchayat bodies should be vested with certain powers and authority without impairing
the authority of the executive machinery so that both the agencies may work in tandem
towards the common goal. There are some other regulatory Acts such as the Cattle
Trespass Act, 1871, which are best administered by the Panchayats at the grass root level
having very close touch with the people and the bureaucratic machinery may be
disengaged from their administration.
With respect to the Acts on development matters like the West Bengal Livestock Improvement
Act, 1954, it is advisable that the Panchayat institution should play some definite role in
enforcing the provisions, while the executive machinery should have its role reduced. The
technical and other supports requiring specialized knowledge may however continue to
be provided by such machinery. Proposals have been given accordingly. Again, an Act
like the West Bengal Khadi and Village Industries Board Act, 1959 lays down the
procedure for constituting an apparatus for administration of economic schemes. Within
the general framework of such schemes, there are certain matters where involvement of
Panchayats will be beneficial for fulfilling the objectives of the Act. One such matter, for
example, is selection of the beneficiaries on priority basis. Hence, the local bodies should
also be a part of the machinery for supervision and monitoring of the programme
envisaged in the Act.
Acts for which Amendments are proposed
Within the framework of the aforesaid principles, proposals for amendment of 33 Acts (4 Central
Acts and 29 State Acts) will be considered by the state government. It requires in depth
analysis of those acts by the department concerned and wider consultation before making
any amendment. It is difficult to state in the Roadmap what amendments will take place
and by when. However the proposals mentioned below will be taken up for consideration
as soon as possible by the departments concerned.
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The Bengal Ferries Act, 1885 (Bengal Act I of 1885) – Under this Act control and
superintendence of all public ferries within the district are vested in the District
Magistrate. However, in terms of section 35 (inserted by way of amendment at a later
stage), it is lawful for the State Government to order that a public ferry shall be managed
by a local authority having jurisdiction when such local authority shall exercise all the
powers of the District Magistrate. Meanwhile, in pursuance of the policy adopted by the
State Government in this behalf, control and management of practically all public ferries
within the State have been transferred to the Panchayat bodies of different tiers
depending on the importance and the volume of traffic. Now, under the present scenario,
section 35 providing the local body may exercise power of the District Magistrate
appears inadequate. In the fitness of things, the Panchayat may now be directly
empowered to exercise control and supervision over the ferries, which are at present
under their management. With this objective in view it is proposed that –
(a) sections 7, 8, 9, 11, 14, 15, 16, 18, 19, 21 and 33 may be amended to appropriately
empower the Panchayat bodies for regulating the ferry service in their respective
areas;
(b) sections 26 and 32 may be amended to make provisions for the Judiciary to act a
appellate authority and ;
(c) section 35 becoming redundant may be omitted.
The Cess Act, 1880 (Bengal Act 9 of 1980) – The object of this Act is to tap resources for the
purpose of construction and maintenance as also related supportive and ancillary jobs of
roads and other means of communications and other public works in the district. The Act
lays down the methodology for valuation of land, rates for road cess and public works
cess, administrative machinery for their collection, channel for utilisation of fund and
penal provisions for breach of the law. It may be mentioned that most of the provisions
are procedural, establishment-related and regulatory although one or two provisions deal
with the role of the Zilla Parishad. When the Act was initially codified, the local bodies
were non-existent either in concept or in statute. Naturally, the entire task of assessment,
collection and utilisation of cess fund was left with the government machinery. Later by
an amendment Act of 1963, utilisation of cess fund was made the responsibility of the
Zilla Parishad. However, even now certain amendments are necessary to update the Act.
For this purpose
Sections 4, 91 and 109 of the Act need be amended to bring the present Panchayat set up
within the fold of this Act.
(a) Besides the entire corpus of funds after deduction of collection expenses is at
present allocated to the Zilla Parishad. Provision should be made for apportionment
of the amount with the Panchayat Samitis within the district.
(b) Since commencement of this enactment the entire land tenure system as also the
socio political environment have undergone major changes. Various references like
intermediary and subsidiary rights on land in the Act are now outdated. It may
therefore be more appropriate to introduce a new act instead and repeal the existing
one.
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Bengal Embankment Act, 1882 (Bengal Act II of 1882) and The Embankment Act, 1873 (6
of 1873) – These enactments were brought in force for the construction, maintenance and
management of embankments and watercourses in the State. The Act of 1873 was
repealed in part and amended by the Act of 1882. Although the Act of 1882 is in force on
being adapted last by the Adaptation of Laws Order, 1950 (Constitution Order No. 4
dated January 26, 1950), apparently it has since become non-functional. There are
copious references of intermediary and subsidiary right on land, which have since been
abolished. Besides, the role of the collector is pivotal in this Act although the offices of
the Irrigation and waterways Department are in these days discharging all responsibilities
relating to construction, maintenance and management of the embankments and the
watercourses. Apart from the role of general supervision, the District Magistrate and
Collector steps in only when relief work or law and order issues come to the surface. It is
suggested that
(a) Unless the issue relating to this Act are already covered by another or more than
one enactment commencing on later dates, it is advisable to frame a new Act.
Various issues which are no longer relevant may then be dispensed with and
certain new provisions in conformity with the concept and policy of these days
may be incorporated in the new Act. Since the geo-physical condition of the State,
lateral flow of surface and sub-surface water, ground water level and such other
things have undergone various changes, the schedules annexed to the Act may also
be modified.
(b) It may also be considered whether the role of the collector shall be substituted by
the similar role of the Zilla Parishad. This body arguably will be more suitable to
administer this act provided it gets the available technical support/machinery and
the required fund.
Canal Act, 1864 (Bengal Act 5 of 1864) – This Act was framed to amend and consolidate the
law relating to the collection of tolls on canals and other lines of navigation and for the
construction and improvement of lines of navigation within the State. The Act was
repealed in part in 1873 and 1903 and was amended in 1981. The Act empowers the State
Government to extend the provisions of this Act to any navigable channel by notification
and may fix the rates at which tolls may be levied for any vessel entering or passing
along the said channel. The State Government is also empowered to appoint any person
(the word includes any company, association or body of persons, whether incorporated or
not) for administration of any provision of this Act. The State Government shall also
have power to authorise a person to widen or deepen any channel or close or take any
action to improve it or remove any obstruction or encroachment to the channel. It is
neither practicable nor desirable for the State Government to control and manage or
collect tolls in respect of all channels within the State. The Act itself provides for
delegation of all such responsibilities by the State Government. For this reason,
(a) It is advisable to vest the powers and responsibilities under the Act to the Zilla
Parishad. For this purpose Sections 3, 8 and 13 may be amended so that the state
government and the Zilla Parishad may share the responsibilities for
administration of this act.
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The Bengal General Clauses Act, 1899 (Bengal Act 1 of 1899) – In section 3, in clause(23)
defining the word ‘Local authority’, the word ‘District Board’ may be substituted by the
words ‘Panchayat as defined in clause (15b) of section 2 of the West Bengal Panchayat
Act, 1973 (West Ben. Act XLI of 1973).
The Bengal Money-Lenders Act, 1940 (Bengal Act X of 1940) – Despite perceptible growth of
banks and other financial institutions in rural areas, it is a sad reality that the ordinary
village folks depend willy-nilly on private money-lenders. It is not difficult to visualise
that there are some unscrupulous money-lenders and the illiterate semiliterate and
gullible persons are taken by them for a ride. Considering this scenario, representatives
elected in Panchayat bodies may be assigned some role for assisting the people in relation
to this Act. In this connection, it is proposed that sections 6 (A) and 14 may be suitably
amended to empower the appropriate Panchayat functionary to inspect and control the
functions of the money lenders and also to debar the Panchayat functionaries themselves
to act as moneylenders.
The West Bengal Public Land (Eviction of Unauthorised Occupants) Act, 1962 (West Ben.
Act XIII of 1962) – The Act centres around empowerment of the collector to order
eviction of an unauthorised occupant from any public land, which includes land under a
local body (section 4), after serving a notice (section 3) if necessary on using force
(section 5). Panchayat Samiti, Zilla Parishad and the Municipal bodies may be given
some authority under this Act at least in respect of lands under their control.
West Bengal Land Reforms Act, 1955 – This is an Act to codify afresh, under the present
context, the laws relating to land tenure system, right and obligations of the land holders,
maintenance of records of land holdings, land revenue system and certain laws relating to
land reforms. Since the Act lays major emphasis on various procedural matters relating to
rayati right, change of character of land, land revenue, designs for maintenance of record
of rights, the provisions are rigidly systematised, methodology-oriented and somewhat
technical in nature. There are, however, certain provisions in the Act which have some
social impact with a human angle where closer participation of the Panchayat bodies may
be considered desirable. On this view
It is proposed that sections 4(2A), 14C(1), 21D, [entailing amendment of rule
141(1) (a) (ii) of the West Bengal Land reforms Rule 1965], Chapter V (Sections
39 to 48A), and 49(1) and (2) [entailing amendments of Land Reforms Rules
1965] are amended so as to assign definite roles to the Gram Panchayats and the
Panchayat Samitis in the matters of distribution of khas and vested lands, changes
of characters of land, according permission for transfer of land belonging to the
scheduled tribes persons, consolidation of land holdings and cooperative farming.
(a) Besides, Block level Land Reforms advisory
committees may be dissolved and all its functions may be assigned to the Bon O
Bhumi Sanskar Sthyaee Samiti (Standing committee on Forest and Land
Reforms) of the Panchayat Samitis on enlarging its composition if necessary.
Annulment of the settlement of Khas /vested land should also be the responsibility
of this body by changing the present system where the appointed bureaucracy has
been made entirely responsible.
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West Bengal Primary Education Act, 1973 – Primary education in general is administered by
the West Bengal Board of Primary Education and the District Primary Education Council
constituted under the provisions of the West Bengal Primary Education Act, 1973. The
responsibility of guiding, supervising and controlling the primary education in the State
including determining the curriculum, approving or preparing text books, mode of
teaching, training of teachers, conducting examination etc. rests with the State Council.
Day-to-day management of primary schools is the responsibility of the District Council
and this includes appointment and transfer of teachers, opening of new schools or
expansion of existing schools, awareness building for enrollment, development of
infrastructure etc. Primary education is traditionally a local government subject. This is
one of the important functions under Eleventh Schedule of the Constitution reserved for
the Panchayats. In many states, this function has been given to the panchayats. Even in
West Bengal, Panchayats have been given major responsibility from for implementation
of Shishu Shikshs Karmasuchi. But when it came to the subject of managing the
mainstream primary schools, District Councils of Primary Education were created under
the West Bengal Primary Education Act. By creating this parallel body, this Act has
made an unnecessary intrusion into the functional domain of the Panchayats. It is
accordingly necessary to make major amendments of the Primary Education Act of West
Bengal. The objective of such amendment should be to abolish District Primary
Education Councils and transfer all their powers and functions to the Panchayat system.
While the major responsibility of the existing functions of the District Primary Education
Council concerning non academic matters will have to be borne by the Zilla Parishad,
some of the functions may be decentralised among the Panchayat Samiti and Gram
Panchayat. For efficient management of primary schools such decentralisation will be
necessary. In fact, the Panchayat bodies have already been assigned certain
responsibilities (as distinguished from authority) in these matters. In view of the above,
Chapters III to VIII of the Primary Education Act containing sections 19 to 74 need to
be amended. Consequent upon the abolition of the District Council, needs may
arise for amendments in some other sections also.
The West Bengal Animal Slaughter Control Act, 1950 (West Bengal Act XXII of 1950) –
This enactment aims at controlling and regulating animal slaughter in the State of West
Bengal. Section 4 read with sub clause (b) of clause (iii) of section 3 shows that the
Sabhapati (which expression includes any person nominated by him) of the Panchayat
Samiti is a signatory of the certificate declaring an animal fit for slaughter (the other
signatory is Veterinary Surgeon). Again under the authority of section 6, the Sabhapati is
empowered to inspect any premises to prevent violation of any provision of this Act. In
the circumstances no further empowerment of the Panchayat bodies or any of their
functionaries may be necessary. There is, however, one issue that merits consideration.
Although the Act has not clearly stipulated, the authority for nomination under clause (iii)
(b) of section 3 should not advisedly be exercised by the Sabhapati individually since a
Panchayat should be run on the basis of collective wisdom. There is one Matsya O
Pranisampad Vikash Sthayee Samiti under Panchayat Samiti. (Standing Committee on
fishery and animal resource development). This Sthayee Samiti may be empowered to
nominate such person, if any, from among the elected members including the
Karmadhyaksha of the Panchayat Samiti or any of its officers. Such explicit provision
may be made either in the Act itself or in the rules framed under Section 14 of the Act.
82
The Bengal Diseases of Animals Act, 1944 (Bengal Act of 1944) – This piece of legislation
had been framed to prevent the spread of diseases among animals. Under the Act,
specified diseases and some other diseases as may be notified by the State Government
from time to time have been declared as contagious diseases. There are provisions for
identification and segregation of the diseased animal(s), declaration of infected areas,
imposition of certain restrictions to prevent spread of disease and some penal provisions.
It need not be mentioned that since the time of original enactment in 1944, the situation
has undergone vast changes. The administrative machinery has been transformed to a
considerable extent. The Panchayats and Municipalities have been recognised by the
constitution as the institutions of self-government. Communication facilities have vastly
improved rendering total segregation very difficult. Also, People are more educated and
conscious and medical Science has also advanced tremendously. Notwithstanding all
such changes, the Act has not totally lost its relevance especially in the context of any
outbreak of epidemic. But it requires adjusting itself with the new realities. In the
circumstances, either a new Act may be drawn up or this Act may be amended to make it
more effective. Accordingly,
It is felt that in consonance with the aforesaid observations especially sections
2(6), 3, 5, 6, 10 and 16 require major changes. A new provision may also be
inserted accentuating the role of the Panchayat Samiti on outbreak of an epidemic.
The West Bengal Livestock Improvement Act, 1954 (West Ben. Act XXXIV of 1954) – This
Act has been framed for the purpose of improvement of livestock in the state. Provisions
have been made in the Act to declare an area as specified area, to identify and mark
certain bulls as approved bulls and to disallow continued stay or import of any other bull
in that area. There are also provisions for enforcement of statutory directions and for
punishment for violation of lawful direction. Since this enactment deals with functions
based on specialised knowledge and prevention of certain actions, there is very little
scope for involvement of the Panchayat or any other representative bodies. There is
however one provision which may be taken up for consideration. Sub-section(1) of
section 5 empowers the State Government to declare, under certain circumstances an area
as specified area. It is proposed that in this provision a definite role of the Zilla Parishad
may be introduced.
The Bengal Tanks Improvement Act, 1939 (Bengal Act XV of 1939) – This statute had been
formed for the purpose of improvement of tank for its meaningful utilisation for
irrigation. It empowers the State Government to requisition derelict tank and to improve
it either with the help of its district machinery or through any other local body or person.
Although there are at present other statutes and projects under which a derelict tank/
water body may be reclaimed and fruitfully utilised, this Act has not yet outlived its
efficacy. It is however true that the socio-economic scenario at the time of its enactment
in 1939 is widely divergent from that obtaining today and some conceptual and
functional changes need be incorporated in the existing provisions. In order to make the
statute more people-oriented and dynamic, the Panchayat institutions may be empowered
and made proactive, role of bureaucracy may be eliminated, pisciculture may be accepted
as one of the objectives of the programme and agriculture may be taken to encompass
orchard cultivation as well. With these views
83
(a) Sections 2(a1), (1), (2), (7) and section 6 may be suitably amended. Besides
sections 27 may be redrafted to make the Zilla Parishad and the State Government
to act as the appellate authorities as may be appropriate. Section 34 may also be
amended to enable the Zilla Parishad to delegate its authority to other Panchayat
bodies and/or the officers.
West Bengal Inland Fisheries Act, 1984 (West Bengal Act XXV of 1984) – Successful
implementation of any programme for development of inland fisheries calls for various
technical inputs by the persons having specialized knowledge on one hand and unstinted
support and participation of the people on the other. Such popular support and
participation can be ensured through the representatives in the Panchayat bodies
constituted in the locality. It is therefore proposed that the Panchayat Samiti functionaries
be involved in the task of implementation of the provisions of this Act. On these view
(a) it is proposed that Sections 8,9,14, 17A, 17B and 17C may be suitably amended to
bring in the role of Panchayat Samiti and the Gram Panchayat in the functions
envisaged in development of Inland Fisheries.
Indian Forest Act, 1927 (16 of 1927) – This is an Act to consolidate the laws relating to forest,
protection of its flora and fauna and for maintenance of ecological balance. The Act
empowers the State Government to notify the forest as reserved forestry, village forest or
protected forest as may be deemed appropriate. It enunciates powers and authority of the
State Government vis-à-vis private persons in relation to forest, codes for control of
timbers and other forest produces and regarding imposition of various fines and penalties
for breach of any law. While importance of such a piece of legislation for the benefit of
the community at large cannot be trivialised, it is necessary to ensure that the human
aspect is not lost sight of while framing its provisions. There is no denial that the people
living in the fringe of the forest (majority of them also live in the fringe of the society)
are for generations depending on forest not only for their livelihood but for their cultural,
religious and social life. Their close affinity with the forest is such that while they enjoy
usufruct, they are psychologically and customarily attuned to desist themselves from
damaging any flora or fauna or bring any ecological imbalance in the forest. Based on
this, it may be concluded that the marginalised people in the neighbourhood of a forest as
well as the Panchayats representing them have considerable stake in the management and
control of the forest and its problems. So it is suggested that apart from certain
amendments in the Act effecting involvement of the Panchayats in the people oriented
issues, local inhabitants may be allowed some space for enjoyment of a few minor
benefits from the forest without causing any damage to the forest. With such
consideration,
(a) Sections 10(5), 16, 25, 28, 29, 30, 31, 35 and 36 may be amended in order to
allow the people in and around the forest to have access to certain forest produces
without any damage to the forest. The proposed amendment shall also allow the
Panchayat Samiti and the Gram Panchayats to effectively play their expected roles,
enable the forest people to strengthen their livelihood opportunities and shall
contain their sense of deprivation and animosity for loosing their age old traditional
rights. On ultimate analysis such measures will improve the forest wealth.
84
Forest (Conservation) Act, 1980 – This Act is in reality supplemental to the Indian Forests Act,
1927. It has total five sections among which there are only three operative sections. There
is only one issue which may be mentioned its relation to this Act. Section 3 provides for
constitution of an Advisory Committee to advise on grant of approval under section 2 and
on other matters on conservation of forest. Now, forest area and the rural areas under the
Panchayat system are interrelated and inter-dependent. So, it is proposed that this
Committee should have members with insights of forest-Panchayat interface and
expectations and problems of the people.
The West Bengal Private Forests Act, 1948 (West Ben. Act 14 of 1948) – This Act provides
for conservation of forests and for afforestation of wastelands in the State when such
forests and wastelands are not under the ownership of the Government. Apparently,
private forests and vast tracts of wastelands can be visualised normally under the
intermediary rights on land. After abolition of intermediary rights, such forests and lands
are likely to have been vested and so application of this Act is very limited. Albeit this
limited role section 7 may be amended to enable the Gram panchayat and Panchayat
Samitis to control and maintain small forests with their rights and obligations clearly
defined. Sections 8, 9 and 10 may be amended to delineate the role of Panchayats.
Section 11 may also be amended so that the rights and obligations of different parties in
the matter of social forestry, strip plantation and similar other ventures undertaken by the
Panchayats in recent times may be clearly spelt out.
85
The West Bengal Wild Life Preservation Act, 1959 (West Ben. Act, XXV of 1959) – Any
venture for preservation of wild life cannot reach its desired goal without active
participation of people residing in the neighborhood. Officials of the Forest Department
are aware of this necessity and have taken up multifaceted programme to secure the
cooperation of people particularly of those whose livelihood as also their social and
cultural norms are interwoven with the flora and fauna in the forest. Accordingly, the
Panchayats in the vicinity may play a significant role in the preservation of wild life by,
among other things, enlisting the cooperation of local people. With this object in view, it
is proposed that sections 8(2), 11, 12 and 15 may be sutably amended to define the role of
Panchayat Samiti [which includes the role of Bon o Bhumi Sanskar Sthayee Samiti
(Standing committee on Forest and Land reforms)] to ensure participation of the
Panchayat Samiti in the matters involving the local people for safeguarding their
interests.
The Bengal Public Parks Act, 1904 (Bengal Act II of 1904) – The Act contains provisions, for
declaration by the State Government of a new public park in addition to those enumerated
in the schedule appended to the Act and for superintendence and management of such
park. The enactment envisages, although not specifically stated, establishment of such
park within urban areas. Under the rules framed in terms of West Bengal Panchayat Act,
1973 (West Ben. Act XLI of 1973), the Gram Panchayat is empowered to establish parks
within its area. Since, necessity of park in some rural area cannot be ignored. Considering
the said position, it is proposed that a new provision may be inserted after section 3 (or
any other suitable place) providing that in the rural area, any such park declared as such
shall be transferred under the control and management of the Gram Panchayat, area of
which comprises the Park and the said Gram Panchayat may take measures for
maintenance of the parks.
The West Bengal Preservation of Historical Monuments and Objects and Excavation of
Archaeological Sites Act, 1957 (West Ben. Act XXXI of 1957) – This enactment
provides for preservation, restoration and maintenance of historical and antiquated
monuments and objects as also empowerment of the State Government, for excavation of
archaeological sites in West Bengal. There are instances where a state-protected
monument or object may not require continuous supervision or support from experts or
other persons with specialized knowledge in diverse fields or need considerable fund for
maintenance and up keep. On the other hand, such object or monument may signify past
glory and pomp of the locality and may be a source of local pride. On such occasions, the
owner as also the local Panchayat may be interested in undertaking the responsibility for
preservation and maintenance of the said monuments and objects. On this view it is
advisable to allow some space for the Panchayat bodies to play their legitimate role in the
effort for preservation of ancient monuments and relics. With this object Sections 2, 4, 5,
7, 12, 13 and 15 may be amended in appropriate manner for defining their role.
86
The West Bengal Children Act, 1959 (West Ben. Act XXX of 1959) – This act enables the
state government to establish and run the reformatory or Borstal schools. Since its
efficacy lies in proper running of these establishments, flawless management by well
structured machinery is the essence of the system. There is however a human and social
aspect for which involvement of local body representatives will be advisable. Sections 8,
9 and 11 may therefore be suitably amended to bring in the role of the Panchayat Samiti
or its representative in appropriate manner when such establishments are located in the
rural areas.
The West Bengal Khadi and Village Industries Board Act, 1959 (West. Ben. Act XIV of
1959) – This Act provides for organisation, development and regulation of khadi
industries and village industries and also other matters supplemental and incidental
thereto. For this purpose, the Act has made provision for constitution of a Khadi and
Village Industries Board. Now, the aims and objectives of this Board are noticeably in
concurrence with those of the three tiers Panchayats constituted under the mandates of
the Constitution of India and in pursuance of the State Panchayat Act. In fact, the
objectives of the Panchayat subsumes the objectives of the Khadi and Village Industries
Board and a close liaison between their activities shall not only help both the
organizations in implementation of their respective schemes and programmes but shall
satisfactorily serve their central purpose of socio-economic upliftment of the people.
Considering the significant role of the Board in organizing Khadi and Village industries
mainly in the rural area and of the Panchayat bodies conversant with and responsive to
the needs and expectations of the community, a functional integration between them is
necessary. In order to achive this objective it is proposed that Sections 4 and 12 may be
suitably amended so that the Panchayats may have some definite say in the matters
encompassing the interest of the local people. There is however one specific matter that
merits consideration. District Industries Centre (DIC) referred to in section 14 A
(admittedly, this centre is not created under this Act) and other officers implementing the
programmes of the WBKVI Board (eg. Handloom Development Officer) may be more
closely linked with the Zilla Parishad. Without prejudice to the distinct identity of the
DIC or other officers, the Zilla Parishad particularly Khudra Shilpa, Bidyut O
Achiracharit Shakti Sthyee Samiti (Small Industries, Power and Non-Conventional
Energy Committee) may have greater symbiotic relationship with the DIC and other
officers. The General Manager, DIC (and other officers if deemed necessary) may have
an Zilla Parishad related additional designation unless such designation has already been
assigned. While granting assistance to the artisans, groups and institutions under different
programmes, local Panchayat bodies / members may be consulted for identification and
prioritisation of beneficiaries and in the matter of implementation of various stages of the
programme.
87
The Essential Commodities Act, 1955 (Act 10 of 1955) – This Act has been brought into force
in order to ensure steady and adequate supply of the commodities essential for sustenance
of life by controlling their production, supply and distribution. Obviously, the Act is of
regulatory nature and aims at keeping the production and marketing channel of certain
specified commodities in proper condition on one hand and also keeping unscrupulous
businessmen on leash so as to prevent them from manipulating marketing channels. It is
felt that enforcement of such law will be easier if the Panchayats are involved in the
administration of certain provisions of the Act. Besides, under the 11th schedule, public
distribution system is one of the functions that have been entrusted to these bodies. In
consideration of this, Sections 3 (3b) and section 5 may be amended in appropriate
manner. The Act mainly dwells on different ingredients of the offences dealt with, penal
provisions and composition and jurisdiction of different penal authorities. Obviously, it
has been framed from regulatory point of view. The approach obfuscates the role of
people who are not only beneficiaries but have a major role in production or processing
of the commodities in question. The objective will be served more satisfactorily if the Act
provides space for participation of people in safeguarding their own interest. If this idea
is accepted on principle, then the Act should have enabling provisions to utilise the
services of the panchayats and the urban local bodies effectively.
The Dowry Prohibition Act, 1961 (28 of 1961) – Object of this piece of legislation is to
prohibit the evil practice of giving and taking of dowry in connection with marriage. The
measures in the Act are regulatory in nature with penal provisions. However, the issue
dealt with is actually a social malady stemming from the syndrome of male chauvinism
prevalent in the society coupled with lack of economic independence of women in the
society. Eradication of this affliction can be achieved only by creating social awareness in
the society and through economic and social empowerment of women. However, some
modification in the framework of the existing law may be helpful in achieving the goal.
In this connection, it is proposed that subsections (1) and (2) of Section 8B may be
amended to involve the Panchayat bodies in the administration of this act. Besides, a
district-level advisory committee may be constituted with the Sabhadhipati as chairmen
with the District Magistrate, Superintendent of Police and a number of social workers
with high proportion of women as members. It will monitor the progress in this regard
and may also guide other advisory committees in their efforts.
88
The Bengal Water Hyacinth Act, 1936 (Bengal Act XIII of 1936) – This Act provides for the
steps to contain propagation and ultimately to destroy the water hyacinth growing on any
river, watercourse, tank, pound or any other land or water-body. Under the Act, most
authority is vested in Collector or any person authorised by him. Certain decisions are left
with the State Government. In terms of section 27 of the West Bengal Panchayat Act,
1973 (West Ben. Act XLI of 1973), the Gram Panchayat is vested with the power to
direct any person to prevent growth of water hyacinth and destroy all water hyacinth
already grown from any land or waterbody. Although the Act of 1936 is more elaborate
with some minor details, the provision in the State Panchayat Act is adequate to meet the
situation. Although water hyacinth no longer poses serious menace like earlier days,
partially because of considerable shrinkage of water area, the problem still persists. It is
therefore advisable that both the provisions should run parallelly. However, in the Act of
1936, the entire role of enforcement should preferably be vested with the Panchayats and
since the Gram Panchayat is adequately armed through the Panchayat laws, Panchayat
Samitis may be vested with all powers under the Act and for this purpose –
(a) both the definitions of ‘Authorised Officer’ and ‘Collector’ may be substituted by
the term ‘Panchayat Samiti’ and the term may include any office bearer, member
or officer of the Panchayat Samiti as may be authorised by it;
(b) the terms ‘Authorised Officer’ and ‘Collector’ wherever they may occur in the
Act may be substituted by the expression ‘Panchayat Samiti’ and following this
modification, whatever amendment in the recital may be considered necessary,
may be effected.
The Bengal Local Self Government Associations (Recognition) Act, 1936 (Ben. Act XVI of
1936) – Aims and objects of this Act are to extend recognition by the State Government
to an association formed by the local bodies. It was also envisaged that the association
would run primarily with contributions from the local bodies. At present, such an
association may be utilised as a platform for exchange of views and experiences among
different local bodies, rural and urban, and for building up common strategies and
approaches on issues of mutual interest. To achieve this purpose, it should be necessary
to make this association a representative body (in the present Act, there is no mention
about composition of the body). The following suggestions are made for amendment of
the Act:
(a) In section 2, it may be provided that the association should be a representative
body consisting of maximum (say 80%) members nominated by various member
bodies.
(b) A new section may be inserted laying down the composition of the general body.
The executive committee may be formed by the members of the general body by
electing persons from among them. The members of the executive committee may
have a term of two years and may be elected on rotational basis.
(c) The association shall have a right to be heard by the State Government and may
be sponsored to represent at the national level.
(d) Apart from contribution from the municipalities and the Panchayats, the
association shall be eligible for grant from the Government.
If the aforesaid proposals are accepted, suitable new provisions may be made and the
existing provisions may be amended to conform to the policy adopted.
89
The West Bengal Vaccination Act, 1973 (West Ben. Act XXXVII of 1973) – This is an Act to
make vaccination compulsory for the purpose of eradication of small-pox. The provision
of the Act, inter alia, enjoins upon every resident and every traveller coming to this State
to get himself and the children under his or her care vaccinated unless they are already
protected. This statute also enunciates the authority, duty and responsibility of the
medical and para-medical personnel associated with the programme and also contains
some penal provisions for breach of law. However, one lacuna in the present Act needs to
be eliminated. There is little scope in the statute for participation of the Panchayat bodies
or members in the campaign although mass awareness and participation cannot be
realised without support of grassroot level representative bodies. With this end in view, it
is proposed that sub-section (2) of section 10, may be suitably amended to bring
participation of the Panchayat bodies in the matter without eroding the authority and
responsibility of the government machinery.
The West Bengal Acquisition of Homestead Land for Agricultural Labourers, Artisans and
Fishermen Act 1975 (West Ben. Act XL VII of 1975) – This is an Act to provide for
the acquisition of land in rural areas on which homestead has been constructed by any
person who is an agricultural labourer, an artisan or a fisherman and conferment of title
of such land in favour of such person. This Act has been framed practically to empower
the executive machinery to perform certain quasi-judicial functions. Since, however, the
disadvantaged section of the community is the target group of this Act, it is imperatively
necessary to disseminate the scope of this legislation, motivate and support the target
group people to come up with their legislative claims and to assist the families after
acquisition of land for construction or repair of pucca houses, where necessary, under
rural housing programmes. Panchayats have appropriate roles to play in these directions.
It is proposed that suitable provisions may be inserted in this Act reflecting the aforesaid
objectives.
The Cattle Trespass Act, 1871 (Act 1 of 1871) – The Act aims at preventing stray cattle from
damaging crops. The punitive measures relating to any damage caused by the cattle left
by the owner to move freely, not only checks quarrels and feuds in the countyside, but
assures safety of the standing crop thereby contributing to food production. Obviously
this is a matter very much within the functional ambit of a local body instead of the
Collector or any other government officer. It is, of course, admitted that the role of the
State Government in certain matters cannot be dispensed with. Now, although section 31
empowers the State Government to transfer to any local authority all or any of the
functions under this Act, this does not appear adequate to create an atmosphere conducive
to achieving the objects of the Act. On analysis of the ground realities, it may appear
most effective to empower the Gram Panchayat in the statute to take all actions under the
Act. With this object in view it is proposed that sections 3, 4, 5, 6, 12, 14, 17, 19 and 27
may be amended to bring in the role of Gram panchayat and Panchayat Samiti by
abrogating those of the District Magistrate and other government officers. On
introduction of such amendments section 31 will become redundant and may be omitted.
90
The West Bengal Comprehensive Area Development Act, 1974 (West Ben. Act XXXIX of
1974) – This piece of legislation prepared a structure for development of the state through
area-based development programme for increased agricultural and allied activities and
maximization of benefits of the cultivators. After commencement of 73rd Constitutional
amendment, the Panchayat bodies have emerged as the major vehicle for area-based as
also family-based development programme in the country side. The Panchayats are also
playing a big role in the efforts for capacity building and creating livelihood opportunities
for the rural people especially the marginal farmers, farm labourers and poor rural
artisans. In the context of this changed scenario, the interventions envisaged in this Act,
may be profitably utilized by the Panchayat bodies in their efforts for alround
development. Besides, the machinery created under this Act is still in existence. Although
its independent existence is no longer relevant, it may provide much-needed personal
support to the Panchayats. In view of the above, it is proposed that this Act may be
appropriately amended in order to provide statutory support to the programmes
undertaken by the Panchayats in various fields of development activities and to transfer
the existing set-up under this Act to the appropriate Panchayats bodies.
The West Bengal Tanks (Acquisition of Irrigation Rights) Act, 1974 (West Ben. Act XXIII
of 1974) – This is an Act to provide, in the public interest, for acquisition of the right of
using water of derelict tanks for the purpose of irrigation and incidental matters. All
powers and authorities under the Act are vested in the collector. Section 4 of the Act
empowers the collector to acquire the right of using water of a tank for the purpose of
irrigation when such tank is derelict and the public has no right to use its water for
irrigation, although the tank if excavated is capable of irrigating adjoining lands. In terms
of section 5, the collector after such acquisition, may excavate and improve the tank in
any manner for irrigation or authorise any person or persons to perform these jobs. Again,
under section 6 of the Act, collector is empowered to take any action in terms of section 5
in respect of a tank where the public has the right of irrigation and the owner or owners
are not providing the facility. Instead of employing the bureaucratic machinery, it is more
advisable to vest the entire right and responsibility to a representative body or to one of
its authorised members. In the circumstances, it is proposed as follows:
(a) After acquisition under section 4, the collector may authorise the Panchayat
Samiti concerned under section 5 to perform all or any function under the Act
with liberty to assign any job to the Gram Panchayat having jurisdiction, or
(b) Amend section 4 in such manner that the collector shall acquire the right of
irrigation on requisition by the Panchayat Samiti and hand over the right to the
requiring body.
There are other enactments as well for acquiring and utilising the irrigation facility in
public interest. Apparently, it will serve people better if the laws are consolidated and
framed into one piece of legislation.
91
West Bengal Agricultural Produce Marketing (Regulation) Act, 1972 (West Ben Act XXXV
of 1972) – In order to safeguard the interests of the producers and prevent nefarious trade
practices, this Act sets forth the codes for regulating the process of marketing agricultural
produces in West Bengal. It endeavours to regulate transactions entered into by the
traders. It also provides for constitution of a Market Committee and the State Market
Board, their powers and authority and functional domains. The 11th schedule of the
Constitution enumerates, inter alia, agriculture including agricultural extension and
markets and fairs as subjects on which the panchayats as institutions of self-government
should formulate and implement plans for economic development and social justice. By
logical interpretation of the mandate of the Constitution, marketing of agricultural
produces also comes within the functional domain of the panchayats. Although such
powers vested in the Panchayats are not exclusive, constitution of another authority for
the same task gives rise to unnecessary dissipation of energy and resources with
occasional incidence of conflicting measures adopted by different agencies in the field.
Such situations may be avoided if closer ties are built between the Panchayat and such
Authority. After commencement of the 73rd Constitutional amendment and introduction
of matching provisions in the State Panchayat Act, certain provisions in the Act need be
revisited. In view of the above, sections 2(f), 3(1) and (2), 4 and 5 may be appropriately
amended in order to bring closer ties between the Panchayats and the Local Market
Committee. Besides, it may be mentioned that under section 117 of the West Bengal
Panchayat Act, 1973, an owner or a lessee of a hat or market or an owner or a lessee of
land where a hat or a market is intended to be set up, is required to take a license from the
Panchayat Samiti of the area. This provision should have clear recognition in this act
under discussion.
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The West Bengal Town and Country (Planning and Development) Act, 1979 (West Bengal
Act XIII of 1979) – Object of this Act is to constitute a body adequately equipped with
expert knowledge for identification of a planning area, preparation of a spatial plan for
the area and execution of related development schemes. At the time of commencement of
this Act, there was no other planning body in existence. The scenario has meanwhile
undergone vast change. In terms of Article 243G of the constitution, a Panchayat
institution (Gram Panchayat, Panchayat Samiti and Zilla Parishad) is endowed with the
authority to prepare plan for its area and execute schemes in pursuance thereof. In terms
of Art 243W, a Municipality, which includes a Municipal Corporation also, is endowed
with similar authority. Again under Article 243ZD, there will be a District Planning
Committee (DPC) empowered to consolidate the plans prepared by the Panchayats and
the Municipalities and for preparation of a draft development plan for the district as a
whole. Similarly, Article 243ZE mandates constitution of a Metropolitan Planning
Committee (MPC) for each metropolitan area with the responsibility for preparing a draft
development plan for the metropolitan area as a whole. Both these bodies are also
endowed with the responsibility of preparing spatial plans for the district and
metropolitan areas respectively after taking into consideration the needs and interests of
rural and urban areas. This Act of 1979 has created confusion in the matter. The entire
area of the State is now encompassed by either an urban or a rural local government
institution (3-tier Panchayats have overlapping jurisdictions) and a DPC or MPC. They
are empowered under the constitution to prepare and execute development plan. A
planning and development body as envisaged in the 1979 Act, can hardly find area left
for their preparation and execution of development plans and they cannot subsume or
control the institutions created by the constitution. It is felt necessary to address this
anomalous situation to resolve the impasse. Otherwise, different development agencies
will be working at cross-purposes and may soon be vying with each other for their
authority in the planning process. Besides, it is clear that the panchayats, municipalities,
DPC and MPC are constitutional authorities for preparing local level plans, including
spatial plans. Another planning body cannot take away this authority. Even if a separate
body is created, it has to function within the framework envisaged in Part IX and IXA of
the constitution. It cannot exercise any power or authority independent of this
constitutional framework. Apparently, this Act in the present form is unconstitutional
and, hence, needs thorough amendments. In the circumstances, specific proposal on this
Act is not suggested.
Amendment of Panchayat Act / Rules
Initiatives for Further Amendment of Panchayat Act – In recent times, quite a few
amendments have been made in the State Panchayat Act in order to make the Panchayat
bodies more representative, people-oriented and transparent, to improve their
accountability and functional ethos. Further amendments are also under contemplation
which are mentioned below:
(1) Reframe the powers and functions of the Gram Panchayat, Panchayat Samiti and
Zilla Parishad so as to clearly define their respective roles in different fields of
activities with convergence among different tiers.
93
(2) Build an internal audit system in different tiers for the purpose of monitoring
utilization of fund and maintenance of accounts by the institution itself in a
regular manner and also to ensure timely reply to statutory audit paragraphs.
Change of composition as also functional procedures of the District Council for
Panchayats may also be considered for this purpose.
(3) Constitute a Block Council for Panchayats in the pattern of District Council. It is
not possible for the District Council to reach out to all the Gram Panchayats
within district. Naturally, the District Council has so far created very little impact
on the activities of the Gram Panchayats. Hence we introduce the idea of Block
Council. The Council shall be chaired by the leader of the major opposition party
at the Panchayat Samiti level and shall have members drawn from the ruling party
as also from other opposition parties. Block Council shall look into the matters
relating to the Gram Panchayats. If Block Council is constituted, functions of the
District Council shall usually be confined at the Panchayat Samiti level although
it will be at liberty to look into the affairs of any Gram Panchayat as well.
(4) Incorporate functions relating to public health including environmental sanitation,
preventive and prophylactic measures, prevention of food adulteration and
contamination and control of epidemics.
(5) Build up an institution in the nature of Ombudsman to supervise and monitor
different activities of the three tier Panchayats and make recommendations for
remedial/punitive measures. A provision may be incorporated to the effect that the
State Government or nay prescribed authority notwithstanding any empowering
provision in the Act, shall not supersede any elected body or remove any elected
member or office bearer from the office without consulting the Ombudsman in the
matter. This institution may also be empowered to look into the grievances of the
people relating to service delivery of the Panchayats and advise remedial actions.
(6) The Panchayats have been allowed very little space for generating its own
resources. The Gram Panchayat may raise some amount of revenue through
imposition of tax on land and buildings. Even this meager source is not available
to the Panchayat Samiti and the Zilla Parishad. All three of them are mostly
dependent on the non-tax revenue for which the existing net is not very wide.
Efforts will be made to explore new avenues for all the three tiers for augmenting
their resources. In such efforts, however, it will be necessary to ensure that the
interest and the sensitivity of the common people are not jeopardized. As an
alternative route, the State Government may consider sharing a good portion of
land revenue receipts with the Panchayats. For another consideration, agricultural
income tax for the affluent section of the agriculturists may be reintroduced and
the Zilla Parishad may be empowered to assess and collect such tax. There may
be other avenues as well. However, all these initiatives demand intensive
discussions at multiple level and will require considerable time for specific action.
(7) It is felt that the State Government should have some supervisory role over the
Panchayats as facilitator. The latter may also require guidance and support on
different issues. The State Government should derive all such authorities through
legislative process. However, authority of the Government should not gravitate
towards precipitating a crippling effect on their endeavours for economic
development and securing social justice for the people. Distinction between these
94
two aspects is not easily discernable and tends to overlap. It is however necessary
to ensure that the self-government status of the Panchayats are not eroded. A
careful scrutiny of the existing provisions in the Act and Rules shall be made for
specific actions in this direction.
(8) Incorporate provisions as may be necessary in the wake of amendment of various
subject laws.
95
Framing/amendment of Rules – Gram Panchayat Administration Rules [The West Bengal

Panchayat (Gram Panchayat Administration) Rules, 2004] has very recently been
amended extensively. The Accounts Rules for the Gram Panchayats [The West Bengal
Panchayat (Gram Panchayat Accounts, Audit and Budget) Rules, 2007] in substitution of
the existing rules framed in 1990, have since been drawn up and is expected to be
published shortly. There are proposals to freshly prepare the Panchayat Samiti
Administration Rules and the Zilla Parishad Administration Rules, Rules relating to
publication of bye-laws and some other issues. All these works will be completed by the
year 2007-08.
ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS
Introduction
The chapters above describe the various aspects for improving the Panchayat system and is
evident that the road ahead is not a journey on a linear path. All the issues related to
improved rural local governance are to be addressed by each of the Panchayat body as
well as the State Government to play their respective roles as per a common
understanding keeping the local context in mind. That makes the process complex and
diverse and different components of the same, which are strongly interrelated, are to be
understood and acted upon by all concerned. Another important aspect is that the journey
ahead has to be undertaken by each of the Panchayat of the State and the road ahead for
the State will essentially consists of the sum total of journey to be undertaken by all the
Panchayats, each of which will be different from the other. The major components will be
the goals in terms of certain outcomes, the institution that has to be developed to own and
work upon the goals, strengthening the institutions to follow the processes for good
governance, the capacities to be developed for the institutions to take up the journey, the
services those are to be delivered to the citizen and means to be followed including
personnel and the infrastructure which will be required to accomplish the task and
ultimately the people who judge the services and benefit in terms of outcome as the
ultimate goal for constantly giving their feedback for keeping the process on track. Those
aspects along with the strategy to be followed are briefly described below.
Sharing the vision in terms of human outcomes and setting goals locally
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The vision should be in terms of outcomes related to human development. While there is no end
to further improve the status in respect of education, health and income but some
minimum level of achievement across all Panchayats should be the immediate milestones
to be achieved. There should also be ways to measure the outcomes directly or through
proxy indicators at the local level. In terms of education the milestones will be what are
already accepted as rights in terms of ensuring elementary education for all. Thus the
milestone that each GP will be required to be achieved is that every child in its
jurisdiction completes class VIII standard of education and are in schools up to the age of
14 years. It should also be ensured that no child at that age is working as child labour.
The other related outcome should be to improve literacy rate through adult and
continuing education as well as to reduce the gender gap in literacy. There cannot be a
common goal like the first two components but each GP will have to work out its target
based on ground realities. The outcome in the field of health will be reduction in IMR
and MMR, which is the culmination of multi-dimensional interventions in the field of
public health. It will not be easy to calculate IMR or MMR at the GP level and to set
goals for all those bodies but what is possible is to monitor all events of death of infants
and pregnant mothers and to work for reducing the figures through the interventions
described in chapter III. In respect of income the immediate goal will be to take all the
families out of poverty, which may take different time in different GPs to achieve the
same, though it may in general take a long time. The goal is to be achieved through
several types of interventions. The immediate outcome to be observed is to augment the
income of the unskilled wage earners, who are in the lowest step of the economic ladder
and the same will be measured by a combination of number of days they get employment
from market and out of government programmes as well as the difference in wage
between the peak rate and the lean season in a year, which should continue to get
reduced. The other observable phenomenon to be monitored is the extent of reduction of
migration out of the area in distress, which should be brought down to nil. The worst
victims are those who are not able to perform manual labour and are out of employment.
Those are destitute families and the goal will be to provide them social security through
various social security measures like providing pensions and food security. The goal will
be to provide social security to all such families. All those are important goals of the
State and it is utopian to think that simply assigning those goals on the Panchayats will
result in improvement. On the contrary achievement on all those fronts will depend on
contribution from every level of government and the Panchayats will actively share the
vision to work out what they can contribute in achieving those ultimate goals. The task of
the State Government is to make the Panchayats internalize those basic goals related to
human development, make all their plans and programmes to pursue those goals and
based on the local context set their goals of what is achievable and in what time frame so
that all their actions follow the goals to be set by themselves. Thus every GP will have
their own Roadmap for achieving milestones related to the said outcomes, which they
will monitor locally and mobilize all their resources and actions for pursuing the same.
The outcome has to be assessed annually and shared with the people for their
participation in achieving the goals. Those activities which can be planned and
implemented locally will be the responsibilities of the Gram Panchayats and those are to
be undertaken by them when the higher level the Panchayats will play a stewardship role
and will mediate with higher tiers of government and other institutions on behalf of their
97
citizens for the desired outcome. This is easier said than done and the task will be to
strengthen the institution and let them acquire capacities for accomplishing the tasks.
Strengthening the Panchayat institutions
Several institutional aspects of the Panchayats have been discussed in chapter II. The Roadmap
for the State will be to let the Panchayat functionaries internalize the institutional aspects
of good governance as process of development and work out their own goals including
the time frame and measurable parameters for assessing the progress. The aspects which
are to be covered are participation of the people, horizontal sharing of responsibilities,
ensuring rule of law including financial disciplines and integrity, inclusiveness in
participation of members from political parties in opposition in various Standing
Committees, responsiveness to the poorest sections, developing partnership with civil
society organizations, promptness in decision making, transparency and accountability to
the people, efficient mobilization of resources and effectiveness in use of available
resources. It is difficult to set goals by the State Government for the Panchayats in terms
of those parameters. The role of the State will be to take up intensive advocacy for self
monitoring of those processes and continuous improvement out of their own. The process
has been started and every Panchayat has been asked to evaluate various institutional
aspects through a self-evaluation schedule (shown in Annexure). The same are being
filled up by all the Panchayats and will be assessed by themselves for working out their
own goals. The role of the State Government will be to facilitate the process and to
identify the weak Panchayats in terms of those parameters so as to make more intensive
facilitations by sending teams of experts on a regular basis. However, the major strategy
will be to allow the Panchayat to assess various aspects of their own, internalize the
process and set goals for themselves and seek the help of experts if they so want for
strengthening their own institutions.
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Role of Panchayat in the process of economic development of the people especially those
belonging to disadvantaged section of the society and also ensuring social justice for
them is finding increasingly more space in the whole spectrum of development
interventions of the State. It is found that they can play significant role in the field of
health, education, agriculture and other allied activities like pisciculture, animal resources
development, cottage industries and mini-industries, empowerment of women,
development of children, social welfare including welfare of backward classes, destitute
and physically challenged persons. It shall also have major role in development of
infrastructure in the countryside that will have a sustaining effect on development. It shall
create new employment opportunities for the people and expand the existing
opportunities. In short, Panchayat shall have an accentuated role in holistic development
in its area. The proposed amendment of the State Panchayat Act referred to earlier in
paragraph 1.5.1 shall encapsulate this role of the Panchayat in the development matrix.
Now, trivializing the role of the Panchayat in the projected development efforts, it cannot
be expected to achieve this uphill task on its own. The State Government shall have a
major role in building up higher capacity of the Panchayat in various fields. It will require
functional improvement, technical capability, augmented resources and the capacity to
utilize such resources. Besides, left alone, Panchayat cannot be expected to look after,
say, promotive and preventive health care, pre-school or primary education or promotion
of agriculture including building up irrigation facilities and such other fields. The role of
Panchayats shall be supplemented and consequential to the role of the State Government
in the related field. Panchayats shall perform especially such functions that require local
knowledge and responsibilities to the demands of the local community and shall identify
the schemes, their locations as also the beneficiaries of different schemes and shall create
awareness among the people about the programmes and schemes and shall facilitate easy
access to various benefits and their equitable distributions. Such functions of the
Panchayats have been captured in the matrix showing implementation strategy placed in
Appendix 9.1 of this document.
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Either in implementation of the development programmes or in the process of evaluation, trust

and confidence of the citizen takes the centre-stage. On ultimate analysis, the coin test of
success of a Panchayat is the extent to which it has earned the acceptability and the faith
of the people. With this objective in sight, a Panchayat body is required to interact as
frequently as possible with the people. For a Gram Panchayat, the forum of Gram Sansad
is a dependable platform to measure the acceptability of the citizens in the matter of
various functions performed by the Panchayats. Since meetings of Gram Sansads are held
statutorily twice in a year in the month of May and November and additionally as may be
felt necessary by the Gram Panchayat or as may be required, by order, by the State
Government, the Gram Panchayat has adequate scope for assessing the views of the
people and also respond to such views. In case of Panchayat Samiti and the Zilla
Parishad, it is not possible to interact directly with the people. As an alternative, Block
Sansad and Zilla Sansad have been constituted where the Panchayat Samiti and the Zilla
Parishad may get their performances audited. Block Sansad is composed of all members
of the Gram Panchayats within the Block and all members of the Panchayat Samiti that is
all people’s representatives within the area whereas the Zilla Sansad is composed of the
Pradhans of all Gram Panchayats, Sabhapatis, Sahakari Sabhapatis and all
Karmadhyakshas of the Panchayat Samitis within the district and all members of the Zilla
Parishad that is some selected representatives and most of the office bearers. Although
admittedly representatives of the people cannot be any substitute for the people, the
Panchayat Samiti and the Zilla Parishad may utilize the respective forum to assess the
quality and acceptability of their performance. On this view, it is statutorily provided that
the Panchayat body concerned shall hold meetings of the respective Sansads
compulsorily twice every year, place their performance report for deliberations, collate
and consider their views, advices and recommendations and shape their future plans and
actions accordingly. These Sansads shall not only act as watchdogs and whistle blowers
but also as guides and philosophers for achieving their goal of alround development.
Untied fund has a major role in the functional domain of the Panchayat bodies. Since the
Panchayats are recognized in the Constitution as units of self-government and have been
endowed with the responsibility for economic development and securing social justice for
the people within their respective jurisdiction, they should have access to reasonable
quantum of fund for discharging their responsibilities. Their own resources are meagre
and there is little scope to augment this resource base to much higher order. Again,
schematic funds devolved on them have restricted application. The problem can only be
addressed through generous inflow of untied fund. Such fund may be used as
supplemental to various scheme funds allotted to them as also for execution of schemes
and programmes drawn up by them for demand-driven programmes for development.
Delivery of services for social justice & economic growth
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The Panchayat institutions are to deliver a range of services and should also mediate with higher
tiers for proper delivery of services to be arranged by those bodies for reaching the same
to all for whom the services are designed. The details of the services have been described
in Chapter III and Chapter IV. The outcome to be achieved in various aspects of human
development will depend on the access and quality of services available to the citizen.
Each GP will be required to assess the availability of services to be delivered by the
Panchayats and the State Government to find out the gap in access and quality and work
out plan for improving the same. In respect of services delivered by the State
Government the Panchayats will mediate for bridging the gap and making best use of
available resources to reach the same to the most marginalised families. In this case also
it is difficult to prescribe roadmaps of individual Panchayats from above. The same has to
be worked out by each Panchayat by assessing their present status, the constraints and the
possibilities for improving the same. An exercise for self assessment of available services
by the Panchayats themselves has been initiated as per a self-evaluation schedule,
mentioned in section 8.3 and shown in the Annexure. The schedule is being filled up by
all the Panchayats and the same will be completed by 2006-07. This self-evaluation
exercise will serve the dual purpose of sensitizing the Panchayats on the importance of
availability and quality of those services as well as to identify the deficiencies for
working out the plan for improving the same. It will also help the State Government to
rank the Panchayats in terms of delivery of those services so that more facilitation could
be provided to the least performing Panchayats. This exercise will also be utilized by
each Panchayat to work out their Roadmap for planning and implementing various
interventions in improving both social and economic services towards the citizen. One
important component of the exercise will be to also identify gap in basic infrastructure
related to services needed for human development and economic growth so that the same
could be bridged by proper planning and deployment of resources available with the
Panchayats. The exercise for self-assessment will be carried out annually and since the
status will be assessed on a score-based ranking, the progress can be to some extent
quantified. However, being self assessment there could be tendency for over rating the
performance, which will become more objective in due course, making it easier to follow
a definite course of planned actions for improvement. The process will be helped by
preparing citizen’s charter by the Panchayats to publicly announce the quality and extent
of services for which they are responsible and taking feedback of the citizen for
evaluation of delivery of those services. Such a charter should not be imposed from
above but should come out of own exercises by respective bodies for which no time
frame can be prescribed by the state Government. However, the State Government will
advocate to have such charter adopted by each Panchayat and assist those to acquire
capacities to honour the charter.
Acquiring capacities by the Panchayat institutions
101
While the goals can be set, and may be uniform for all, the achievement will vary widely
depending on the maturity of institutional process and ultimately on the capacity of the
Panchayats. The issue of capacity building is extremely important and the most crucial in
influencing the outcome. This has again various components like capacity for mobilizing
people and taking up decentralized planning exercises including internalizing the issues
and focusing on the right priorities, capacity for mobilizing and effectively utilizing
resources, managing delivery of various services and implementation of various
programmes assigned on those bodies, evaluation of the output and the outcome and
building up necessary social capital and economic infrastructure for sustaining growth. In
this case also it is impossible for the State Government to set target and chart a Roadmap
for all the Panchayats. The same has to be carried out by each Panchayat based on their
local context. Even when it comes to building up the manpower resources by training the
official and elected functionaries the same training input may lead to different learning
outcome based on many factors. The strategy will be to plan certain activities related to
training and capacity building, as has been described in Chapter VI, for all the Panchayat
functionaries to reach some minimum level of understanding. More emphasis will be
given on identifying best practices in each district and organize extensive exposure visit
for peer learning. The same will be facilitated by hand holding support to the weak
Panchayats as already described. The state Government will also provide necessary
infrastructure and allied supports as mentioned in Chapter VI for developing training
infrastructure, providing computer and train personnel for use of ICT, which will enable
the Panchayats to function more efficiently.
Monitoring and Evaluation
One of the responsibilities of the State Government will be to closely monitor the progress of
strengthening of the Panchayats. As already mentioned the Panchayats will be made to
assess their performance through self evaluation formats. That will help the State
Government to rank progress on various aspects of performances of the Panchayats to
plan more facilitation and other interventions. However, apart from self evaluation there
will be studies and evaluation by expert organizations to evaluate the progress. The
evaluation reports will be shared with the Panchayats for internalizing the findings and
taking corrective measures of their own. In respect of the existing programmes and
services effort will be made to understand the achievement and failures by compiling
figures GP wise. In order that census and similar other data, which are collected revenue
mouza-wise by other agencies can be compiled for each GP it is necessary to ensure that
no GP contain a part of the mouza. At present there are around 16% of the mouzas which
are spread over more than one GP which makes it difficult to compile data GP wise.
Steps will be taken to split those mouzas before the next census so that census data can be
complied GP-wise. That will help to verify locally compiled data with data from census
or similar other operations.
The citizen and the Panchayat
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Inherent value of Panchayat governance system, its efficacy and justification are derived from its
closer proximity to the people, particularly its weaker sections. Various interventions of
the Panchayat also centre around their aims and aspirations, their deprivations and needs
and their weaknesses and strengths. In pursuance of this concept, the role of Panchayat is
not confined merely to build up a sustainable delivery mechanism for opportunities
created by it or by the Government and other agencies. It is also necessary for the
Panchayats to create consciousness among the people about their right for better
livelihood in one hand and their duties and responsibilities in realization of their rights on
the other. It is therefore necessary for the Panchayat to sensitise and motivate the people
through spread of information, education and communication so that they may raise their
demands on their primary needs of life in an informed and effective manner. They should
also be made conscious and responsive about their duties and responsibilities in the
process of realization of these demands. In other words, the citizens should be brought to
have participatory role in the whole process of development. In order to concretize this
endeavour, Panchayats should draw up a Citizens’ Charter incorporating therein Peoples’
rights and obligations relating to various fields of activities for development with holistic
approach. Such fields should include education, health, nutrition, expansion of livelihood
opportunities in agriculture, mini and household industries and service sectors. Such
charter shall be widely circulated and discussed in different forums so that people may
realise their rights and duties.
It is ultimately the people, who are the most important stakeholder of the Panchayats. The
success of establishing a more responsive and efficient Panchayat system has to be
ultimately judged by the people, who have the ultimate power to take corrective measures
for improving the system. However, most of them are not so aware of their roles and
responsibilities in developing the Panchayats as their own institutions and do not feel
encouraged to contribute unless they have some expectation of private gains. The State
Government will carry out advocacy measures for wider dissemination of information
related to functioning of the Panchayats and how interest of the poorest sections as well
as overall welfare of the society could be ensured by developing stronger local
government. The strength should be derived primarily from the people and not merely
from the statute or the upper tiers of government for better functioning of the Panchayats
to function as institutions for self government. It should be the citizen who should own
the Roadmaps of all the components to participate actively for realizing their goals and
the Panchayats carry out the process as their elected body.
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1. THE APPENDICES
Benchmark for Implementation Strategy of Roadmap

Implementing Strategy
Issues State Government Level PRI Levels
Activity Responsibility Timeframe Activity Responsibility Timeframe
1. Self (a) Developing schedule (a) SRD Cell (a) May 2006 for Understanding the The The process is
Assessment evaluation for the three tiers (b) Panchayat Development GP, objective, the Panchayat expected to be
of present of (b) Circulating and Officer (PDO) and Panchayat September schedule and body as a completed
status of institutional explaining self Accounts & Audit Officer 2006 for PS taking necessary whole at all and the data
Panchayat functioning evaluation formats to (PAAO) [Block level officials] and December action to complete the three tiers to be sent to
functioning of the three all Panchayat bodies for GP, District Panchayat & 2006 for ZP the self evaluation the State
and follow-up tier and facilitating PRIs Rural Development Officer (b) August 2006 process involving Government
intervention Panchayats to complete self- (DPRDO) for PS and for GP, all the elected by December
evaluation Commissioner, Panchayats & November representatives 2006 for GP,
Rural Development along with 2006 for PS and Government/ January 2007
the officials of Panchayats & and January Panchayat for PS and
Rural Development Directorate 2007 for ZP functionaries February
and Department for ZP 2007 for ZP
Eliminating (a) Finding out invalid (a) SRD Cell, the DPRDOs, the (a) February Correcting the The February
the errors in scores and intimating PDOs and the PAAOs 2007 invalid entries and Panchayat 2007
the data, those scores to (b) Block Development Officer (b) 15th March sending the body as a
validating DPRDO for correction (BDO) for GP, DPRDO for PS 2007 corrected figures whole at all
the scores and getting back the and Commissioner, Panchayats (c) May 2007 to the State the three tiers
and taking corrected figures & Rural Development for ZP Government
necessary (b) Validation of the (c) SRD Cell along with the
intervention scores for Statistical cell of the
for disbursement of Panchayats & Rural
upgraded Incentive Fund Development Department
performance (c) Analysis of the final (PRDD) and the Statistical Cell
on the basis data and taking of the Directorate of
of the scores necessary intervention Panchayats & Rural
obtained by to uplift the strengths Development (DPRD), West
the and to overcome the Bengal
Panchayats weaknesses of the
Panchayats
104
Key Issues State Government Level PRI Levels
2. Strengthening Participation (a) Advocacy and facilitation in (a) PRDD, DPRD, (a) September (a) Formation of (a) The Gram (a) December
of democratic at the formation of Gram Unnayan DPRDOs, Block 2007 Gram Unnayan Panchayat 2007
functioning of village level Samiti (GUS) in all the 45154 level officials (b) March 2008 Samiti (GUS) with (b) March
the Panchayats Gram Sansads in the State and the GP level in all the necessary 2008
(b) Capacity building of the GUS officials 45154 Gram help from
members to make the GUSs (b) Same as (a) Sansads in the the Block
functional State (b) The Gram
(b)
Capacity Panchayat
building of the with
GUS members necessary
help from
the Block,
District and
State
Organizing (a) Advocacy, facilitation and (a) PRDD, District (a) March 2010 (a) Organizing the (a) Sishu O Nari (a) March
the poor for guidance for organizing the Rural (b) March 2011 poor, Unnayan, 2010
their poor, particularly the women, Development (c) March 2012 particularly the Janakalyan (b) March
participation in Self Help Groups (SHGs) in Cell (DRDC), women, in O Tran 2011
in such a manner that every poor Block level SHGs Sthayee (c) March
Panchayats rural family has at least one officials, (b) Playing pro- Samiti of the 2012
member included in an SHG specially Block active role in PS, Nari,
(b) Special drive to improve the Livelihoods the drive to Sishu
understanding of the groups Development improve Unnayan O
with respect to the socio- Officer (BLDO) understanding Samaj
economic situations in their (b) Same as (a) of the groups Kalyan Upa-
own context and services (c) Same as (a) by (c) Negotiating Samiti of the
available for its improvement negotiating with with the banks/ GP and the
so as to enable them to avail of the banks/ financial GUS
those services and participate financial institutions to (b) Same as (a)
in social and economic institutions provide access and the
development of the area through to credit for all Clusters and
including augmenting their State/District SHGs Federations
own income Level Bankers (c) Office
(c) Providing access to credit Committee bearers of
from banks/ financial (SLBC/DLBC) the
institutions for all SHGs Panchayats
105
2. Strengthening Organizing the (d) Advocacy, (d) PRDD, (d) March (d) Formation of SHG (d) Nari, Sishu (d) March 2011
of democratic poor for their facilitation and DRDC, 2010 Clusters in all GP and Unnayan O (e) March 2012
functioning of participation guidance for Block level (e) September setting up their own Samaj Kalyan (f) March 2012
the Panchayats in Panchayats formation of SHG officials, 2010 offices in the Upa-Samiti of
Clusters in all GP specially (f) March immediate vicinity of the GP with the
(e) Advocacy, BLDO 2011 the Panchayat offices help of SHG
facilitation and (e) Same as (d) (e) Formation of SHG representatives
guidance for (f) Same as (d) Federations in all PS (e) Sishu O Nari
formation of SHG and setting up their Unnayan,
Federation in all PS own offices in the Janakalyan O
(f) Building capacities of immediate vicinity of Tran Sthayee
the Panchayats to the Panchayat offices Samiti of the PS
utilize the Clusters (f) Building capacities of with the help of
and the Federations the next level Cluster members
as their agents for Panchayats to utilize (f) ZP to build
poverty alleviation the Clusters and capacity of PS
and making social Federations and PS to build
changes capacity of GP
Strengthening (a) Facilitating the (a) PRDD, (a) Ongoing (a) Planning the district (a) The Panchayat (a) Ongoing
functioning of Standing Committees DPRD, process sector schemes of body in general process with
the Upa- and Upa-Samitis so District level with more line departments and the more
Samitis and that they can provide officials of effective (b) Planning the district concerned effective role
Standing input in planning the various facilitation sector schemes to be Sthayee/Upa- from April
Committees district sector departments, from April implemented by the Samiti in 2007 on
schemes of line Block level 2007 Panchayats particular with release of
departments officials of (b) Ongoing the help of the fund and
(b) Facilitating the various process concerned line specific
Standing Committees departments department assignment
and Upa-Samitis in (b) Same as (a) officials (b) Ongoing
planning the district (b) Same as (a) process
sector schemes to be
implemented by the
Panchayats
106
2. Strengthening Strengthening (c) Interactions (c) Various State (c) The process (c) Ensuring that the (c) Karmadhyaksha (c) Ongoing
of democratic functioning of between the State Government for Standing elected members of and Secretary of process, to
functioning of the Upa- level functionaries, departments, Committees on the Standing the concerned be
the Panchayats Samitis and including ministers the nodal role Health, Committees of the Standing completed
Standing in charge of being played Nutrition has Zilla Parishads Committees by March
Committees departments and by the already started. effectively (d) Karmadhyaksha 2010
the elected as also Development The process participate at the and Secretary of (d) Same as
appointed and Planning for Standing interaction the concerned (c)
(departmental Department Committee on programmes and Standing
officials) members (d) District level Education is fully realise the Committees
of the Standing officials of being devised. task ahead
Committees of the various State The process (d) Ensuring that the
Zilla Parishads at Government for these SCs elected members of
least once in a departments will be the Standing
quarter for guiding operationalised Committees of the
and apprising them by 2007-08. Panchayat Samitis
of the State policy For the other effectively
and development Standing participate at the
programmes Committees interaction
highlighting area of the process programmes and
functions of will be fully realise the
respective Standing completed task ahead
Committees within the first
(d) Interaction on the three years of
same issues 11th Five year
between the district plan period.
level officials and (d) Ongoing
the members of the process, all
Standing Standing
Committees at the Committees to
Block level be covered by
March 2010
107
2. Strengthening of Strengthening (e) Integration (e) Block level (e) All Upa- (e) Ensuring that the PSs (e) Karmadhyaksha (e) Ongoing
democratic functioning of between the Block and higher Samitis to organize quarterly and Secretary of process, to
functioning of the the Upa- level Standing level officials be meeting between the the Sthayee be
Panchayats Samitis and Committees and of various covered Sthayee Samiti and Samiti (SS) and completed
Standing the GP level Upa- State by March the related Upa- the Sanchalaks of by March
Committees Samitis with Government 2010 Samitis and also the related Upa- 2010
members of related departments ensuring that the Samitis (US)
functional elected members of with the help of
committees or the Upa-Samitis of the office bearers
related members the GPs effectively of the PS and
where there is no participate in those GPs respectively.
functional meetings and fully
committee, of the realise the task ahead
GUS as much as along with ensuring
possible participation of the
members of the
functional
committees of the
GUS as much as
possible
(f) Facilitating the (f) PRDD, DPRD, (f) 2007-08 (f) Determination of (f) The concerned (f) 2007-08
Panchayat bodies District and for ZP, Sthayee/Upa-Samiti Panchayat body for ZP,
to determine likely Block Level 2008-09 wise prior allocation in general and 2008-09
allocation of Officials of for PS and in different sectors of the respective for PS and
programme/activity various State 2009-10 activities and Sthayee/Upa- 2009-10
wise fund from Government for GP preparation of Samiti in for GP
State budget during Departments Sthayee/Upa-Samiti particular
the next year along wise budget on the
with advocacy, basis of such data
capacity building
and facilitation for
preparation of
Sthayee/Upa-
Samiti wise Budget
108
2. Strengthening of Defining the (a) Taking steps for (a) PRDD, (a) March (a) Ensuring that the (a) The concerned (a) Ongoing
democratic roles of defining their roles as DPRD, 2009 members join the Panchayat process
functioning of the members who people’s DPRDO and capacity building body as a
Panchayats are not office representatives for Block level programme through an whole and the
bearers constructive appraisal officials, interactive process and office bearers
of the functions of the specifically remain faithful to their in particulars
Panchayat body PDOs and roles
emphasizing their PAAOs
rights and
responsibilities and
setting up mechanism
for their capacity
building and
monitoring of the
process
Increasing (a) Capacity building of (a) PRDD, (a) March (a) Ensuring that the (a) The concerned (a) Ongoing
participation the members of the DPRD, 2010 members join the Panchayat process
of the political majority to pay heed DPRDO and (b) March capacity building body as a (b) Ongoing
parties in to the voice of the Block level 2010 programme and practice whole and the process
opposition minority, accept good officials, to create conditions for office bearers
suggestions and place specifically participation of the in particular
all facts before them PDOs and members from the (b) The concerned
to justify decisions, if PAAOs political parties in Panchayat
taken with disregard (b) Same as (a) opposition with body as a
to the suggestions of freedom, mutual respect whole and the
the minority opinion and dignity office bearers
(b) Capacity building of (b) Ensuring that the in particular
the members of the members join the
minority so that they capacity building
do not feel programme and try to
discouraged and participate effectively
frustrated and may
continue to
participate
meaningfully and
effectively
109
2. Strengthening Increasing (c) Initiative for active (c) PRDD, (c) March (c) Creating (c) The office (c) March 2009
of democratic participation involvement of political DPRD, 2009 conducive bearers of ZP for creating
functioning of of the political parties in building a consensus District and environment and PS a discernable
the Panchayats parties in approach towards the Block level for consensus desired
opposition development process officials of building ambience
considering that the process State although this
will be beneficial to all the Government will be a
political parties since all of continuous
them are in opposition in one process
or the other Panchayat bodies
(at the district & block level)
Functioning of (a) Initiative to make the District (a) PRDD (a) December (a) Facilitating the (a) The Panchayat (a) Ongoing
the District Council more representative (b) PRDD 2007 District bodies in process
Council by bringing in larger number (c) PRDD (b) December Council in its general and the (b) No
of members of different 2007 functioning Zilla Parishad timeframe
political colours so that (c) December (b) No activity in particular (c) No
impartial and balanced 2007 (c) No activity (b) No timeframe
approach in all matters may be responsibility
ensured (c) No
(b) Initiative to ensure that the responsibility
advices and recommendations
of the District Council be
enjoined upon the Zilla
Parishad and the District
Magistrate (when necessary,
the State Government) to issue
specific directions on that
basis
(c) Initiative to ensure that the
advices and recommendations
of the Council be placed
before the auditors at the time
of their inspections for their
consultation
110
2. Functioning (d) Initiative to strengthen its staff support (d) PRDD (d) March (d) Maintaining a conducive (d) Office (d) On-
Strengthening of the District for augmenting its delivery mechanism 2010 atmosphere following the bearers of going
of democratic Council rules and procedure laid ZP process
functioning of down in this behalf
the Improving (a) Improving upon the institutional (a) PRDD, (a) March (a) Ensuring that all concerned (a) The (a) March
Panchayats accountability mechanism for organizing Gram DPRD 2009 attend the capacity building respective 2010
Sansads, Block Sansads and Zilla (b) PRDD, (b) March programme, own the Panchayat
Sansads by working out the essential DPRD, 2010 mechanism and practice it body in
disclosures to be made in those District & effectively in reality general
meetings, format for disclosures and Block and the
standardization of some of the essential level office
items to be included in the discussions officials bearers of
including performance reporting, that body
planning procedure, budget preparation in
process, audit observations and action particular
taken reports on audit observations and
District Council notes
(b) Capacity building of all concerned to
ensure quality transactions in such
forum.
2. Other ethical (a) Developing citizen’s report card to (a) PRDD, (a) March (a) No activity initially, but (a) The (a) March
Strengthening steps for good judge the ethics being followed in the DPRD, 2010 after the card is introduced respective 2010
of democratic governance affairs of the Panchayat along with District & (b) March the task of accepting it and Panchayat (b) March
functioning of appropriate advocacy programmes for Block 2009 acting accordingly body in 2009
the the people to demand highest standards level (c) March (b) Facilitating awareness general (c) March
Panchayats of honesty, integrity and objectivity officials 2010 generation among people, and the 2010
(b) Taking initiative so that there is access (b) Same as creating conducive office
to all information for upholding the (a) environment in the bearers of
spirit of Right to Information and (c) Same as Panchayat offices and that body
encourage the people to share it to (a) inculcating right spirit in
ensure informed participation in all among the office bearers particular
deliberations and the members (b) Same
(c) Capacity building of citizens to sift and (c) Capacity building of as (a)
evaluate available information in the citizens by making available (c) Same
light of rules and procedures and the the rules and procedures as (a)
ground realities and also constraints, if any
111
2. Strengthening Interface (a) Encouraging civil society (a) PRDD, DPRD, (a) Ongoing (a) Facilitating the (a) The (a) Ongoing
of democratic between to meaningfully participate in District & process, a initiative taken respective process, a
functioning of Panchayat the functioning of the Block level significant from the State Panchayat significant
the Panchayats and civil Panchayats through promotion officials development Government level bodies development
society of civil societies and creation (b) Same as (a) is expected (b) Same as (a) (b) Same as is expected
of an ambience so that they by March (a) by March
may mutually reinforce each 2011 2011
other in better understanding (b) Launching (b) A
of the issues and strengthening by continuous
the processes of good December process after
governance 2007 and December
(b) Launching Civil Society then a 2007
Support Programme (CSSP) in continuous
the state primarily with the process
purpose of supporting a more
accountable civil society
influencing the policy of
governance and its practices to
ensure better access to services
by the poor
3. Improving Water (a) Capacity building for (a) Water (a) March 2009 (a) Conservation of (a) Jana- (a) Ongoing
core civic supply conservation of water and Investigation water for swasthya process, a
services and regulation for use of ground and sustainability of O significant
sanitation water Development drinking water Paribesh development
Department sources and & Krishi, is
(WIDD), regulation of use of Sech O supposedly
Public Health ground water for Samabay expected by
Engineering use in industry/ SS of March 2010
Department agriculture to be ZP/PS and
and PRDD undertaken by both Shiksha O
the GP and the Jana-
higher tiers swasthya
depending on the & Krishi
geographical O Prani
contours of the area Sampad
and the technology Bikash US
112
involved of GP
3. Improving Drinking (b) Monitoring water (b) Public (b) Ongoing (b) Ensuring water supply to all (b) Janaswasthya O (b) March
core civic water supply to all the Health process the habitations Paribesh Sthayee 2009
services supply habitations Engineering (c) Ongoing (c) Arrangement for testing of Samiti of PS with (c) March
and (c) Facilitating in Department process water by the laboratory or support from the 2010
sanitation establishment of more (PHED) and (d) March RSM on payment same of ZP (d) March
laboratories and PRDD 2009 (d) Developing data base for (c) Janaswasthya O 2009
monitoring the running (c) PHED and (e) Ongoing habitations with seasonal Paribesh Sthayee (e) March
laboratories for water PRDD process shortage of supplies and Samiti of PS with 2009
testing along with (d) WIDD and (f) Ongoing those having water quality support from GP (f) March
taking initiative so that PRDD process problems for collection of 2012
the PS utilizes the Rural (e) PRDD, (g) March (e) Setting up water source samples (g) March
Sanitary Marts (RSM) District & 2010 based user committees for (d) Same as (b) and in 2010
for surveillance of Block level maintenance of installations addition the GP
water quality officials through regular collection of level data to be
(d) Facilitating in (f) PHED, user charges and acquisition compiled by the
development of a data PRDD, of skills by selected Janaswasthya O
base for habitations District & (women) users Paribesh Sthayee
with seasonal shortage Block level (f) Providing habitation based Samiti of PS
of supplies and those officials small piped water supply (e) Shiksha O
having water quality (g) District and schemes under Swajaldhara Janaswasthya Upa-
problems Block level with connection to every Samiti of GP and
(e) Advocacy for setting up engineers of family and group stand post Gram Unnayan
water source based user PHED in certain cases with Samiti
committees recovery of at least 50% of (f) Janaswasthya O
(f) Promotion of habitation the running cost and Paribesh Sthayee
based small piped water assigning maintenance Samiti of ZP and
supply schemes under liabilities to the user group PS with support
Swajaldhara (g) Taking initiative so that the from the Shiksha O
(g) Capacity building of the Sanitary Marts attend the Janaswasthya Upa-
Rural Sanitary Marts capacity building Samiti of GP
(RSM) to also deliver programme and then (g) The office bearers
water supply utilizing their service for of the PS and the
engineering related water supply engineering Janaswasthya O
services works Paribesh Sthayee
Samiti of PS
113
3. Improving Drinking (h) Setting-up surface (h) PHED (h) March (h) Promotion of (h) Janaswasthya O Paribesh (h) March 2010
core civic water water based water (i) PRDD, 2009 surface water based Sthayee Samiti of ZP for setting- (i) March 2009
services supply supply DPRD, (i) March water supply up, Janaswasthya O Paribesh (j) March 2010
and arrangements in District & 2010 arrangements in Sthayee Samiti of PS with (k) March 2010
sanitation areas with arsenic Block (j) March problem areas with support from GP for distributing for sewerage
contamination/ level 2010 assistance from water to the households after system,
salinity or officials (k) March PHED receiving water in bulk from the March 2011
exhibiting seasonal (j) PRDD, 2009 (i) GP/Block wise PHED for solid
problem because of DPRD, plan for such 100% (i) Janaswasthya O Paribesh waste
excess drawal of District & coverage in each Sthayee Samiti of PS, Siksha O management
ground water Block district depending Janaswasthya Upa-Samiti of GP and
(i) Advocacy, level on the present and the entire progress to be conservancy
facilitation and officials progress and monitored by the Janaswasthya
monitoring for (k) PRDD, keeping the area O Paribesh Sthayee Samiti of ZP
100% access to DPRD, free from open (j) Janaswasthya O Paribesh
safe sanitary toilets District & defecation Sthayee Samiti of ZP,
in all the Block (j) Providing Janaswasthya O Paribesh
habitations level sanitation facilities Sthayee Samiti of PS and Siksha
(j) Advocacy, officials at all public places O Janaswasthya Upa-Samiti of
facilitation and along with GP following the principle of
monitoring to maintenance subsidiarity and the monitoring
ensure sanitation (k) Planning to ensure the progress of the entire ZP area
facilities at all sewerage system in to be done by the Sthayee Samiti
public places each habitation, of ZP
(k) Capacity building planning for solid (k) Preparation and implementation
of the PRI waste management of the plan by the Siksha O
functionaries for in the habitations, Janaswasthya Upa-Samiti of GP
sewerage and solid planning for securing support from Gram
waste management conservancy Unnayan Samiti (GUS) with
and also for services in the facilitation and monitoring the
providing required areas and progress of the GPs by the
conservancy implementing the Janaswasthya O Paribesh
services in the plans Sthayee Samiti of PS and the
areas where it is progress of the PSs by the same
necessary Sthayee Samiti of ZP
114
3. Services (a) Advocacy and (a) PRDD, Health (a) Ongoing (a) Cent percent registration of (a) Gram (a) March
Improving related to campaigning for cent and Family process death and birth Panchayat 2010
core civic public percent registration of Welfare (b) Ongoing (b) Maintaining vital statistics (b) Gram (b) Ongoing
services health birth and death Department process properly and analysing it for Panchayat as a process,
(b) Capacity building and (HFWD) and (c) March reaching services related to whole and expected
facilitation to maintain Information and 2008 family planning, mother Artha O progress
and analyse vital statistics Cultural Affairs (d) Ongoing care and child health Parikalpana by March
(c) Ensuring that basic Department process interventions, campaigning Upa-Samiti in 2010
immunization of 6 (ICAD) (e) March for following the legal particular (c) March
diseases are available at (b) PRDD, DPRD, 2008 provision related to the age (c) Monitoring by 2008
the Primary Health Sub- SIPRD, District (f) Ongoing at marriage the Siksha O (d) March
Centres (PHSC) and at and Block level process (c) Monitoring whether the Janaswasthya 2010
the Primary Health officials service is available and if US of GP and (e) March
Centres (PHC) on at least (c) HFWD, Block not, mediating with BMOH mediating with 2008
two fixed days in a week Medical Officer to ensure the service BMOH by the (f) Ongoing
(d) Campaign and awareness (Health) (d) Mobilizing the support and Janaswasthya process,
building for cent percent [BMOH], Health participation of the parents O Paribesh SS full or
immunization of new workers of PHC and the community to take of PS near-full
born babies and PHSC benefit of the services and (d) Siksha O coverage
(e) Ensuring availability of (d) Same as (c) and keeping child-wise track of Janaswasthya is
tetanus vaccination and PRDD, Block the actual coverage by US of GP and expected
provision for pre-natal and GP level taking help of the ANMs, the GUSs by March
and post-natal check-ups officials and ICDS workers and GUSs (e) Monitoring by 2010
at the Primary Health workers (e) Monitoring whether the the Siksha O
Sub-Centres (PHSC) and (e) HFWD, Block service is available and if Janaswasthya
at the Primary Health Medical Officer not, mediating with BMOH US of GP and
Centres (PHC) on at least (Health) to ensure the service mediating with
two fixed days in a week [BMOH], Health (f) Mobilizing the community BMOH by the
(f) Campaign and awareness workers of PHC with the help of Accredited Janaswasthya
building to ensure cent and PHSC Social Health Activists O Paribesh SS
percent pregnant women (f) Same as (e) and (ASHA), women SHGs and of PS
take the tetanus PRDD, Block GUSs to ensure cent percent (f) Siksha O
vaccination and avail of and GP level coverage and keeping Janaswasthya
the pre-natal and post- officials and records US of GP and
natal medical check-ups workers the GUSs
115
3. Services (g) Ensuring (g) HFWD (g) March (g) Monitoring the arrangements and mediating (g) Monitoring and (g) March 2009
Improving related to arrangements (h) PRDD, 2009 with the HFWD officials at the block level if mediating by GP (h) March 2010
core civic public for at least Women & (h) Ongoing necessary, developing infrastructure in the GP with the help of for
services health 80% Child process head quarter PHSC or in other suitable places PS, developing perceptible
institutional Develop- (i) Ongoing for safe delivery of mothers in the areas where infrastructure at achievement
deliveries ment and process delivery institution is far off with the help of PHSC by GP but the
(h) Ensuring that Social the ANMs and arranging skilled birth with support process will
all Welfare attendant in those areas where no option for from State continue
nutritional Depart- institutional delivery is available government, (i) Ongoing
support ment (h) Ensuring that all the children of the area up to arranging skilled process, due
programmes (WCDSW the age of three years are brought under birth attendant by progress is
operate with D) regular surveillance through the ICDS Siksha O expected by
full efficacy (i) HFWD programme or otherwise, monitoring, Janaswasthya US March 2010
(i) Ensuring that aggregating and analyzing nutrition related of GP with
all initiatives data, mostly collected in the ICDS centres for participation of
of the all possible interventions, monitoring and GUS
Government analysis of the weight at birth and latter (h) Nari, Sishu
to prevent months of all the babies, identifying the Unnayan O
communicab malnourished children and ensuring that they Samajkalyan US
le diseases get adequate supplementary nutrition, of GP with the
operate with increasing awareness of the people for help of GUSs,
full efficacy promotion of adequate nutrition for all, ICDS workers
spreading awareness related to breast feeding (i) Awareness
and promotion of low cost nutrients including building by
motivating the poorer families for developing Janaswasthya O
kitchen garden Paribesh SS of
(i) Awareness building and skill training for ZP/PS and
control and home management of water-borne Shiksha O
diseases, awareness building on AIDS, Janaswasthya US
Thalasemia and other diseases, intimating of GP, initiatives
HFWD officials on any incidence of at the time of
communicable diseases, providing local outbreak by the
supports to government in containing the GP as a whole
same, along with taking up local measures for
preventing recurrence of such incidents
116
3. Improving Services (j) Ensuring that vector (j) HFWD (j) Ongoing (j) Taking local measures for (j) Shiksha O (j) March 2010
core civic related to control measures be (k) HFWD, process vector control and ensuring Janaswasthya (k) March 2009
services public available in the need- PRDD and (k) As may be participation of the people in Upa-Samiti of (l) March 2009
health based areas Cabinet decided by all such measures and keeping GP in for
(k) Ensuring that the (l) Health the Cabinet the area free from open convergence significant
Panchayats be legally Supervisors (l) Ongoing defecation with GUSs coverage
empowered for food of HFWD process, (k) Control in the sale of (k) The GP as a although the
safety (m) HFWD, significant readymade food in the areas whole process will
(l) Conducting audit of PRDD with coverage to where incidence of (l) Shiksha O continue
death of children and support from be ensured communicable diseases have Janaswasthya (m) March 2008
pregnant mothers and the by March been found, linking issuance Upa-Samiti of (n) March 2009
reporting the causes Panchayats 2009 and renewal of trade license the GP in
to the GP (n) HFWD, (m) March 2008 certificates for food related general and the
(m) Ensuring that Doctors PRDD (n) March 2009 business with hygienic safety mediating role
are available in each (l) Acting on the basis of such to be played by
GP (either there is a reports by taking up suitable the GP office
BPHC or a PHC interventions locally as well as bearers and
within the GP area or mediating with the higher tiers higher tiers of
a dispensary at the as well as the officials of the Panchayats
head quarter sub- Health & Family Welfare where
centre where doctor Department for initiating necessary
facility is available at possible measures in (m) Shiksha O
least once a week) preventing such deaths Janaswasthya
(n) Support to develop (m) Running and managing the Upa-Samiti of
proper infrastructure dispensaries along with GP
at the head quarter sharing the expenditure of (n) The GP as a
sub-centres along doctor and medicine with the whole and the
with labour room State Government Shiksha O
facilities at those (n) Developing proper Janaswasthya
places where infrastructure at the head Upa-Samiti in
Government health quarter sub-centre along with particular
centres are far away labour room facilities at those
places where Government
health centres are far away,
managing and maintaining it
117
properly
3. Services (a) Devolving all the non- (a) School (a) March (a) Developing and (a) Partial responsibility (a) March
Improving related to academic functions related Education 2010 maintaining buildings and is already being taken 2012
core civic universal to school education to Dept. (b) Prefer- other physical by the GP/PS, but full (b) March
services literacy and Panchayats (SED) ably by infrastructure like water responsibility with 2010
elementary (b) Placing the services of field (b) SED March supply and sanitation respect to primary and (c) September
education functionaries of SED to (c) SED and 2010 facilities, play grounds etc. upper primary 2008
Panchayats and giving them Ministry (c) Expec- in schools and alternative education centres to (d) March
a related designation of Human tedly by education centres be taken by the 2008
(c) Devolving responsibilities in Resource March (b) Utilisation and monitoring Shiksha, Sanskriti, (e) (i)
respect of activities being Develop- 2010 of services placed Tathya O Krira SS of Ongoing
taken up under the Sarva ment (GoI) (d) March (c) Making the concerned PS process, to
Shiksha Abhiyan to the (d) Facilita- 2008 SS/US more effective to (b) Shiksha, Sanskriti, be
Panchayats (Shiksha, tion : (e) Ongoing discharge the Tathya O Krira SS of completed
Sanskriti, Tathya O Krira SS PRDD, process responsibilities of SSA PS under guidance of in every
at ZP/PS level and Shiksha Facilita- effectively ZP Gram
O Janaswasthya US at GP tion and (d) Opening SSK/ MSK on (c) The SS/US itself with Sansad by
level) and dissolving District speedy the basis of the proposals facilitation from SED March
SSA Committee approval : from the community and and PRDD officials 2009,
(d) Facilitation for opening up implement forwarding proposals for (d) SSK/MSK – GP to (ii) Same
alternative education centres -ing EGS, BC and RMV send proposals to PS, as (i),
(Shishu Shiksha Kendra, agency of centres PS to ZP and ZP to (iii)
Madhyamik Shiksha SSA at (e) (i) Preparation of Child approve in September
Kendra) and apart from State and Register consultation with 2008,
facilitation for opening up, District (ii) Identifying out of PRDD (iv)
speedy approval of the levels school children by name EGS/BC/RMV – GP Ongoing
proposals of other (e) SED, (iii) Enrolling all the out to send proposals to process,
alternative education centres Implement of school children through PS and PS to District significant
(Education Guarantee -ing house to house campaign SSA Committee progress is
Scheme centre, Bridge agency of at institutions with suitable (e) (i) – (iii) : VEC with supposed
Course centre and Rabindra SSA and timing the help of GUS, to be
Mukta Vidyalaya) to ensure PRDD (iv) Monitoring attendance monitoring by GP achieved
access at all habitations involving (v) Mediating parents- (iv) GP with the help by March
(e) Campaign and provisioning Panchayats teacher interface of VEC/GUS 2008
enabling environment for and (v) Same as (iv) (v) Same
universal enrolment and commu- as (iv)
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retention nity
3. Services (f) Devolving the (f) SED and (f) Desirable : (f) Running and managing (f) Shiksha O (f) Ongo
Improving related to responsibility of the Ministry of March 2008 Mid Day Programme Janaswasthya US ing
core civic universal Mid Day Meal Human (g) Desirable : effectively (ensuring full of GP with the help (g) 80%
services literacy and programme totally to Resource March 2008 coverage, quantity and of GUS and VEC, literacy
elementary GP including local Development quality) encouraging monitoring and to be
education procurement of rice (GoI) community contribution supervision by achieved
(g) Devolving activities (g) Mass and community Shiksha, Sanskriti, by March
related to adult, non- Education monitoring Tathya O Krira SS 2011
formal and Extension (g) Bringing the entire of PS and ZP
continuing education Department citizenry from out of (g) Shiksha O
to Panchayats (MEED) and illiteracy through local Janaswasthya US
National initiatives involving the of GP, to be
Literacy GUS monitored by
Mission Shiksha, Sanskriti,
Tathya O Krira SS
of PS and ZP
Road (a) Capacity building of (a) PRDD, DPRD, (a) March 2008 (a) Preparing list of existing (a) ZP & PS – Purta, (a) March
connectivity the Panchayat bodies SIPRD, (b) To start after roads (in the Road register Karya O Paribahan 2009
to prepare a list of District and Panchayat with necessary details, SS, GP – Shilpa O (b) To start
roads already owned Block level election in which to be updated each Parikathama US after
by them or required officials 2008 and year) owned by their body (b) Same as (a) Panchayat
to be constructed by (b) Same as (a) expected to or proposed to be election in
them to provide be constructed by them, 2008 and
effective connectivity completed showing the roads in map expected
to all the habitations by March and making the maps to be
along with showing 2009 public for their knowledge completed
them in map and comments by March
(b) Capacity building of (b) Preparing a perspective 2009
the Panchayats for roads plan showing the
preparation of list of roads to be
perspective roads constructed or upgraded
plan to satisfy the
specifications, approving
it in the general body
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considering the comments

and implementing it
3. Road (c) Capacity (c) PRDD, DPRD, (c) Ongoing (c) Maintenance of roads owned by (c) ZP & PS – Purta, (c) Ongoing
Improving connectivity building for SIPRD, process the Panchayats in such a manner Karya O process,
core civic proper and District and (d) March that value of the total road assets Paribahan SS, complete
services effective Block level 2009 does not get reduced and there is GP – Shilpa O Road
maintenance of officials (e) Ongoing no need for fresh capital Parikathama US Register
roads with (d) Same as (c) process investment to reconstruct the road (d) Same as (c) to be
specific budget (e) PRDD, within its life span, preparing Road (e) ZP & PS – Purta, prepared
provision for the District and Maintenance Register Karya O by March
same from TFC, Block level incorporating physical and Paribahan SS, 2009
SFC and Own officials financial details of all maintenance GP – Shilpa O (d) March
funds along with and updating it regularly and Parikathama US 2009
preparation and sharing it with the people as a part (e) March
regular updating of Annual Report 2011
of Road (d) Introducing road safety measures
Maintenance such as putting up proper road
Register signs particularly in sharp turns,
(d) Capacity controlling traffic speed in
building of the congested areas, educating the
Panchayats for inhabitants about all safety
introducing road measures and monitoring if there is
safety measures any place where accidents are
(e) Advocacy for occurring repeatedly for taking
street lighting in necessary action
the roads owned (e) Street lighting on their roads where
by the it passes through habitation or
Panchayats require lighting on safety ground
Irrigation, (a) Capacity (a) Water (a) Ongoing (a) (i) Installing small irrigation (a) (i) Krishi, Sech (a) (i) & (iii)
drainage building for Investigation process, sources, O Samabay SS Ongoing,
and flood watershed and significant (ii) developing watershed and of PS and Krishi (ii)
protection development to Development progress (iii) provisioning field channels for O Prani Sampad ongoing,
create maximum Department expected irrigation Bikash US of good
irrigation (WIDD), to be GP, coverage
potential in PRDD, achieved (ii) & (iii) Krishi is
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sustainable District and by March O Prani Sampad expected

manner Block level 2009 Bikash US of GP by March
officials 2012
3. Improving Irrigation, (b) Advocacy for (b) PRDD, (b) Ongoing (b) Providing appropriate (b) Shilpa O Parikathama (b) March
core civic drainage and appropriate drainage District and process drainage facilities for US of GP, Purta, Karya 2012
services flood facilities for each Block level (c) Ongoing each habitation O Paribahan SS of PS if (c) Ongoing
protection habitation officials process (c) Maintaining the the scheme is beyond process
(c) Taking major flood (c) Irrigation traditional Zamindary the technical
protection measures and and embankments and competency of GP or it
providing support to Waterways taking up other local spreads beyond one GP
local flood protection Department measures for flood (c) Purta, Karya O
measures taken by the (IWD) protection Paribahan SS of PS
Panchayats with technical support
from ZP and IWD and
same SS of ZP when the
scheme is beyond the
competence of PS
Housing and (a) Advocacy, campaign, (a) PRDD, (a) Ongoing (a) Providing durable (a) Shilpa O Parikathama (a) March
development assistance and District and process, houses to all US of GP 2012
of habitat monitoring to ensure Block level significant households (including
availability of durable officials progress those who do not have
houses to all households expected any homestead land)
and development of by March and developing proper
proper habitat for 2012 habitat for healthy
healthy living living
Sanctioning (a) Capacity building of all (a) PRDD, (a) Ongoing (a) Sanctioning building (a) Shilpa O Parikathama (a) Ongoing
building the technical staffs of DPRD, process, plan and enforcing US of GP or Purta, process,
plan and the Panchayats in the SIPRD, strong other regulations for Karya O Paribahan SS appreci-
enforcing context of growing trend District and capacity to community living in of PS/ZP (for bigger able
other for construction of Block level be view of the growing structures as per progress is
regulations multi-storied buildings officials developed trend for construction specification) supposed
for to cope with the by March of multi-storied to be
community increasing density of 2009 buildings to cope with achieved
living population keeping in the increasing density after
mind the need for of population keeping March
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protecting environment in mind the need for 2009

protecting
environment
3. Improving Marketing (a) Advocacy and (a) PRDD, (a) March (a) Promoting one marketing (a) Shilpa O Parikathama US (a) March
core civic and other capacity DPRD, 2010 centre cum business hub in of GP in convergence 2012
services facilities for building of the SIPRD, every GP for meeting the with Krishi O Prani
promotion of Panchayats to District and local needs of the area Sampad Bikash US of GP
economic promote Block level (unless the area is catered by to promote GP level
activities marketing officials one or more bigger centres cnetres, bigger centres to
centre cum promoted by PS/ZP) be promoted by Purta,
business hub Karya O Paribahan SS of
for meeting the PS/ZP in collaboration
local needs of with Krishi, Sech O
the area Samabay SS of PS/ZP
Issuing trade (a) Capacity (a) PRDD, (a) Ongoin (a) Issuing trade registration (a) Artha O Parikalpana US (a) Ongoing
registration building of GP DPRD, g certificates and licenses of GP except for offensive process,
certificates and PS for SIPRD, process systematically not only for and dangerous trades and more than
and licenses issuing trade District and augmenting resources but Artha, Sanstha, Unnayan 90%
registration Block level also for providing required O Parikalpana SS of PS coverage
certificates and officials services through the for offensive and is
licenses network of trades and dangerous trades expected
systematically businesses in the locality, by March
to reach ensuring environmental 2010
optimum level sanitation and eco-friendly
of trading ambience, preventing
activity in the unlawful business and
area keeping tab on trades and
businesses in the area
Special (a) Capacity (a) PRDD, (a) March (a) Providing improved civic (a) GP as a whole and (a) March
requirements building of the DPRD, 2008 services like solid waste particularly the concerned 2010
of the urbanised GPs SIPRD, management, drainage and USs in charge of the
urbanised to make them District and street lighting in subjects
Gram more equipped Block level convergence with the
Panchayats to meet the officials with development authority (if
demands for support from the GP falls within the area
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solid waste development of development authority)

management, authority (if
drainage and the area is
street lighting under it)
3. Improving core Manage- (a) Capacity building of (a) PRDD, (a) Ongoing (a) Better preparedness to (a) Artha O (a) March 2010
civic services ment of the Panchayats for DPRD, process, minimize loss of human Parikalpana
disaster better preparedness to SIPRD, perceptive life and property by taking US of GP
minimize loss of District and progress is preemptive measures and with total
human life and Block level expected tackling such situation involvement
property and to impart officials by March with total involvement of of GUS and
management skills for 2009 the community for early community
tackling such situation restoration of normalcy
4. Decentralised Land (a) Advocacy for (a) PRDD, (a) Ongoing (a) Improving land of the (a) Krishi O (a) Significant
planning and reforms improvement of land DPRD, process beneficiaries of land Prani coverage is
implementation and facilitating other SIPRD, reform so as to improve Sampad expected by
for economic requirements for District and their productivity and Bikash US March 2010
development and cultivation to the land Block level helping those beneficiaries of GP
social justice reforms beneficiaries officials for accessing other inputs
by the Panchayats like irrigation water,
fertilizer and bank credit
etc.
Better (a) Agriculture and allied (a) (i) & (ii) (f) (i) & (ii) (a) (i) Providing support and (i) & (ii) Krishi (f) (i) Gradual
management sector – State, Ongoing infrastructure so that every O Prani Sampad process,
of natural (i) Capacity building, District and process plot of land excluding the Bikash US of GP expected
resources facilitation and block level water bodies are either in convergence coverage by
and providing technical officials of covered with crop or if the with Krishi, Sech March 2011
improved support for maximum Agriculture land is not suitable for O Samabay SS (ii) Para-
land use utilization of available Department cropping the same have of PS professionals
land resources for (AD) and tree cover, by March 2009
intensifying PRDD (ii) Developing para- and the others
agriculture, professionals to utilize the are ongoing
(ii) Providing state assistance, providing process, which
assistance for micro and minor will gather
improving cropping irrigation, providing mini- necessary
intensity and kits, assessing crop yield momentum
123
diversification of crop and mediating with the with the

State Government progress of (i)
machinery for improving
agronomic practices for
improving yield
4. Better (b) Promotion of agro-forestry (b) PRDD and (g) Ongoing (b) Preparing own nurseries with (b) Kris (b) March
Decentralised management and social-forestry – Forest process the help of SHGs and hi O Prani 2011
planning and of natural Advocacy for taking up Department (h) Ongoing plantation of variety of species Sampad (c) Ongoi
implementa- resources plantation in all possible with District process preferred by the community to Bikash US ng process,
tion for and areas and Block (d) March ensure tree cover in all of GP more than
economic improved (c) Development of water Level 2009 possible areas (c) Kris 80%
development land use bodies and promotion of officials of (e) (i) & (ii) (c) Development of water bodies hi O Prani coverage
and social fishery – Advocacy for both Dept. On- and leasing it out to SHGs or Sampad in 10
justice development of water bodies (c) District and going fishermen’s group for Bikash US NREGA
along with providing block level process composite culture of fishery, of GP districts by
technical support for officials of (iii) To duckery and plantation along (d) Kris March
pisciculture PRDD and be with ensuring irrigation in the hi O Prani 2009 and
(d) Water and soil conservation Fisheries decided command area Sampad rest
measures – Providing Department by (d) Taking up water and soil Bikash US districts by
technical support for soil (FD) ARDD conservation measures in all of GP March
conservation and (d) Soil conser- required areas out of various (e) (i), 2011
strengthening the technical vation wing programmes including wage (ii) & (iii) (d) Ongoi
capabilities of the ZP of AD in employment programmes and Krishi O ng process,
through the DRDC and collaboration watershed development Prani more than
WBCADC for supervising with PRDD programmes Sampad 80%
and supporting Panchayat (e) (i) & (ii) (e) (i) Providing inputs for animal Bikash US coverage
initiatives Block and husbandry like chicks, of GP in 10
(e) Promotion of animal GP level ducklings, kids and piglets to NREGA
husbandry – officials of the poor families, particularly districts by
(i) Advocacy, support and Animal to the members of the SHGs March
providing skill training for Resource (ii) Developing infrastructure 2010 and
larger extension of improved Development (iii) Organizing the producers rest
practices Department for having better bargaining districts by
(ii) Capacity building of the (ARDD) power in negotiating for March
Panchayats for intensifying with the help buying inputs and selling 2012
supply of inputs of Prani- products and also mediating (e) (i) &
124
(iii) Handing over day-to- bandhu with the large producers for (ii)
day running and (iii) ARDD linking the small producers, Ongoing
maintenance of veterinary in consulta- particularly the SHGs with process
dispensaries to Panchayats tion with them for better price realiza- (iii) March
PRDD tions and marketing support 2009
4. Better (f) Restructuring the West (f) PRDD (f) March (f) (i) Investing on the (f) (i) (f) (i) March
Decentralised management Bengal Comprehensive Area 2009 available infrastructure Krishi O Prani 2010
planning and of natural Development Corporation – of the WBCADC for Sampad (ii) Conti-
implementa- resources To develop it as the augmenting their Bikash SS of nuous
tion for and technical support production capacities ZP with process
economic improved organizations of the ZPs and engaging experts to support from with
development land use (functioning under the work for that PRDD apprecia-
and social overall control and guidance organization (ii) The above ble impact
justice of ZP for supplying inputs (ii) Creating awareness SS of ZP & PS by March
and providing extension and motivation among and Krishi O 2010
support) in promoting the people for taking Prani Sampad
livelihood in agriculture and benefit of the services Bikash US of
allied sectors and inputs available GP
Promotion (a) Promotion of livelihood (a) Block level (a) March (a) Developing appropriate (a) Artha, (a) March
of opportunities in secondary officials, 2009 infrastructure, arranging Sanstha, 2010
livelihood and tertiary sectors – nodal role to (b) Ongoing skill training for the Unnayan O (b) Ongoing
opportuni- Support to Panchayats be played process people, particularly Parikalpana process
ties in non- (providing skill by the those from the poorer SS of PS with
farm sectors development trainer, Block and weaker sections of the help of
mediating with the financial Develop- the community, respective SS
institutions for credit) for ment mediating with the of PS and with
expansion of livelihood Officer financial institutions for assistance
opportunities (BDO) providing better access from GP as a
(b) Household and other small (b) State and to credit for expansion whole
scale industries – Increasing District of livelihood (b) DRDC and
the capacities of the District level opportunities Khudra
Rural Development Cells officials of (b) Identifying and Shilpa, Bidyut
(DRDC) for operationalising Cottage and procuring land as may O Achiracharit
the initiatives of the Zilla Small Scale be necessary and Shakti SS of
Parishads and creating other Industries developing ZP and PS and
125
enabling conditions for Department infrastructure, arranging Shilpa O

expansion of non-farm (CSSID) skill development Parikathama
economic activities in all and PRDD training, providing US of GP
possible sectors and in every marketing support and
possible geographical mediating with banks
location for credit support
4. Decentralised Promotion of (c) Promotion of service (c) PRDD (c) Ongoing (c) Developing (c) Artha, Sanstha, (c) On-
planning and livelihood sectors – Guiding and process infrastructure for Unnayan O going
implementation opportunities supporting Panchayats promotion of new Parikalpana SS of ZP process
for economic in non-farm for development of economic activities with and PS
development and sectors conducive larger employment
social justice infrastructure for potential like the IT and
growth of service the IT enabled services,
sectors developing markets and
rural business hubs
Alleviation of (a) Providing wage (a) (i) & (ii) (a) (i) & (ii) (a) (i) NREGA districts – (a) (i) Artha O (a) (i)
poverty & employment to the PRDD, Ongoing Estimating the demand Parikalpana US, March
social equity unskilled workers – District process for unskilled wage Krishi O Prani 2008
(i) NREGA districts: and employment and its Sampad Bikash US (ii)
Augmenting capacities Block seasonality with active and Shilpa O March
of the Panchayats and level participation of the GUS Parikathama US of 2009
removing the officials and to meet the demand GP, Artha, Sanstha,
constraints in realising by taking schemes Unnayan O
the demand for which will boost the Parikalpana SS,
employment and employment Purta, Karya O
setting up a dependable opportunities Paribahan SS and
machinery for (ii) Other districts – Krishi, Sech O
monitoring and Identification of Samabay SS of PS
supervision schemes for employment (ii) Same USs of (i)
(ii) Other districts: generation for the and Shiksha O
Augmenting capacities poorest section by Janaswasthya US of
of the Panchayats so utilising cent per cent GP, Same SSs of (i)
that they can be able to available fund and and Shiksha,
fully utilize the thereby creating assets Sanskriti, Tathya O
available resources for sustainable Krira SS of PS
126
under the SGRY employment through

strengthened by a private enterprises
machinery for widening the scope for
monitoring and the poorest people and
supervision the women for
augmenting their income
4. Allevia- (b) Implementation of (b) PRDD, (b) March (b) Implementing watershed (b) Krishi, Sech O Samabay SS of PS (b) March
Decentralised tion of area development DPRD, 2010 development and Krishi O Prani Sampad Bikash 2011
planning and poverty & programmes – SIPRD, programmes under US of GP
implementation social Developing District Hariyali schemes as well
for economic equity capacities of three and Block as other watershed
development tier Panchayats level development
and social for proper officials programmes with major
justice implementation of focus on those Blocks
the watershed covered under the DPAP
development and other blocks facing
programmes land degradation
(c) Self help groups (c) (i) PRDD, (c) (i) (c) (i) Forming SHGs to (c) (i) Nari, Sishu Unnayan O Samaj (c) (i)
and self DPRD, Ongoing cover all poor families Kalyan US of GP with active Ongoing,
employment – SIPRD, process (ii) Formation of GSMT involvement of GUS, monitoring major
(i) Advocacy, District and (ii) in each GP by concerned SS of PS and DRDC progress by
campaign and Block level Ongoing (iii) Monitoring progress (ii) Nari, Sishu Unnayan O Samaj March
facilitation to officials process of SHGs once in a month Kalyan US of GP, monitoring by 2010
cover all poor with the (iii) and taking necessary concerned SS of PS and DRDC (ii) March
families by help of Ongoing interventions accordingly (iii) Nari, Sishu Unnayan O Samaj 2008
bringing at least DRDC process (iv) Cluster/s (of SHG) Kalyan US of GP with the help of (iii) Process
one member, (ii) Same is/are formed in each GP GSMT, supervision by concerned initiated,
particularly the as (i) and the Cluster/s is/are SS of PS and DRDC significant
women, under (iii) State, provided infrastructural (iv) Nari, Sishu Unnayan O Samaj progress is
SHG District and support for their Kalyan US of GP, monitoring by expected by
(ii) Advocacy and Block level functioning concerned SS of PS and DRDC March
facilitation to form officials (v) Spending out untied (v) Artha, Sanstha, Unnayan O 2008
GP SHG through the fund by all the three tiers Parikalpana SS to decide on (iv) March
Management Bankers’ through providing non- spending through Sishu O Nari 2008
Team (GSMT) in Committee credit inputs to SHGs for Unnayan, Janakalyan O Tran SS in (v) Process
each GP and at augmentation of their case of ZP and PS, Artha O initiated,
127
capacity building respective income as well as Parikalpana US to decide on significant

of GSMT levels expansion of other social spending through Nari, Sishu progress is
(iii) Mediating opportunities Unnayan O Samaj Kalyan US in expected by
with the financial (vi) Ensuring that Every case of GP, monitoring by DRDC March
institution for SHG will have access to (vi) Nari, Sishu Unnayan O Samaj 2009
credit linkage of credit through either cash Kalyan US of GP, monitoring by (vi) March
SHGs credit account or scheme- concerned SS of PS and DRDC 2010
based lending
4. Decentralised Alleviation of (d) Reduction of poverty (d) (i) & (ii) (d) (i) (d) (i) Maintaining the (d) (i) The PS as (d) (i) Ongoing
planning and poverty & and providing other Development Preparation list a whole process after
implementation social equity support to the BPL and Planning going on, (ii) Ensuring wider (ii) The GP December
for economic families – Department expected to dissemination of as a whole 2007
development and (i) Preparation of new (DPD), PRDD, be information and with the help (ii)
social justice BPL list and updating District and completed consultation of the of GUS Significant
the same from time to Block level by people for updating progress is
time officials December the BPL list every expected by
(ii) Capacity building 2007 year and helping the March 2010
of the GP for updating (ii) Ongoing Gram Sansads to
the BPL list, objective process after identify new
identification of December beneficiaries out of
beneficiaries out of 2007 the BPL list based on
the BPL list and objective criteria and
sharing all providing access to
information to the all the information to
common people the common people
for better
transparency in
decision making
Measures for (a) Food security and the (a) Food and (a) Ongoing (a) Selecting (a) Artha O (a) Ongoing
social security PDS – Advocacy and Supplies process beneficiaries for Parikalpana process,
capacity building of Department, Antyodaya Anna US of GP, to significant
PS and GP to ensure PRDD, District Yojana, Annapurna be facilitated progress in
selection of and Block Yojana without loss and all the
beneficiaries for level officials of time, installing an monitored mentioned
Antyodaya Anna effective system of by Khadya milestones is
Yojana, Annapurna monitoring so that the O Sarbaraha expected by
128
Yojana without loss desired benefits reach SS of PS March 2009

of time and to install the people and
an effective system of sharing this
monitoring so that the information with the
desired benefits of people along with the
these and also of PDS names of new
reach the people beneficiaries
4. Decentralised Measures for (b) Social security (b) Women & (b) March (b) Running National Old Age (b) For NOAPS (b) For
planning and social security measures – Child 2009 Pension Scheme (NOAPS) Nari, Sishu NOAPS
implementation Devolving seven Development (c) Ongoing efficiently so that every Unnayan O March
for economic various pension and Social process pensioner get pension on a Samaj Kalyan 2008 and
development and schemes run by the Welfare (d) March specified date or next US in for seven
social justice administrative Department (3 2008 working day at the convergence other
departments to schemes), beginning of every month with Artha, schemes
Panchayats Fisheries (giving the money initially Parikalpana as soon as
(c) Provident fund for Department, from the own fund and US of GP, for the
landless Agriculture reimbursing the same with seven other schemes
agricultural Department, the state government fund) schemes the are
labourers and Cottage & and when devolved, same US of GP devolved
unorganised Small Scale administering the fund in the with the help (c) December
workers – Capacity Industries same manner in respect of and guidance 2010
building of GP/PS Department, those seven pension of Sishu O (d) Ongoing
for more efficient Backward schemes and selection of Nari Unnayan, process,
management of Classes new beneficiaries for those Janakalyan O desirable
PROFLAL and Welfare schemes as the occasion Tran SS of PS progress
SASPFUE Department may arise (c) For PROFLAL should be
(d) Implementation of (c) PRDD, DPRD, (c) Ensuring more coverage, Krishi O Prani reached by
the National Family SIPRD, collecting monthly Sampad March
Benefit Scheme District and subscription and returning Biaksh US and 2010
(NFBS) – Block level the matured amounts or for SASPFUE
Advocacy and officials extending the benefit on the Artha O
campaign to cover (d) PRDD, District event of death of the Parikalpana
each and every and Block participating members in US of GP
eligible family level officials more efficient manner (d) Shiksha O
along with (d) Generating awareness about Janaswasthya
129
establishing a quick the scheme, covering each US of GP

fund transfer and every eligible family
mechanism and under the scheme and
streamlining the reaching the benefit to the
procedure family within a month of
receiving the application
4. Decentralised Planning (a) Building up (a) PRDD, (a) Ongoing (a) (i) Holistic planning by (a) (i), (ii) & (a) (i) March 2007
planning and from below capacities at specifically the process all Panchayat bodies in (iii) GP as a (ii) March 2008
implementation for all levels of Cell in charge of 6 most backward whole (with (iii) March 2008
for economic economic Panchayats Strengthening districts (Uttar active [This short timeframe is
development and development through Rural Dinajpur, Dakshin participation because of BRGF,
social justice and social sustained Decentralisation Dinajpur, Malda, of GUS and prolonged facilitation is
justice facilitation, (SRD) Murshidabad, Birbhum, community), required for real
handholding, Programme and Purulia) PS as a participatory plan which
showing Backward (ii) Holistic planning by whole and targets to cover around 300
good Regions Grant all Panchayat bodies in ZP as a GP by 2006-07, another 300
practices and Fund (BRGF) 5 other districts whole with GP by 2007-08 and all GPs
exposure (Jalpaiguri, Bankura, active of 6 most backward districts
visits so that Paschim Medinipur, involvement by 2008-09 and thereby
they can Purba Medinipur, South of line leading to preparation of PS
prepare 24 Parganas) department plan and ZP plan as well.
bottom-up (iii) Holistic planning in officials From the last quarter of
participatory a similar manner 2007-08 the programme will
plans through a simplified be spread over to 6 more
procedure in the rest districts and it is targeted to
districts cover 300 GPs in those
districts by 2008-09]
4. Decentralised Developing (a) Advocacy (a) PRDD, District (a) Ongoing (a) Entering in to (a) GP and PS (a) March 2010
planning and Panchayat- and and Block level process Panchayat-private as a whole
implementation private campaign for officials partnership in respect of
for economic partnership Panchayat- delivery of services on
development and private the principle of social
social justice partnership marketing where the
for service price realization from
130
delivery on the people to be decided

the principle in consultation with the
of social Panchayats and the
marketing quality of the services
to be monitored and its
access to be ensured to
all concerned
5. Augmenting Improving (a) Initiating self- (a) PRDD, (a) Process (a) Understanding the (a) Artha O (a) Finalisation of
Panchayat collection of declaration form for DPRD, initiated, process, reaching the Parikalpana assessment list
finance and own source assessment of tax along District initial forms to all the US of GP by March 2007
improving revenue (OSR) with capacity building and Block capacity households, getting the with the help and tax
financial by the of the Panchayat level building self-declared forms back of GUS collection
management Panchayats functionaries on the officials completed from the households, (b) Artha O throughout
same (b) PRDD, (b) Ongoing publishing draft Parikalpana 2007-08
(b) Advocacy and DPRD, process assessment list in the GP US of GP, (b) Adopting by
facilitation so that all SIPRD, (c) Ongoing office asking objections Artha, March 2008,
Panchayat bodies adopt District process from people, finalising the Sanstha, collection by
Bye-Law for and Block (d) Ongoing list and collecting tax with Unnayan O using all the
themselves and collect level process help of tax collectors and Parikalpana clauses is
rate, fee etc. by using all officials GUS SS of PS and expected by
clauses of the Bye-Law (c) PRDD, (b) Adopting Bye-Law by all ZP March 2009
(c) Capacity building for DPRD, GP, PS and ZP and (c) Same as (b) (c) Identification
identification (and SIPRD, collecting revenue using (d) Same as (b) (assessment for
assessment for GP) of District all clauses GP) by March
all potential sources of and Block (c) Identification (and 2008, annual
non-tax revenue and level assessment for GP) of all collection is a
collecting the same officials potential sources of non- continuous
(d) Advocacy for utilising (d) PRDD, tax revenue and collecting process
OSR for development DPRD, the same with maximum (d) Continuous
of that area District efficiency process
and Block (d) Utilising OSR for the
level development of the area
officials so that further collection is
enhanced
Improvement (a) Computerisation of all (a) PRDD, (a) Ongoing (a) Adapting the new (a) Artha O (a) Within three
131
of budgetary accounting and DPRD, process, systems quickly and Parikalpana months from
control and financial management SIPRD, significant following the systems for US of GP, the launching
financial related activities, District progress is better accounting Artha, of the system
management putting appropriate and Block expected procedure, budgetary Sanstha, at the
system for monitoring level by the end control and financial Unnayan O particular
financial performance officials of 11th management Parikalpana Panchayat
in place and organizing FYP SS of PS and
training of all the period ZP
functionaries
5. Augmenting Improvement of (b) Monitoring financial (b) PRDD (b) Ongoing (b) (i) Monitoring (b) (i) Artha, (b) Regular
Panchayat budgetary performance of all ZPs financial performance Sanstha, ity is
finance and control and every month of all PSs every month Unnayan O expected
improving financial (ii) Monitoring Parikalpana by (i)
financial management financial performance SS of ZP March
management of all GPs every month (ii) Same SS 2008
of PS (ii) March
2009
Improvement of (a) Introducing new GP (a) PRDD, (a) May (a) Adapting to new GP (a) The GP as a (a) April
accounting Accounts Rule based on DPRD, 2007 Accounts Rule quickly whole in 2008
practices and double entry system and SIPRD, (b) March and implementing it general and the (b) April
computerisation related capacity building District 2008 (b) Adapting to employees in 2009
of accounts to all concerned and Block (c) March computerised particular (c) April
(b) Computerisation of level 2010 accounting system (b) The PS as a 2011
accounts of all PSs along officials quickly and whole and the
with necessary capacity (b) Same as discontinuance of employees in
building (a) manual accounting particular
(c) Computerisation of (c) Same as (c) Adapting to (c) The GP as a
accounts of all GPs along (a) computerised whole in
with necessary capacity accounting system general and the
building quickly and stopping employees in
manual accounting particular
Internal audit of (a) Filling up the vacant posts (a) PRDD, (a) March (a) No activity (a) No (a) No
Panchayat of the Panchayat Audit DPRD 2009 (b) No activity responsibility timeframe
accounts and Accounts Officer (b) PRDD, (b) March (b) No (b) No
(PAAO), Samiti Audit & DPRD 2008 responsibility timeframe
132
Accounts Officer (SAAO)

and the Parishad Audit
and Accounts Officers
(b) Establishing Audit &
Accounts Cell at DPRD
for proper monitoring,
follow up and training of
all personnel concerned
on accounts and related
matters of financial
management
5. Augmenting Social audit (a) Advocacy, campaign, (a) PRDD, (a) Ongoing (a) (i) Placing all the specified (a) (i) GP as a (a) (i) & (ii)
Panchayat monitoring and adopting other DPRD, process information of GP in Gram whole, Ongoing
finance and measures so that all the SIPRD, Sansad and Gram Sabha Artha O process,
improving specified information are District and meetings, displaying in the Parikal- the
financial disseminated to people to Block level notice board or in wall pana US expected
management ensure informed and effective officials painting, sending to library in condu-
social auditing or making available to all particular cive
person coming to office to (ii) PS/ZP atmos-
see it as a phere
(ii) Placing all the specified whole, should be
information of PS/ZP in Artha, reached
Block/Zilla Sansad meeting, Sanstha, by March
displaying in the notice Unnayan 2008
board or in wall painting, O Parikal-
sending to library or making pana SS in
available to all person particular
coming to office to see it
6. Employees (a) Ensuring that the Panchayats (a) Administra- (a) March (a) Utilising the services of (a) Artha, (a) Process
Functionaries of the at every level get the services tive 2009 different types of employees Sanstha, going on
of the Panchayats of own employees, formally departments with utmost efficiency so as Unnayan
Panchayats and deputed employees, of State to ensure maximum level of O Parikal-
building their government employees whose Government service delivery to the pana SS of
capacities services have been placed for whose people ZP/PS and
the functional control to be activities are Artha O
133
exercised by the Panchayats linked with Parikal-

when administrative is retained the pana US
by the departments concerned Panchayats of GP in
as well as professional service particular
providers or trained para- and the
professionals to bear the work respective
load of the Panchayats setting bodies in
up a mechanism for the general
Panchayat bodies to have
adequate functionaries with
reasonable accountability
6. Capacity (a) Training all new recruits on (a) PRDD, (a) Ongoing (a) Ensuring that all the (a) Respective (a) Commen-
Functionaries building of the basic skills required at that DPRD, process to employees attend the Panchayat cing from the
of the employees level as well as to orient them SIPRD, be training, utilisation of body as a next of the
Panchayats & other for working as an employee of ETCs, strengthen their acquired whole and training
and building functionaries the local bodies, preferably District -ed after knowledge for good particularly programme
their capacities of within three months from their and Block March practices as also Artha, Sanstha, (b) Same as (a)
Panchayats joining the services level 2008 assessing their Unnayan O (c) Same as (a)
(b) Ensuring in-service training as officials (b) Ongoing acquired competency Parikalpana SS (d) No
per felt need and reorientation (b) Same as process level after the training of ZP/PS and timeframe
of all employees once in every (a) (c) A and giving feed back Artha O (e) Within one
five year (c) Same as continuous to PRDD through Parikalpana month of the
(c) Imparting basic training to all (a) process Block and District US of GP training
the members elected for the (d) Same as after every level officials (b) Same as (a) programme
first time within six months of (a) Panchayat (b) Same as (a) (c) Same as (a) (f) No
their election using the (e) Same as election (c) Ensuring that all the (d) No timeframe
distance learning mode as well (a) (d) Same as members attend the responsibility
as class room based training (f) SIRPD, (c) training, assessing (e) Sabhadhipati/
(d) Providing appropriate training Training (e) Same as their acquired Sahakari
to the important office bearers & NGO (c) competency level Sabhadhipati
like Sabhapati, Sahakari Cell and (f) March after the training and and Sabhapati/
Sabhapati, Pradhan, Upa- SRD Cell 2008 giving feed back to Sahakari
Pradhan within six months of of PRDD, PRDD Sabhapati for
their assuming office DPRD and (d) No activity Karmadhya-
(e) Providing appropriate training ETCs (e) Ensuring that all kshas and
134
to Karmadhyakshas of SS of Karmadhyakshas/San Pradhan/ Upa-

ZP and PS and Sanchalaks of chalaks attend Pradhan for
US of GP within one year of training, assessing Sanchalaks
their assuming office their acquired (f) No
(f) Reviewing training materials competency level responsibility
(printed and electronic) to after the training and
identifying further requirement giving feed back to
particularly in the context of PRDD
distant learning using the (f) No activity
recently installed satellite
based facilities (Loka Shiksha
Sanchar)
6. Functionaries Capacity (g) Arranging exposure visits (g) PRDD, (g) A (g) Selecting appropriate (g) Artha, (g) A continuous
of the Panchayats building of of Panchayat functionaries District continuous persons, and sharing Sanstha, process from
and building their employees & for peer learning and and Block process their experiences after Unnayan O 2009
capacities other sharing of best practices level from 2009 the exposure visit Parikalpana SS (h) A continuous
functionaries (h) Establishing Training Cell officials (h) March (h) Providing necessary of ZP/PS and process
of Panchayats in each ZP to tie up with (h) PRDD 2008 establishment support Artha O during and
SIPRD and ETCs to meet (i) PRDD, (i) March along with regular Parikalpana after setting
training requirement DPRD, 2008 monitoring the US of GP up the Cell
(i) Developing suitable SIPRD, (j) December activities of the Cell (h) Artha, (i) As and when
training infrastructure at ETCs and 2007 (i) Providing necessary Sanstha, required by
the districts for residential District (k) December support for Unnayan O the State
training, developing level 2007 infrastructure Parikalpana SS Government
infrastructure of officials (l) March development and in of ZP (j) December
WBCADC for providing (j) PRDD, 2009 selecting persons for (i) Artha, 2007
livelihood related training, District (m) At present, the resource pool Sanstha, (k) Ongoing
developing local resource and Block support is (j) Monitoring Unnayan O process
pool of trainers in various level being infrastructure Parikalpana SS making the
disciplines in each district officials provided developed and Purtakarya set-up fully
(j) Ensuring that each Block (k) PRDD, to 442 (k) Facilitating the O Paribahan functional by
office have suitable Roopkala GPs of 8 process of selecting SS of ZP December
training infrastructure for Kendro, most resource persons (j) Artha, 2007
non-residential training District backward (l) Providing necessary Sanstha, (l) March 2009
(k) Developing 2-3 resource and Block districts, support for Unnayan O (m) A continuous
persons in each Block to level the same infrastructure Parikalpana SS process
135
facilitate distance learning officials will be development of ZP and PS where this

through Loka Shiksha (l) PRDD, scaled up (m) Creating enabling (k) Artha, handholding
Sanchar District to cover environment at the Sanstha, support is
(l) Developing one classroom and Block all the GPs GP office on the day Unnayan O being
for training in each GP level (where it at which the team Parikalpana SS provided
(m) Providing handholding officials is providing support (l) Shilpa O
support to the GP (m) PRDD, necessary) along with ensuring Parikathama
functionaries (of those District by March that all concerned US of GP
GPs who are not and Block 2008 attend the interactive (m) Artha O
performing at per other level session Parikalpana
GPs) at their office by officials US of GP
mobile facilitators
6. Capacity (n) Wider dissemination of (n) PRDD for (n) Radio (n) Intimating (n) All elected (n) Continuous
Functionaries building of knowledge about the roles and Radio programme the representatives process
of the employees & functions of the Panchayats for programme, ongoing and community and employees
Panchayats and other enabling the citizen to participate PRDD, CSC to about the of three tier
building their functionaries more effectively through District and follow Radio Panchayats
capacities of Panchayats continuing Panchayat O Block level National E- programme
Gramonnayaner Asor (an officials for Governance and CSC and
interactive Radio programme CSC Plan (NEGP) asking them
broadcasted through Kolkata – A to participate
of AIR on every Saturday from 8 or to take
p.m. to 9 p.m.) and setting up access
Citizens’ Service Centres (CSC)
in every GP and PS
Strengthening (a) Strengthening SIPRD as per (a) PRDD, (a) March 2008 (a) No activity (a) No (a) No
SIPRD, the requirement to meet the capacity SIRPD (b) March 2007 (b) No activity responsibility timeframe
ETCs building need as specified (b) PRDD, (c) Expected by (c) No activity (b) No (b) No
throughout this map District level March 2010 responsibility timeframe
(b) Strengthening (infrastructure officials (c) No (c) No
including computer lab for (c) PRDD on responsibility timeframe
computer training) the ETCs as putting in
well as the facility at Rajarhat to place
take up courses available
(c) Developing a specialized training resources
136
institute to deal with training

requirement of the SHGs
Use of (a) Developing websites of all Zilla (a) NIC with the (a) March 2008 (a) Taking (a) Artha, Sanstha, (a) March 2008
Information Parishads having PS and GP help of (b) March 2008 active Unnayan O (b) No
and level information PRDD, initiative for Parikalpana SS timeframe
Communica- (b) Bringing all the PS under intra- District and website of ZP
tion mail facility through Block level development (b) No
Technology WEBSWAN officials with the help responsibility
(ICT) for (b) PRDD, of NIC
efficient WEBSWAN (b) No activity
functioning
6. Functionaries of Use of (c) Establishing (c) PRDD, (c) Following (c) No activity (c) No (c) No
the Panchayats and Information and connectivity with all Service setting up of (d) Procuring responsibility timeframe
building their Communication GP through the service providers of CSC as per the fax (d) Artha O (d) March
capacities Technology providers of CSC CSC NEGP machine Parikalpana 2008
(ICT) for (d) Providing faxing (d) PRDD, (d) March 2008 from US of GP
Efficient facilities to all the GPs District and Twelfth
Functioning for better exchange of Block level Finance
information and easier officials Commission
and timely collection of grant or
reports from OSR
Strengthening (a) Setting up one Audit & (a) PRDD, DPRD (a) March No activity (a) No (a) No
the Directorate Accounts cell, one 2009 responsibility timeframe
Office Fund Management cell,
one Resource
Mobilization cell, one
Training cell and one
Inspection cell in the
directorate to give
special emphasis in
those areas
137
7. Harmonisation Acts for which (a) 29 State Acts – (a) (i) PRDD (a) (i) September (a) No activity (a) No (a) No
of Acts and Rules amendments are (i) Sending the (ii) Concerned 2007 responsibility timeframe
concerning proposed proposals to the administrative (ii) September
functioning of the concerned departments departments 2008
Panchayats (ii) Preparing the Bills (iii) (iii) March
for Amendment Concerned 2009
(iii) Finalisation of the administrative (iv) September
Bills departments 2009
(iv) Decision of and Law
Cabinet on the Bills and Deaperment
enactment (iv) Cabinet
7. Acts for which (b) 4 Central Acts – (b) (i) PRDD (b) (i) September 2007 (b) No (b) No (b) No
Harmonisation amendments (i) Preparing the proposals (ii) Cabinet (ii) December 2007 activity responsibility timeframe
of Acts and are proposed (ii) Approval of the Cabinet (iii) PRDD (iii) March 2008
Rules (iii) Sending the proposals or concerned (iv) As may be
concerning to the GOI as may be department desired by GOI
functioning of approved by the Cabinet (iv) GOI (as
the Panchayats (iv) Enacting the may be
amendments desired by
them)
Amendment (a) Amendment of the West (a) PRDD, Law (a) Bill by June 2007, (a) No (a) No (a) No
of Panchayat Bengal Panchayat Act, 1973 Department, Cabinet approval by activity responsibility timeframe
Act / Rules (b) Framing the West Bengal Cabinet September 2007 and (b) No (b) No (b) No
Panchayat (Gram Panchayat (b) PRDD, Law finalisation by activity responsibility timeframe
Accounts, Audit and Department December 2007 (c) No (c) No (c) No
Budget) Rules, 2007 (c) PRDD, Law (b) Drafting by March activity responsibility timeframe
(c) Framing the West Bengal Department 2007, finalisation by (d) No (d) No (d) No
Panchayat (Panchayat (d) PRDD, Law May 2007 activity responsibility timeframe
Samiti Administration) Department (c) Drafting by
Rules, 2007 September 2007,
(d) Framing the West Bengal finalization by
138
Panchayat (Zilla Parishad December 2007

Administration) Rules, (d) Drafting by March
2008 2008, finalization by
June 2008
9.1 Status of Devolution of the Subjects mentioned in the Eleventh Schedule of the Constitution
Subjects in Sthayee/
Corresponding Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping
the Eleventh Upa Samiti
Departments
Schedule concerned Division Zilla Parishad Panchayat Samiti Gram Panchayat
1. (i) Agriculture, (i) Krishi, Present 1) Fixing up target for each Panchayat 1) Fixing up target for each Gram Panchayat 1) Selecting or nominating beneficiaries
Agriculture, (ii) Agriculture Sech O Functions Samiti for selection of beneficiaries for selection of beneficiaries 2) Organizing awareness camp and field
including Marketing, Samabay 2) Fixing up target for holding awareness 2) Fixing up target for holding awareness demonstration in consultation with
agricultural (iii) Co- S.S. / camp and campaign and monitor and camp and campaign and monitor and supervise ADO / SAO
extension operation (i) Krishi O supervise the same, if necessary the same, if necessary 3) Identify and select farmers for
(iv) Food and Prani 3) Involving the Sub-divisional
3) Select venue and faculty for training training
Supplies Sampad Agricultural Officer and Specialist 4) Supervise and monitor training 4) Identify & select beneficiaries for
(v) Sundarban Bikash Officers in the campaign, if necessary 5) Fix target for distribution of minikits / seeds distribution of minikits / seeds / bio-
Affairs U.S. 4) Initiating Block wise awareness / bio-fertilizer (at subsidized price) to Gram fertilizer / pesticides / farm machinery /
campaign at the beginning of each crop Panchayats plant protection equipments
season 6) Monitor proper and timely distribution 5) of Field-training and visit system
5) Sub-allot minikits/seeds/ bio-fertilizer Agricultural equipments on the basis 6) of Popularization of new varieties and
(at subsidized price) to Panchayat Samitis technical possibilities and field situation package of practices through distribution
for distribution among farmers 7) Integrated programme for cereal of Minikits.
6) Fix target for each Panchayat Samiti for development 7) Selection of farmers for the study
distribution of Agricultural equipments 8) Seed supply and development – subsidized tours
7) Fix target in consideration of technical sale of quality seeds / seeds for green manuring 8) Selection of farmers' for new variety
possibilities and field situation and 9) Fertilizer and manure – making sale points, cultivation
monitor timely distribution balanced use of fertilizer and micronutrients, 9) Distribution of certified seeds and
8) Monitor & supervise Block wise Transport subsidy. minikits
distribution of farmers’ old age pension. 10) Development of pulses (State plan and 10) Construction of pucca manure pits
139
9) Distribute financial assistance under Centrally sponsored National Pulses

11) Promotional work for producing
centrally sponsored programme for development Project) organic manure, green manure and bio-
infrastructure development 11) Development of Oil seeds – supply of mini fertilizers
10) Const. & maintenance of Agricultural kits (State and Centrally Sponsored Seed 12) Field demonstration for transfer of
Training Centres, Government Production programme)/ Seed village scheme technology and distribution of minikits
Agricultural Farms and Seed Testing 12) Demonstration center/ supply of nutrient 13) Distribution of equipments viz, row
Laboratory minikits seed drills and wheel hoe, hand sprayer,
11) Selection of hats, markets, link roads,
13) Development of sugar cane—nursery plot power sprayer etc.
godowns etc for development demonstration, 14) Distribution of plant protection
12) Sanction of subsidy for improved 14) Development of Maize— Supply of equipment, Crop cutting experiment etc.
storage structure, bullock cart, van improved seed minikits / training of farmers 15) Dry land / Rain fed crop
rickshaw to small and marginal farmers 15) Development of Jute cultivation – supply of demonstration
13) District Level competition on the improved variety seeds, marketing support. 16) Demonstration centers of improved
production of organic manure. 16) Monitor and supervise GP wise distribution seeds
14) Drought Prone Area Programme in 36 of farmers’ old age pension 17) Selection of Old aged farmers for
Blocks – linked with the Water Shed 17) Organizing credit support for farmers. pension from Gram Sansads according to
Development Programmes of P&RD Dept the norms
Contd. in next page……
Departments
1. (i) Agriculture, (i) Krishi, Additional15) Identifying the training need 18) Collect Agricultural data from all Gram 18) Send all agriculture related data and
Agriculture, (ii) Agriculture Sech O Functions16) Preparing action plan for enhancing Panchayats and forward to the District Office for special need or necessities to the ADO
including Marketing, Samabay skill and field demonstration and future use in training and skill upgradation 19) Collect data and jointly survey loss of
agricultural (iii) Co- S.S. / executing the same 19) Organize awareness camp with the support of crop and assist the Department in
extension operation (i) Krishi O 17) Preparing action plan for information Gram Panchayat for maintenance of eco-system estimation of amount
(iv) Food and Prani dissemination and motivation of farmers and reuse of implements/equipments/inputs 20) Collect soil for sample survey and
Supplies Sampad and executing the same 20) Fix up GP wise Action Plan for crop organize awareness camp on this issue
(v) Sundarban Bikash 18) Prepare Block wise Action Plan insurance and Kishan Credit Card distribution 21) Estimate need-based requirement of
Affairs U.S. involving Agricultural Officers working
21) Prepare Action Plan for quality seed seeds
at Sub-division level and monitor & production in Agri-farm 22) Take active role in production of
supervise crop insurance and Kishan 22) Take action for supply of Agri-labour in quality seeds and their distribution
Credit Card distribution Agri-farm 23) Collect data on use of seeds and their
19) Prepare Action Plan for quality seed 23) Maintain quality of seeds impact
production 24) Arrange for proper utilization of seeds in the
24) Allocation of space in cold storage
20) Take initiative for supply and locality 25) Issuing recommendation for setting up
utilization of human resources in Agri-
25) Settlement of dispute between owners and new cold storage
farm hirers regarding allocation of space in cold 26) Identification of hats, markets, link
21) Periodical supervision of cold storage storage roads, godowns etc for development
22) Inspection of ware houses 26) Assessment of need for further cold storage,27) Awareness campaign among farmers
23) Supervision & monitoring of Hat / identification of opportunities and execution of for using cold storage
markets in Panchayat areas scheme 28) Collection of raw data on market
140
24) Circulation of market information 27) to Monitoring sale prices of commodities in prices
State Govt. & other organizations rural hats and markets 29) Circulation of market information to
28) Circulation of market information to ZP & Panchayat Samiti
other organizations
2. Land (i) Land and (i) Krishi, Present 1) Identification of benami lands, 1) Distribution of vested lands 1) Identification of big land owners
improvement, Land Reforms, Sech O Functions monitor vesting & distribution of vested 2) Identification of big land owners & vesting 2) of Identification of cultivators for
implementa- (ii) Panchayats Samabaya lands ceiling surplus land recording names as Bargadars
tion of land and Rural S.S., 2) Short term settlement of River- 3) Identify Bargadars for recording 3) Identification of beneficiary for
reforms, land Development (ii) Bon O fisheries, Ferries and Jalkars, 4) Solution of harvesting & sowing disputes distribution of vested agri-land
consolidation (iii) Agriculture Bhumi 3) Settlement of sowing and harvesting 5) Exemption of land revenue for eligible raiyats 4) Exemption of land revenue to eligible
and soil (iv) Irrigation Sanskar disputes, 6) Identify eligible homestead beneficiaries under raiyats including issue of certificates
conservation and Waterways S.S. / 4) Steps for increased collection of Acquisition of Homestead Lands Act 1975 5) Identify cases of dispute during sowing
(i) Krishi O Royalties and Cess on mines-minerals, 7) Protection of tribal raiyats & share croppers or harvesting
Prani 5) Utilization and maintenance 8) of Joint survey of char lands vested in the State 6) Initiate legal action against illegal felling
Sampad Khasmahal lands, 9) Preventing operation of illegal brick fields & of trees
Bikash 6) Survey and vesting of char land, filling of tanks / water bodies 7) Identify illegal brick fields, queries &
U.S. 7) Legal steps against illegal brickfields illegal conversion of land
and filling of tanks / water bodies. 8) To initiate legal action against in respect
8) Protecting interest of tribal raiyats and of above cases
share croppers 9) Inspect & report illegal filling up tanks /
water bodies
Departments
2. Land (i) Land and (i) Krishi, Additional
9) Management of Ferry / Fishery
10) Supervision of Barga recording 10) Display of notice containing names of
improvement, Land Reforms, Sech O Functions / Tanks transferred to ZP 11) Management of Ferry / Fishery / Tanks Bargadars cultivating land in that mouza
implementa- (ii) Panchayats Samabaya 10) Co-ordination in collection transferred to PS 11) Management of Ferry / Fishery / Tanks
tion of land and Rural S.S., efforts of land revenue and Cess
12) Pre-distribution survey of undistributed agri- transferred to GP
reforms, land Development (ii) Bon O in peak collection season land 12) Identification of vulnerable areas relating to
consolidation (iii) Agriculture Bhumi 11) To communicate opinion 13) Preparation of a priority list of beneficiaries cultivation & harvesting dispute
and soil (iv) Irrigation Sanskar regarding Amalgamation 14)or Performing function of Land Reforms 13) Creation of public awareness regarding
conservation and Waterways S.S. / splitting up of mouzas Advisory Committee at Block level payment of revenue and Cess through suitable
(i) Krishi O 12) Suggesting name of ‘char’ 15) Distribution of Patta leaflets and other means of publicity
Prani land 16) Organization of collection camp for 14) Identification of beneficiaries for institutional
Sampad 13) Management of road side land collection of land revenue and Cess during peak finance to Bargadars and Patta holders
Bikash of roads maintained by the State collection season, i.e., the Bengali months 15) of Assistance in filling up application forms by
U.S. Govt. through the ZP Poush, Magh, Falgun and Chaitra beneficiaries (Bargadars and Patta holders)
14) Supervision of the functions 17)
of Fixing target of institutional finance 16) in To attend loan disbursement programme to
GP and PS relating to land Panchayat Samiti area to Bargadars and Bargadars and Patta holders
matters Pattadars in consultation with BLBC (Block 17) To communicate opinion regarding
15) Settlement of different types of Level Bankers’ Co-ordination Committee) Amalgamation or splitting up of mouzas
vested or part-vested fisheries18)
/ Supply of application forms to GPs for
141
tanks / water bodies institutional finance to Bargadars and Patta

holders
19) Drawing up programme for disbursement of
loan to Bargadars and Patta holders in
consultation with concerned bank
20) To communicate opinion regarding
Amalgamation or splitting up of mouzas
3. Minor (i) Water (i) Krishi, Present 1) Drilling and installation 1)
of Construction of Jorh Bundh and Sech Bundh 1)
Construction of Jorh Bundh and Sech Bundh
irrigation, Investigation Sech O Functions Deep TWs / Mini Deep TWs above 2 lakh rupees below 2 lakh rupees
water and Samabaya 2) Electrification of DTWs 2) Revival of traditional water sources 2)
Management of all DTWs / Mini DTWs /
management Development S.S. / 3) Extension of canal line 3) Installation of dug wells RLIs and installations through Beneficiary
and watershed (ii) Panchayats (i) Krishi O 4) Installation of River Lift4) Construction of field channel Committee
development and Rural Prani Irrigation (Major / Minor) 5) Site selection of schemes above 2 lakh rupees
3)
Formation of Watershed Development Teams
Development Sampad 5) Policy decisions and sub- 6) Seeking technical vetting of Executive / User Groups
(iii) Agriculture Bikash allotment of fund Engineers (AI / AM) through ZP for MI schemes 4)
Identification of beneficiaries under various
(iv) Sundarban U.S. beyond the competence of Panchayat Samitisprogrammes for MI Projects through Gram
Affairs Sansad
5) Site selection of schemes upto 2 lakh rupees
6) Construction of percolation tanks, field
channels within the GP
Additional
6) Scrutiny of the schemes 7) Joint supervision and monitoring of progress
7) Encouraging farmers for on farm
Functions received from GP / PSs and of the schemes development and development of field channels /
recommendation to DSSC for delivery system for proper utilisation of water
final selection
7) Joint supervision, monitoring
and review of the progress
Departments
3. Minor (i) Water (i) Krishi, Additional
8) Co-ordination between various
8) Organizing farm demonstration for 8) Maintaining MI schemes, collecting water
irrigation, Investigation Sech O Functions departments and agencies funding modern water management techniques & charges through User Committee for new
water and Samabaya projects conservation of water in field projects handed over to PRI
management Development S.S. / 9) Propagation of modern water
and watershed (ii) Panchayats (i) Krishi O management & delivery methods
development and Rural Prani
Development Sampad
(iii) Agriculture Bikash
(iv) Sundarban U.S.
Affairs
142
4. Animal (i) Animal (i) Matsya Present 1) Fixing up target for each Panchayat
1) Fixing up target for each Gram 1) Identification and selection of beneficiaries
husbandry, Resources O Prani Functions Samiti for selection of beneficiaries Panchayat for selection of beneficiaries 2) Initiate Animal Health Campaign in
dairying and Development Sampad 2) Identification of training need 2)of Selection of trainees for Block level villages for awareness generation
poultry (ii) Panchayats Bikash S.S. farmers training program 3) Organization of self-help groups
and Rural / (i) Krishi 3) Selection of trainees for training3) Selection of venue for GP level training4) Identification of training need and selection
Development O Prani program at dist. Level 4) Supervision of GP level training of trainees for GP level training program
Sampad 4) Allotment of fund to Panchayat 5) Celebration of PRANI SAPTAHA 5) Organization of health camp at villages on
Bikash Samitis for training 6) Release of fund to Gram Panchayats ARD issues
U.S. 5) Distribution of improved variety 7)
of Collection of improved variety 6) of Organization of awareness camp on
livestock to Blocks livestock from Dist. Farm and determining preventive measures
6) Drawing up action plan of scale of distribution to GPs 7) Celebration of PRANI SAPTAHA
Vaccination program and Artificial 8) Monitoring of the situation to prevent 8) Distribution of improved variety birds /
Insemination program for the Dist out break of epidemic small animals to farmers
7) Policy decision on execution of work
9) Monitoring of Artificial Insemination 9) Providing facility of hatching
and release of fund program; identifying problem areas and 10) Vaccination of animals against epidemic
covering gap 11) Execution of Artificial Insemination with
the help of Prani Bandhu at fixed price
12) Assessment of need for infrastructure
development
13) Mobilizing farmers for actual vaccination
of cattle and buffalo
Additional
8) Preparation and analysis of dist. Level
Nil Nil
Functions data base
Departments
143
5. Fisheries (i) Fisheries (i) Matsya Present 1) Development of Aqua-culture and 1) Organization of training 1) Selection of farmers and supervision of
(ii) Backward O Prani Functions planning, monitoring, supervision,
2) Selection of training venue works and arranging for long-term lease of
Classes Welfare Sampad evaluation of the activities. 3) Liaison with NGO for training ponds.
Bikash S.S. 2) Action plan for all sorts of training and4) Intensive culture in perennial ponds.2) Motivating farmers for the prawn culture.
/ (i) Krishi awareness camp in consultation with the 5) Training to the fish farmers. 3) Identification & selection of beneficiaries
O Prani Asstt. Director of Fisheries 6) Tie up with schemes of BCW Deptt. for GP or village level training
Sampad 3) Train-up fish farmers in inland fisheries7) Marketing of produce etc. 4) Holding awareness camp
Bikash sector and construction /maintenance 8) of Excavation of ponds to the extent of5)1 Arranging for training activities.
U.S. district level training centers ft, 2 ft, 1 meter and pisciculture therein.6) Distribution of minikits to the fish farmers
4) State grant to primary/ Central 9) Prawn culture in freshwater ponds and according to the needs.
Fishermen's Co-op. Societies to avail of newly constructed tanks deepening up 7) to Consultation to Panchayat Samiti in
NCDC assistance – Development of Beel 2.5 meters. selecting such Societies for Grants.
fisheries. 10) Supply of Minikits, finger-lings to the 8) Selection of fisher women for such
5) Socio economic development of Tribal farmers’ Co-op. Societies. trainings.
people through Pisciculture Scheme and 11) by Selection of such societies 9) in Air breathing fish culture (Magur and
providing Dwelling houses. consultation with the GPs Singi) and selection of farmers.
6) Group Personal Accident Insurance for 12) Training of Fisher women in net 10) Identification of SC/ST beneficiaries for
active Fishermen – Co ordination with making, repairing and ancillary skill dwelling houses.
BENFISH. development of fishermen families 11) Developing SHGs of fisher-men / women
7) Pilot project for development 13) of Promotion of Integrated Fish Farming 12) Selection of beneficiaries for FFDA /
Fisheries in the Hill areas of the State. – Duck cum fishery/ pig cum fishery – BFDA
8) Setting up District level Laboratories for Training and Extension activities.
conducting Research activities. 14) Poly culture of prawn with finfish and
9) Development of market including Retail monoculture of prawn.
outlets
Additional
10) Release of fund for training 15) Approval of beneficiaries and ponds13) / Identification of fisher women belonging to
Functions11) Preparation of Training Need open cast pit for pisciculture Co-operative Societies
Assessment in consultation with the Asstt. 16) Approval of derelict / semi-derelict 14) Identification & selection of derelict / semi-
Director of Fisheries tanks for pisciculture derelict tanks
12) Supervision of training 17) Handing over tanks to Co-operative 15) Netting and harvesting
13) Allocation of HARI, Cast net and Drag Societies or Groups on lease for 16) Collection of sample (soil and water) for
net, fingerlings, lime and vending inputs for management and farming testing
Blocks 18) Selection of sites for liberation 17) of Supply of lime and minikits
fingerlings in river 18) Identification and selection of groups
19) Supervision of works related to /beneficiaries for distribution of HARI, Cast
selection of beneficiaries for allocation net and Drag net, fingerlings, lime and
of HARI, Cast net and Drag net, vending inputs
fingerlings, lime and vending inputs 19) Delivery of fingerlings and other inputs
144
Subjects in Sthayee/ Upa

the Eleventh Samiti
Departments
6. Social (i) Panchayats (i) Bon O Present 1) Fixing up target for each Panchayat 1) Fixing up target for each Gram 1) Identification and selection of beneficiaries
forestry and and Rural Bhumi Functions Samiti for selection of beneficiaries Panchayat for selection 2)
of Awareness generation at village
farm forestry Development Sanskar S.S. / 2) Coastal Belt Plantation to mitigate the beneficiaries 3) SHG formation
(i) Krishi O fury of cyclones along the coast – new 2) Coordination, planning 4)
and Selection of areas under soil erosion and
Prani Sampad plantation, maintenance of older monitoring involving prospective pursuing villagers in aforestation.
Bikash U.S. plantations. beneficiaries. 5) Generate awareness of people and arrange
3) For overall development of Forest cover 3) Organize Economic development environmental education at the GP level.
and Socio-economic condition through Programme, Environmental awareness 6) Arrangement for socials forestry and farm
forestry – planning / execution and and education campaign. forestry, their plantation and maintenance.
monitoring. 4) Developing nursery at Panchayat
4) Generating rural employment through Samiti level for supply of saplings to
forestry and related activities to popularize the Gram Panchayats.
the use of eco-friendly inputs like bio- 5) Plantation of trees, distribution of
fertilizer for enhancement of soil fertility. saplings
Additional
5) Preparation of Action plan for (a) 6) Execution of Infrastructural works 7) Selection of Workers / beneficiaries in
Functions increasing forest coverage through (construction of village road, earthen consultation with Forest Protection Committee
aforestation and strip plantation (b) dam, excavation of well, installation 8)
of Selection of Workers / beneficiaries in
development of fruit garden and saplings Tube Well in forest village) consultation with Forest Protection committee
nursery, supervision and monitoring of for construction of village road, earthen dam,
works excavation of well, installation of Tube Well
6) Preparation of Action plan for in forest village
construction of village road, earthen dam,
excavation of well, installation of Tube
Well in forest village; supervision and
monitoring of works
7. Minor (i) Forest (i) Bon O Present 1) Planning for increasing forest cover and 1) Constitution of Joint Forest 1) Selection of prospective beneficiaries and
forest produce Bhumi Functions improving overall ecological condition. Management and Forest Protection mobilization of SHGs in forest area.
Sanskar S.S. / 2) Economic development strategy in and Committee to contain illicit collection
2) Community mobilization through Forest
(i) Artha O around protected areas as well as villages in of fuel wood, fodder and small timber. Management Committees/ SHGs in the local
Parikalpana the periphery of the protected areas. areas.
U.S. 3) Promoting JFM with people’s 3) Distribution of minor forest products
participation, offering timber, non- timber among villagers and members of Forest
forest produce and value added products at Protection Committee.
reasonable prices.
Additional
4) Preparation of Action plan for income 2) Distribution of inputs for micro-
4) Identification of income generating
Functions generating activities for villagers viz., enterprise activities
distribution of Sal-leaf-plate making 3) Providing assistance for income
machine / sewing machine / chicks / generating activities
ducklings/ fingerlings / minikits / saplings
of fruit trees in forest villages, supervision
and monitoring of works
145

the Eleventh Samiti
Departments
8. Small scale (i) Cottage and (i) Khudra Present 1) Establish and identify Training 1) Select beneficiaries for Training or Skill
1) Identification of artisans for skill up
industries, Small Scale Shilpa, Functions Centers for Skill Development. development and nominate them in training gradation training
including Industries Bidyut O 2) Allocate and sanction funds for institutes, arrange for master craftsmen 2)/ Assisting in Distribution of raw material,
food (ii) Food Achiracharit Training and stipend to the trainees. women. equipments etc.
processing Processing Shakti S.S. / 3) Identify appropriate technologies and 2) Pay stipend to the beneficiaries and 3) Identification of beneficiaries for old age
industries Industries and (i) Shilpa O arrange for their transfer to the honorarium / training cost to the trainers. pension, financial support / credit under
Horticulture Parikathama workers. 3) Transfer or upgradation of technology in various programmes.
(iii) Agriculture U.S. 4) Tie up arrangements for marketing different areas of production. 4) Assistance to the KVIC / Bank in the
Marketing of the products through Government 4) Supply of raw material, equipment and recovery of loan.
and non-government marketing other inputs to the beneficiary workers.
agencies.
5) To encourage artisans’ cooperative
for production and marketing of
products.
6) Organizing Entrepreneur
Development Programmes.
7) Co-ordination between
entrepreneurs and financial institutions
for credit linkage
Additional
8) Assessment of training need 5) Selection of trainees / venue for skill dev.
5) Identification of training need for skill
Functions9) Organization of skill development training program run by NGO dev. training
Training 6) Supervision of training 6) Organization of awareness camp at GP
10) Organization of awareness camp 7) at Organization of awareness camp at Block level
Dist. Level level 7) Motivation of rural artisans
11) Organization of Handicraft
8) Conducting wide publicity for competition8) Identification of micro-enterprise /
competition at Dist. Level 9) Selection of micro-enterprise / entrepreneurs
12) Action plan for development of entrepreneurs 9) Group formation & selection of activities
micro-enterprise / entrepreneurs 10) Developing micro enterprise / self 10) Selection of Artisans for fairs / melas
13) Supervision and organization of enterprise with bank credit outside the district or state
training program (food processing, 11) Selection of Artisans for fairs / melas 11) Awareness generation and wide publicity
technical operation of cold storage, within the district 12) Organizing demonstration program (food
better storing of potato) at Dist. Level12) Promotion of bio-gas plant processing, better storing of potato) at
13) Organizing demonstration program (food village level and linkage with SHG
processing, better storing of potato) at Block
13) Identification & selection of trainees
level (food processing, better storing of potato)
14) Supervision of GP level training (food
processing, better storing of potato)
146

the Eleventh Samiti
Departments
9. Khadi, (i) Cottage and (i) Khudra Present 1) Establish and identify Training 1) Select beneficiaries for Training or Skill
1) Identification of artisans for skill up
village and Small Scale Shilpa, Functions Centers for Skill Development. development and nominate them in training gradation training
cottage Industries Bidyut O 2) Allocate and sanction funds for institutes, arrange for master craftsmen 2)/ Assist in Distribution of raw material,
industries Achiracharit Training and stipend to the trainees. women. equipments etc.
Shakti S.S. / 3) Identify appropriate technologies and 2) Pay stipend to the beneficiaries and 3) Site selection for construction of
(i) Shilpa O arrange for their transfer to the honorarium / training cost to the trainers. common work shed and market complex.
Parikathama workers. 3) Transfer or up gradation of technology 4) in Identification of beneficiaries for old age
U.S. 4) Tie up arrangements for marketing different areas of production. pension, financial support / credit under
of the products through Government 4) Supply of raw material, equipment and various programmes.
and non-government marketing other inputs to the beneficiary workers. 5) Assistance to the KVIC / Bank in the
agencies. 5) Construction of common work sheds, recovery of loan.
5) To encourage artisans’ cooperative market complexes. 6) Formation of SHGs for artisans.
for production and marketing 6) of Organizing Cooperatives / Federation for
products. production and marketing of the products.
6) Organizing Entrepreneur Development
Programmes.
7) Co-ordination between entrepreneurs
and financial institutions for credit
linkage
Additional
8) Assessment of training need 7) Selection of trainees / venue for skill dev.
7) Identification of training need for skill
Functions9) Organization of skill dev. Training training program run by NGO dev. training
10) Organization of awareness camp 8) at Supervision of training 8) Organization of awareness camp at GP
Dist. Level 9) Organization of awareness camp at Block level
11) Organization of Handicraft level 9) Motivation of rural artisans
competition at Dist. Level 10) Conducting wide publicity for competition 10) Identification of micro-enterprise /
12) Action plan for development 11) of Selection of micro-enterprise / entrepreneurs
micro-enterprise / entrepreneurs entrepreneurs 11) Group formation & selection of activities
12) Developing micro enterprise / self 12) Selection of Artisans for fairs / melas
enterprise with bank credit outside the district or state
13) Selection of Artisans for fairs / melas 13) Awareness generation and wide publicity
within the district
10. Rural (i) Panchayats (i) Purta, Present 1) Overall supervision and monitoring 1) Consolidation of GP level plans, 1) Preparation of list of prospective
housing and Rural Karya O Functions of construction of houses and monitoring and supervision. beneficiaries from the Gram Sansads.
Development Paribahan occupation of housing units. 2) Assignment of priority and preparation
(ii) Fisheries S.S. 2) Release of fund to Gram of a Master List for the entire Gram
(ii) Matsya O Panchayats. Panchayat.
Prani Sampad 3) Transmission to Panchayat Samiti.
147
Bikash S.S. / 4) Release of fund to beneficiary for

(i) Shilpa O construction of house.
Parikathama Additional3) Monitoring and supervising
2) Monitoring and supervising construction 5)
of Identification of beneficiaries and places
U.S. Functions construction of Cluster housing with Cluster housing with Community Hall for for construction of Cluster housing with
Community Hall for fishermen fishermen Community Hall for fishermen

the Eleventh Samiti
Departments
11. Drinking (i) Public Health (i) Present 1) Prioritization of the areas requiring1) Selection of areas requiring piped water 1) Identification of areas requiring piped
water Engineering Janasasthya Functions piped water and sending proposals to supply in consultation with Gram Panchayats. water supply.
(ii) Panchayats O Paribesh the PHE Dept. 2) Selection of sites for Rig bored TW and 2) Identification of sites for Rig bored TW
and Rural S.S. / 2) Identify spot sources for Rig bored Ordinary TW. and Ordinary TW.
Development (i) Shiksha O Tube well and execution through PHE 3) Sinking of Ordinary TW. 3) Construction of wells, tanks, Tube Wells
(iii) Sundarban Janasasthya machinery. 4) Seeking technical approval from Zilla (Ordinary Hand Pump)
Affairs U.S. 3) Maintenance of Laboratories to Parishad for projects beyond the competence 4) Maintenance of wells, tanks, Tube
reduce Arsenic contamination of of Panchayat Samitis Wells.
drinking water in identified districts. 5) Execution of schemes (DTW / Mark-II5)/ Arrangement for water testing.
4) Execution of schemes beyond the Tara Hand Pump) beyond the competence 6) of Reporting about Arsenic contamination
competence of Panchayat Samitis Gram Panchayats of drinking water.
5) Technical approval of schemes 6) Monitoring and supervising progress and 7) Periodical chlorination of open wells and
beyond the competence of Panchayat quality of works disinfection of Tube wells
Samitis 7) Maintaining big water supply schemes 8) Reporting progress of schemes
6) Release of fund for projects to beyond the competence of Gram Panchayats9) Maintaining drinking water schemes,
Panchayat Samitis / Gram Panchayats collecting water charges for projects handed
7) Providing technical skill and fund, over to PRI through User Committee
when necessary, for maintenance of 10) Awareness on use of safe drinking water
water supply system
Additional
Nil Nil Nil
Functions
12. Fuel and (i) Forest (i) Bon O Present 1) To select fuel deficit blocks and 1) Identification of fuel deficit areas in the
1) Mobilizing people for plantation and
fodder (ii) Animal Bhumi Functions plantation planning in those blocks. Block – planning, implementation and fodder cultivation.
Resources Sanskar S.S., 2) Selection of trees that have some supervision etc. 2) Distribution of fodder and fuel saplings
Development (ii) Matsya O uses other than timber. among deserving families.
Prani Sampad 3) Field demonstration for fodder
Bikash S.S. / cultivation on community land and vested
(i) Krishi O land
Prani Sampad Additional
4) Policy decision on supply 2) of Supply of minikits to different GPs and 4) Distribution of minikits / seeds / manure
Bikash U.S. Functions minikits / seeds / manure to Blocks fixing scale of distribution of minikits per GP to farmers (Fodder)
(Fodder) (Fodder) 5) Generation of awareness and wide
5) Fixing scale of distribution 3) of Monitoring & supervising distribution of publicity among farmers (Fodder)
minikits / seeds / manure per block minikits and sale of seeds to farmers (Fodder)
(Fodder)
148
6) Policy decision on purchase of

seeds (Fodder)
7) Policy decision on sub-allotment of
fund to different Blocks (Fodder)
Subjects in the Sthayee/ Upa

Eleventh Samiti
Departments
13. Roads, (i) Public Works (i) Purta, Present 1) Examine technical feasibility and 1) Identify villages not having all weather
1) Selection of sites through Gram Sansad.
culverts, (ii) Panchayats Karya O Functions formulating road development roads and formulate projects for 2) Construction of village link roads
bridges, ferries, and Rural Paribahan projects. construction of link roads. through beneficiary committees.
waterways and Development S.S. / 2) Allocation and sanction of funds for
2) Construction of pucca / semi pucca roads
3) Monitoring and supervision of quality of
other means of (iii) Fisheries (i) Shilpa O roads covering more than one block. covering more than one Gram Panchayat. works through beneficiary committee.
communication (iv) Agriculture Parikathama 3) Acquiring land and grant 3) of Providing technical assistance to Gram 4) Construction of culverts through
Marketing U.S. compensation. Panchayats for construction of roads / beneficiary committee with technical
(v) Sundarban 4) Awarding contracts, for culverts. support from Panchayat Samiti.
Affairs construction of roads, culverts and 4) Leasing out waterways (medium). 5) Leasing out waterways (small).
(vi) Transport bridges.
5) Monitoring the specifications of
roads, culverts, bridges and
supervision of the quality of works.
6) Technical vetting of projects of
Panchayat Samitis.
7) Leasing out waterways (big).
Additional
Nil Nil Nil
Functions
14. Rural (i) Power (i) Khudra Present 1) Assessing villages / hamlets 1)/ Assisting Zilla Parishad in assessing 1) Providing land for installing electric
electrification, Shilpa, Functions colonies uncovered and formulating uncovered areas and formulating transmission poles.
including Bidyut O projects for their electrification in electrification projects. 2) Collection of electricity charges and
distribution of Achiracharit coordination with WBSEB/CESC. 2) Monitoring and reporting on progress of depositing to the concerned authority.
electricity Shakti S.S. / 2) Providing fund to WBSEB/CESC electrification of irrigation pump sets. 3) Reporting power supply position during
(i) Shilpa O for electrification. 3) Conducting raid in co-ordination with prime crop season.
Parikathama 3) Electrification of irrigation pump police and WBSEB/CESC for checking 4) Vigilance and reporting against power
U.S. sets. power theft and illegal connections. theft and illegal connections to the police.
4) Monitoring and supervision of
electrification.
5) Vigilance against power theft and
illegal connection
Additional
Nil Nil Nil
Functions
149
15. Non- (i) Power, (i) Khudra Present 1) Promote and popularize non- 1) Select beneficiary for installation 1)
of Identification of beneficiary for
conventional (ii) Sundarban Shilpa, Functions conventional energy devices/sources. community/ private source of energy. individual biogas plants and other devices.
energy sources Affairs Bidyut O 2) Coordinate different agencies
2) Train up users in the maintenance 2) of Monitoring functioning of the devices.
Achiracharit including NGOs for promotion of non-conventional energy devices.
Shakti S.S. / alternative sources of energy. 3) Monitor and supervise the operation and
(i) Shilpa O functioning of the projects.
Parikathama Additional
Nil Nil Nil
U.S. Functions
Subjects in
Corresponding Sthayee/ Upa Samiti Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping
the Eleventh
Departments concerned
Schedule Division Zilla Parishad Panchayat Samiti Gram Panchayat
16. Poverty (i) Panchayats (i) Artha, Sanstha, Unnayan Present 1) Promoting Cluster and 1) Identification of Key activities 1) Formation, Nurturing of SHGs in the
alleviation and Rural O Parikalpana S.S., Functions Federation of SHGs in the District for SHGs. GP area.
programme Development (ii) Janasasthya O Paribesh through DRDC. 2) Grading of SHGs for 2) Promotion of SHG cluster.
S.S., 2) Promotion of marketing of goods releasing funds and Bank 3) Identification of beneficiaries at GP
(iii) Purta, Karya O produced by Swarojgaries. loans. from Gram Sansad.
Paribahan S.S., 3) Monitoring and supervision of 3) Promoting Cluster of SHGs 4) Identification, implementation and
(iv) Krishi, Sech O Samabaya SGSY Programme. and Federation of SHGS in monitoring of schemes for the poor
S.S., 4) Organizing Group management the local area. families in GP area.
(v) Sishu O Nari Unnayan, Training and skill dev. training. 4) Training of SHGs with the
Janakalyan O Tran S.S., 5) Approving involvement of NGOs support of NGOs at Block
(vi) Bon O Bhumi Sanskar in Group formation, training. Level.
S.S., 6) Preparation of estimates for 5) Preparation of estimates for
(vii) Matsya O Prani Sampad schemes to be taken up by ZP. schemes to be taken up by
Bikash S.S., 7) Technical vetting of estimates, Panchayat Samiti and GPs.
(viii) Khadya O Sarbaraha implementation and monitoring of 6) Technical vetting of estimates,
S.S. / the Wage Employment implementation and
(i) Artha O Parikalpana U.S., Programmes. monitoring of the Wage
(ii) Krishi O Prani Sampad 8) Coordination among various Employment Programmes.
Bikash U.S. agencies implementing the schemes. 7) Selection of storing place for
(iii) Shiksha O Janasasthya 9) Release of fund to PSs and GPs. food grains.
U.S., 10) Lifting of food grains from FCI 8) Release of fund to GPs.
(iv) Nari, Sishu Unnayan O and distribution to other tiers.
Samajkalyan U.S.
Additional
(v) Shilpa O Parikathama Nil Nil Nil
Functions
U.S.
17. Education, (i) School (i) Shiksha, Sanskriti, Tathya Present 1) Release of fund for construction
1) Construction of New School 1) Construction of Additional Classrooms
including Education O Krira S.S. / Functions of New School Buildings and Buildings and Additional in Primary Schools / Sishu Shiksha
primary and (ii) Panchayats (i) Shiksha O Janasasthya Additional Classrooms. Classrooms. Kendras through Village Education
secondary and Rural U.S. 2) Release of fund for construction
2) Construction of toilets and Committee / Managing Committee.
schools Development of toilets and drinking water drinking water facilities at 2) Construction of toilets and drinking
150
(iii) Backward facilities at schools. schools. water facilities in Primary Schools /

Classes 3) Compiling proposals from 3) Compiling proposals from Sishu Shiksha Kendras through
Welfare, Panchayat Samitis for opening all Gram Panchayats for Village Education Committee /
(iv) Minorities the alternative education centres and opening all the alternative Managing Committee.
Development forwarding them to the respective education centres and 3) Preparation of list of students for Mid
and Welfare agencies. forwarding them to the Zilla day meal Programme in convergence
(v) Relief 4) Setting up computer education Parishad. with the Village Education Committee
center for school children. 4) Approval of list of students and engaging SHGs for cooking.
5) Supervision and management of for mid day meal in schools. 4) Sending proposals for opening all the
Mid day meal Programme 5) Management and alternative education centres to the
supervision of the Mid day Panchayat Samiti.
meal Programme. 5) Helping Managing Committee of SSK
6) Improvement of school to select Sahayika.
library – purchase of books 6) Supervision of SSK by Gram
for library through Panchayat.
Managing Committee.
Subjects in the Sthayee/ Upa

Eleventh Samiti
Departments
17. Education, (i) School (i) Shiksha, Additional
6) Selection of sites for establishment
7) Supervision and monitoring of VECs 7) Mobilization of VEC
including Education Sanskriti, Functions of new school 8) Counseling, guidance & monitoring
primary and (ii) Panchayats Tathya O 7) Recommendation for up-gradation of VEC
secondary and Rural Krira S.S. / of schools 9) Formation of Parents – teacher
schools Development (i) Shiksha O 8) Supervision and monitoring of association
(iii) Backward Janasasthya Village Education Committees 10) Organizing teacher-community
Classes U.S. interface
Welfare,
(iv) Minorities
Development
and Welfare
(v) Relief
18. Technical (i) Technical (i) Shiksha, Present 1) Extension and maintenance of ITI,
Nil Nil
training and Education and Sanskriti, Functions Polytechnic.
vocational Training Tathya O Additional
Nil Nil Nil
education Krira S.S. Functions
19. Adult and (i) Mass (i) Shiksha, Present 1) Planning, Monitoring &
3)
Monitoring & supervision of Continuing 1) Running of literacy centers at Gram
non-formal Education Sanskriti, Functions Supervision by the ZSS Education Centre Sansad level
education Extension Tathya O 2) Convergence of development 2) Selection of Prerak and Sanchalak
Krira S.S. / schemes with CEP 3) Regular contact with Literates /
(i) Shiksha O Neo-literates for attendance in
Janasasthya Continuing Education Centre
U.S. Additional
4) Consideration of proposal for
1) Convergence of Literacy with income 4) To treat nodal Continuing Education
Functions opening of new Adult High School generating activities, SHGs & community Centre as Rural Information Centre
151
[To impart education up to health initiative 5) Publicity and Supervision of Adult

Madhyamik level to interested Adult 2) Publicity and Supervision of Adult High High Schools
learners who are not enrolled in any Schools
formal school] (To be forwarded to the
MEE Deptt. / Dte. with
recommendation or otherwise)
20. Libraries (i) Mass (i) Shiksa, Present
1) Release of fund for Rural Library Nil Nil
Education Sanskriti, Functions
Extension Tathya O Additional
2) Supervision of the activities 1) of Supervision of the activities of Sponsored
1) Supervision of the activities of Rural
Krira S.S. / Functions District Libraries Libraries Libraries / Library cum Information
(i) Shiksha O 3) Sending copies of guidelines 2)/ Sending copies of guidelines / booklets for Centre
Janasasthya booklets for all development programs all development programs to Sponsored 2) Sending copies of guidelines /
U.S. to Dist. Library for general Library for general information of public booklets for all development programs to
information of public 3) Sending copy of Annual Report / Budget / Rural Library / CLIC for general
4) Sending copy of Annual Report / Annual Plan of PS to Sponsored Library information of public
Budget / Annual Plan of ZP to Dist. 4) Sending data / information on social issues
3) Sending copy of Annual Report /
Library to Sponsored Library Budget / Annual Plan of GP to Rural
5) Sending data / information 5) on Disbursement of salary to organizer of Library / CLIC
social issues to Dist. Library CLIC 4) Sending data / information on social
6) Audit of CLIC by PAAO issues to Rural Library / CLIC
Subjects in the
Corresponding Sthayee/ Upa Functions being performed by Panchayats at present & Additional Functions assigned through Activity Mapping
Eleventh
Departments Samiti concerned
Schedule Division Zilla Parishad Panchayat Samiti Gram Panchayat
21. Cultural (i) Information (i) Shiksha, Present 1) Construction of Auditorium. 1) Organizing Block Youth Festival. 1) Selection of local talents in
activities and Cultural Sanskriti, Tathya Functions 2) Organizing folk festival, film 2) Organizing folk campaign for social cultural activities through booth
Affairs O Krira S.S. / festival, drama festival and motivation. level youth and cultural festival.
(ii) Backward (i) Artha O youth festival at District level. 2) Conduct awareness campaign for
Classes Welfare Parikalpana U.S. 3) Release of fund for Block social cause.
Youth festival.
Additional 4) Selection of blocks for 3) Selection of Gram Panchayats for 3) Selection of Venues for Cultural
Functions Cultural Programs, speech, film Cultural Programs, speech, film etc. Programs, speech, film etc.
etc. 4) Organizing Cultural Programs, 4) Wide publicity & campaign for
5) Release of fund for speech, film etc. celebration of important dates and
Cultural Programs, speech, film 5) Contact with teachers & students selection of venue
etc. of schools for essay writing competition 5) Selection of venue for folk
6) Selection of subject for 6) Checking of answer scripts of festival
essay writing competition in essay writing competition 6) Identification of beneficiaries /
schools 7) Organizing campaign for participants for folk festival
7) Fund release for essay celebration of important dates and 7) Distribution of entry tickets /
writing competition in schools organization of celebration program cards for children’s film festival
8) Releasing fund and keeping liaison with GPs
selection of blocks for 8) Selection of GP for folk festival
152
celebration of important dates 9) Organization of festival

9) Selection of theme for 10) Infrastructural support for folk
folk festival festival
10) Selection of block for 11) Selection of venues for children’s
folk festival film festival and contacting schools for
11) Fund release for folk publicity among students
festival
12) Supply of Musical
instruments for folk festival
13) Fund release for
children’s film festival,
contacting Cinema Hall owners
and fixing up time for film
show
22. Markets and (i) Land and (i) Artha, Sanstha, Present 1) Construction of market complex 1) Arrangement for sanitation, drinking water, 1) Management of Hat / Bazar
fairs Land Reforms, Unnayan O Functions and leasing out. lighting etc. at fair grounds. transferred to GP
(ii) Information Parikalpana S.S. 2) Organizing famous fairs like 2) Management of Hat / Bazar transferred to
and Cultural (ii) Bon O Bhumi Gangasagar Mela, Sunderban Mela, PS
Affairs Sanskar S.S. / Bishnupur Mela etc.
(i) Artha O 3) Management of Hat / Bazar
Parikalpana U.S. transferred to ZP
Additional
Nil Nil Nil
Functions
Departments
23. Health (i) Health and (i) Present 1) Establishment and 1) Maintenance and
1) Maintenance and upgradation of Sub-centers
and sanitation, Family Welfare Janasasthya Functions maintenance of RCH. upgradation of BPHC and 2) Generate awareness for promotive & preventive health care.
including (ii) Panchayats O Paribesh 2) Supply of medicines, PHC 3) Visit each family in a month with health related issues.
hospitals, and Rural S.S. / equipments to RCH. 2) Distribution of medicines4) Educate people about immunization & motivate them.
primary Development (i) Shiksha O 3) Training of Nursing and Para- and equipments to the 5) Monitoring immunization and vaccination coverage of
health centres Janasasthya medical functionaries. centres. children and pregnant women and taking follow-up action.
and U.S. 4) Coordinate with 3) Assistance in organizing 6) Enlist eligible couples, spread message of RCH programs &
dispensaries state/International Agencies for immunization camps. provide follow up services.
sanitation & health related 4) Organization or supervision 7) Identify communicable diseases, carry out control measures
issues. of sanitary marts. in affected areas.
153
5) Organizing immunization 5) Formulating plan for the 8) Meet & distribute Iron / Vitamin Tablets to pregnant &
camps. assistance in the lactating mothers, children.
6) Identify and approve NGOs construction of sanitary 9) Awareness generation for sanitation and organizing house to
for Sanitation & RCH. latrines. house campaign for targeting uncovered households and
7) Promote school health 6) Coordination & supervision making arrangements for equipments through sanitary marts.
programmes. on construction of sanitary 10) Promote use of sanitary latrine & safe drinking water.
8) Training of ANMs and others. latrines. 11) Birth & death Registration.
7) Construction of community 12) Preparing proposals for community toilets at public places,
toilets at public places, Sub- schools, AWC, Health Sub-Centres.
Centres under TSC and
toilets in schools, AWCs
under School Sanitation
Programme
Additional
9) Civil works for improvement 8) Supervision and monitoring 13) Supervision and monitoring of utilization of funds and
Functions of infrastructure (large size of utilization of funds and materials by Sub-centers
outlay) materials by BPHCs and 14) Local Purchase of non-medical items required by the sub-
10) Fund allotment for PHCs centers as may be authorized by H&FW Department
procurement of materials 9) Local Purchase of non- 15) Monitoring most important public health indicators
11) Lifting of materials from medical items required 16) by Planning for focused interventions
State Hqtrs and supply to the PHCs and BPHCs 17) as Involving Self-Help Groups in monitoring community health
different block may be authorized 18) by Updating ECCR
12) Compilation of reports and H&FW Department 19) Conducting Baseline Survey on status of community health
returns from Block-level and 10) Compilation of monthly 20) Surveillance and rapid response issues
analysis for monitoring crucial reports from Sub-centers and21) Arrangement of referral transport in serious cases
public health indicators GPs, and analysis for 22) Promotion of concepts of nutrition and best dietary practices
13) Planning for focused monitoring crucial public 23) Ensuring nutrition supplement for mother and child through
interventions health indicators ICDS / AWC
14) Supervision of secondary 11) Supervision of Primary 24) Ensuring nutrition supplement in schools
curative services and standing curative Services 25) Awareness for taking preventive measures against common
committees of the Panchayat 12) Supervision of GP level diseases like malaria, kalajar, TB, leprosy and monitoring
Samiti Upa-Samitis on Health. follow-up practices by patients.
15) Devising IEC Strategy for 13) Planning for focused
26) Promotion of demand for latrines in every household.
involving community in interventions 27) Ensuring environmental sanitation including prevention of
promotive and preventive health 14) Planning and organizating open defecation, protection of water source, drainage,
care management IEC activities for involving cleanliness of habitat
16) Developing IEC materials community in promotive and
preventive health care
management

the Eleventh Samiti
Departments
154
23. Health (i) Health and

(i) Additional
17) Organizing campaign for 15) Organizing campaign for planned family, safe28) Ensuring Timely Spraying of Vector
and sanitation, Family Welfare
Janasasthya Functions safe motherhood, best child motherhood, best child care practices control chemicals
including (ii) Panchayats
O Paribesh care practices 16) Implementation of immunization programme 29) Identifying clienteles for training
hospitals, and RuralS.S. / 18) Fund allotment, monitoring 17) Promotion of Institutional delivery 30) Capacity building for SHGs for
primary Development
(i) Shiksha O and supervision of 18) Monitoring availability of medicine at sub- developing a surveillance system through
health centres Janasasthya immunization program centres SHGs
and U.S. including pulse polio 19) Organizing training of school teachers on eye
31) Up-gradation of HQ sub-centers for
dispensaries 19) Development of care delivery of additional services including
infrastructure for Institutional 20) Organizing training of Traditional Birth development of a Panchayat owned Labour
delivery Attendants (Dai) Hut
20) Monitoring availability of 21) Ensuring timeliness and quality in delivery of
medicine at PHCs household latrines by Rural Sanitary Marts
21) Allotment of fund for 22) Organizing training of School Teachers in
training School Sanitation, Environmental Sanitation and
22) Sending resource persons Personal Hygiene
for training 23) Monitoring School heath programme
23) Organizing and conducting 24) Organizing and conducting sensitization
skill development training for Training
Health workers 25) Selection of clientele for training
24) Organizing cataract
operation camps
24. Family (i) Health and (i) Present 1) Planning for Family Welfare 1) Distribution of family planning materials to the 1) Educate people about family planning
welfare Family Welfare Janasasthya Functions Programme centres. & promoting planned family norms
O Paribesh 2) Organizing campaign for 2) Organize & Coordinate in monitoring and and practices.
S.S. / planned family supervision of family welfare and family planning
(i) Shiksha O 3) Organizing sterilization services.
Janasasthya camp for eligible couple 3) Assistance in organizing family planning camps.
U.S. Additional
Nil Nil Nil
Functions
25. Women (i) Women & (i) Sishu O Present 1) Organize Legal Aid Camp 1) Organize Legal Aid Camp at Block level with 1) Maintaining basic database like IMR,
and child Child Nari Functions at District level with the the assistance of Sub-divisional Legal Aid MMR, malnourished children,
development Development Unnayan, assistance of District Committee. immunization status, vaccination
and Social Janakalyan O Legal Aid Committee. 2) Monitoring coverage and quality of ICDS status, dai etc.
Welfare Tran S.S. / programme. 2) Taking necessary preventive and
(i) Nari, 3) Supervision of construction of Anganwadi promotive measures for women and
Sishu Centers children.
Unnayan O 4) Co-ordination to ensure availability of facilities / 3) Monitoring ICDS centres and Primary
Samajkalyan benefits to SHGs of Swayamsiddha & Health Sub-Centres
U.S. convergence with other SHGs formed under 4) Recommendation of sites for AWCs
different programmes 5) Construction and maintenance of
5) Convergence of activities of ICDS and reporting AWCs
of functioning of Anganwadi Centers to the 6) Convergence of ICDS activities and
Sthayee Samiti of Panchayat Samiti reporting of functioning of AWCs in
the convergence meeting at GP level
155
with the Supervisors and the ANMs


the Eleventh Samiti
Departments
25. Women (i) Women & (i) Sishu O Additional 2) Selection of 6) Recommendation of beneficiaries for Non- 7) Supportive role in survey of
and child Child Nari Functions beneficiaries for Non- institutional care of children up to 18 years beneficiaries availing facilities of AWCs
development Development Unnayan, institutional care of 8) Identification of beneficiaries for
and Social Janakalyan O children up to 18 years NPAG & Kishori Shakti Yojana
Welfare Tran S.S. / 9) Issue of BPL certificate for
(i) Nari, beneficiaries of Balika Sambriddhi
Sishu Yojana
Unnayan O 10) Awareness generation in villages
Samajkalyan to motivate parents for pre-school
U.S. education & immunization of their
children
11) Mobilize community participation
to improve quality of cooked food in
AWCs
26. Social (i) Women & (i) Sishu O Present 1) Distributing equipments
1) Release of pension to aged / infirm persons, 1) Assisting Panchayat Samiti for selection of
welfare, Child Nari Functions for handicapped people to widows. handicapped people for equipment
including Development Unnayan, Panchayat Samitis. 2) Selection of handicapped people for distribution of distribution.
welfare of the and Social Janakalyan O equipments in consultation with the Gram 2) Identification of Beneficiaries for old age
handicapped Welfare Tran S.S. / Panchayats. pension, family pension, maternal benefits etc.
and mentally (ii) School (i) Nari, 3) Distributing equipments to handicapped people.
retarded Education Sishu Additional
2) Supervision and
4) Recommendation of names of beneficiaries for 3) Organization of Publicity campaign for
(iii) Mass Unnayan O Functions monitoring of the Institutes Pension Schemes to the DM for approval scholarship for handicapped students of class
Education Samajkalyan for the disabled (Special 5) Sponsoring names of students through school for IX onwards
Extension U.S. Schools). scholarship for handicapped students of class IX 4) Holding awareness camp for handicapped
3) Consideration of the onwards students & their parents
proposals for academic 6) Monitoring disbursement of scholarship 5) to Identification of handicapped students for
recognition / sponsorship of handicapped students of class IX onwards through scholarship
Institutes for disabled (to be school 6) Recommendation of applications for
forwarded to the MEE 7) Supervision and monitoring of the Institutes for admission to Social Welfare Homes
Dept. / Dte. with the disabled (Special Schools) 7) Publicity and Supervision of Social
recommendation 8)
or Recommendation of applications for admission to Welfare Homes
otherwise) Social Welfare Homes
4) Publicity and supervision9) Publicity and Supervision of Social Welfare
of Social Welfare Homes Homes
156
27. Welfare of (i) Backward (i) Sishu O Present 1) Release of fund for self- 1) Release of stipend and Book Grant for SC/ST 1) Sending application for SC / ST
the weaker Classes Welfare Nari Functions employment of SC/ST/OBC students. certificates to Block Office.
sections, and (iv) Minorities Unnayan, people. 2) Conducting enquiry and processing application 2) Identification of Beneficiaries for self
in particular, Development Janakalyan O 2) Fixing up targets of for SC / ST / OBC caste Certificates. employment and financial assistance
of the and Welfare Tran S.S. / beneficiaries / pensioners / 3) Selection of Beneficiaries for self employment 3) Contact with Bank for loan disbursement
Scheduled (i) Nari, SHGs for each Panchayat and financial assistance. and assist in recovery.
Castes and the Sishu Samiti 4) Co-ordination with Bank, Finance Corporation 4) Identification of farmers for Minor
Scheduled Unnayan O 3) Fixing up target for credit for availability of credit. Irrigation schemes
Tribes Samajkalyan inputs for each Panchayat 5) Supervision for selection of beneficiaries / 5) Identification & selection of pensioners /
U.S. Samiti pensioners / SHGs beneficiaries at Gram Sansad for Poverty
6) Credit linkage for SHGs / farmers / individual Alleviation Programs
beneficiaries under SCP or TSP or other
programs
7) Disbursement of pension to old age pensioners

the Eleventh Samiti
Departments
27. Welfare of (i) Backward (i) Sishu O Additional
4) Selection of Gram Panchayats 8) Supervision for selection of new sources of 6) Site selection for new sources of drinking
the weaker Classes Welfare Nari Functions for Minor Irrigation schemes, drinking water water
sections, and (iv) Minorities Unnayan, augmenting sources of drinking 9) Selection of Gram Panchayats with 7) Organization of grain-gola / grain-bank
in particular, Development Janakalyan O water concentration of weaker sections for 8) Holding awareness / motivation camp
of the and Welfare Tran S.S. / 5) Release of fund for training awareness camp, wide publicity 9) Hand holding support to SHGs / women
Scheduled (i) Nari, 6) Action plan for all sorts of 10) Organization and supervision of training groups
Castes and the Sishu training and Awareness camp for women / SHGs / farmers 10) Reporting to Panchayat Samiti about
Scheduled Unnayan O 7) Assessment of Training Need 11) Release of fund to Gram Panchayats any difficulty in getting book grant,
Tribes Samajkalyan 8) Fixing up targets for different 12) Collection of names of students from stipend, scholarship from school within
U.S. schools for Book Grant, Stipend schools for Book Grant, Stipend & its area
& Scholarship for SC/ST/OBC Scholarship for SC/ST/OBC students
students 13) Release of fund to schools for Book Grant,
Stipend & Scholarship for SC/ST/OBC
students
28. Public (i) Food and (i) Khadya O Present 1) Approval of beneficiary list for 1) Preparation of list of beneficiaries for BPL 1) Identification & selection of beneficiaries
distribution Supplies Sarbaraha Functions distribution of food grains to BPL cards for distribution of BPL Cards, Antodaya
system S.S. / / Antodaya Annya Yojana & 2) Fixing quota of beneficiaries for Gram Annya Yojana Cards & Annapurna Cards
(i) Artha O Annapurna Card holders Panchayats 2) Fixing quotas of beneficiaries for each
Parikalpana 2) Fixing additional quota of 3) Monitoring distribution of food grains to Gram Sansads
U.S. beneficiaries for blocks MR Dealers at GP level. 3) Distribution of ration cards to
3) Monitoring lifting of food 4) Monitoring preparation and distribution of beneficiaries
grains from FCI Ration Cards 4) Implementing distribution through MR
4) Allocation of food grains to 5) Supervision over MR shops Shop.
Blocks / Panchayat Samitis. 5) Monitoring distribution of food grains
5) Release of fund. from MR Shop to the beneficiaries
157
Additional
6) Fixing up target for each Rice 6) Selection of Farmers’ Co-operative 6) Providing certificate confirming
Functions Mill for procurement of food Societies for purchase of paddy procurement of paddy from the farmers
grains at Minimum Support Price (MSP)
7) Monitoring Milling of paddy
8) Storing of rice in Godowns
29. (i) Public Works (i) Purta, Present 1) Maintenance of those assets 1) Maintenance of those assets which are either
1) Maintenance of those assets which are
Maintenance Karya O Functions which are either developed by it developed by it or vested upon it or have no either developed by it or vested upon it or
of community Paribahan or vested upon it or have no other other agency to maintain. have no other agency to maintain.
assets S.S. / agency to maintain.
(i) Artha O Additional
Parikalpana Functions Nil Nil Nil
U.S.
158
9.2 Self Evaluation Format for GPs
Gram Panchayat: Telephone No. (With STD Code):
Block: District:
A. Good Goverence
1. Peoples’ participation in GP’s activities
(a) Last Gram Sansad meeting (General Meeting, not special)
Maximum Marks
Subject Scoring Pattern
Marks Obtained
What was the percentage of 2 if in 100% Gram Sansad, 1 if in 90-99%
Gram Sansads Gram Sansad, 0 if in less than 90% Gram
2
where last meeting Sansad
took place?
What was the percentage of 9 if 40% or more, 8 if 30-39%, 7 if 25-29%,
average attendance 6 if 20-24%, 4 if 16-19%, 2 if 12-15% and
9
in the last Gram 0 if 10-11%
Sansad meeting?
What was the average 9 if 50% or more, 8 if 40-49%, 6 if 30-39%,
percentage of 4 if 20-29%, 2 if 10-19% and
9
women among the 0 if less than 10%
total attendance?
Total 20
Actual Marks Obtained (= Total Marks Obtained ÷ 2) 10
(b) Formation of Gram Unnayan Samiti and Secretary Election

Maximum Marks
Marks Obtained
In how many GS, 6 if in 100% Gram Sansad, 5 if in 90-99% Gram Sansad, 4
Gram if in 80-89% Gram Sansad, 3 if in 70-79% Gram Sansad, 2
Unnayan if in 60-69% Gram Sansad, 1 if in 50-59% Gram Sansad, 0
Samiti if in less than 50% Gram Sansad 6
has been
constitut
ed?
How many Gram 4 if 100% Gram Unnayan Samiti have elected Secretary,
Unnayan 3 if 80-99% Gram Unnayan Samiti have elected Secretary,
Samitis 2 if 60-79% Gram Unnayan Samiti have elected
have Secretary, 1 if 40-59% Gram Unnayan Samiti 4
elected have elected Secretary and 0 if less than 40%
Secretar Gram Unnayan Samiti have elected Secretary
y?
Total 10
2. Participation of the members in the functioning of GP
(a) How many Upa-Samitis have submitted their Budget?
Pattern Maximum Marks
Marks Obtained
No. of Upa-Samitis submitted Budget  1 5
Total 5
(b) How many Upa-Samitis have submitted their budget within due time?
Pattern Maximum Marks
Marks Obtained
No. of Upa-Samitis submitted their budget within due time  1 5
Total 5
(c) How many meetings of the GP General Body and Upa-Samitis took place during the last one year?
Maximum Marks
Sector Scoring Pattern
Marks Obtained
5 if no. of meetings is 15 or more, 4 if no. of
GP General Body meetings is 13-14, 3 if no. of meetings is 12, 2 if no. 5
of meetings is 8-11, 0 if no. of meetings is less than 8
Finance & Planning Upa- 3 if no. of meetings is more than 6, 2 if no. of
3
Samiti meetings is 6, 0 if no. of meetings is less than 6
Agriculture & Animal 3 if no. of meetings is more than 6, 2 if no. of
Resource Development meetings is 6, 1 if no. of meetings is 4-5, 0 if no. of 3
Upa-Samiti meetings is less than 4
Education & Public
,, 3
Health Upa-Samiti
Women, Child
Development and Social ,, 3
Welfare Upa-Samiti
Industry & Infrastructure
,, 3
Upa-Samiti
Total 20
(d) Issues regarding the General Body meeting of GP

Maximum Marks
Marks Obtained
How many meetings of GP General Body have been 5 if 0, 3 if 1-3,
5
adjourned during the last one year? 0 if more than 3
In how many General Body meetings opposite 5 if more than 6,
views/proposals have been written in the resolution 3 if 3-6, 5
book during the last one year? 0 if less than 3
Total 10
(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the
last one year?
Maximum Marks
Marks Obtained
5 if average attendance is 80% or more, 4 if 60-79%, 3
GP General Body if 50-59%, 2 if 40-49%, 1 if 33-39% and 0 if less than 5
33% (when most meetings are adjourned meeting)
Continued in next page ……
(e) What was the average attendance in the meetings of GP General Body and Upa-Samitis during the
last one year? (Continuing)
Maximum Marks
Marks Obtained
Finance & Planning 3 if average attendance is 80% or more, 2 if 60-79%, 1
3
Upa-Samiti if 33-59% and 0 if less than 33%
Agriculture &
Animal Resource
,, 3
Development Upa-
Samiti
Education & Public
,, 3
Health Upa-Samiti
Women, Child
Development and
,, 3
Social Welfare Upa-
Samiti
Industry &
Infrastructure Upa- ,, 3
Samiti
Total 20
3. Services delivered by GP
Maximum Marks
Marks Obtained
(a) Do the GP have list
of all roads
(Road Register) 1 if yes, 0 if no 1
under its
jurisdiction?
(b) What percentage of On the basis of the data available from Road Register
habitations has or any other source 2
connective roads in the 2, if 75-100% habitation has connective roads
GP area? 1, if 50-74% habitation has connective roads
0, if less than 50% habitation has connective roads
or data is not available
(c) What percentage of On the basis of the data available from Road Register
total roads in the GP or any other source
area are all weather 2, if 80-100% habitation has connective roads
roads? 1, if 60-79% habitation has connective roads 2
0, if less than 60% habitation has connective roads
or data is not available
(d) What percentage of On the basis of the data available from Road Register
roads under the GP’s or any other source
jurisdiction requires 5 if 10% or less; 4 if 11-25%; 3 if 26-50%; 5
repairing? 2 if 51-75%; 1 if 76-85%; 0 if more than 85% or
data is not available
3. Services delivered by GP (Continuing)

Maximum Marks
Marks Obtained
(e) What On the basis of the available data
percentage of tube 5 if 10% or less; 4 if 11-20%; 3 if 21-30%;
5
wells in the GP 2 if 31-40%; 1 if 41-50%; 0 if more than 50% or
area is out of order? data is not available
(f) Do the GP take For those GPs where tube well is For those GPs where well
attempts to used as drinking water source is used as drinking water
examine the water source
quality of the On the basis of the available On the basis of the
drinking water data available data
sources and take 5, if water of 91-100% tube well 5, if 91-100% wells have
necessary action? has been examined and been cleansed or
necessary actions taken disinfected
4, if water of 81-90% tube well 4, if 81-90% wells have
has been examined and been cleansed or
5
0, if water of less than 40% tube 0, if less than 40% wells
well has been examined and have been cleansed or
necessary actions taken or data disinfected or
is not available data is not available
(g) What On the basis of the available data 5
percentage of Gram 5 if 60-100%; 3 if 31-59%;
Sansads has 1 if 20-30%; 0 if less than 20% or
drainage system data is not available
prepared by GP?
(h) What On the basis of the available data or any realistic calculation
percentage of roads 5, if 75% or more of the required roads have lighting
in the GP area has 4, if 50-74% of the required roads have lighting
lighting facility 3, if 30-49% of the required roads have lighting
5
(out of the areas 2, if 10-29% of the required roads have lighting
where street 1, if 5-9% of the required roads have lighting
lighting is 0, if less than 5% of the required roads have lighting
required)? or data not available
Continued in next page……

Maximum Marks
Marks Obtained
(i) How much time 5, if certificate is given on the date of application
GP takes to issue 4, if certificate is given on the next day of application
birth & death 3, if certificate is given on the second day of application
5
certificate? 2, if certificate is given within four days of application
1, if certificate is given within a week of application
0, if certificate is given after 7 days of application
(j) How trade 2 if GP issues regularly by taking initiative, 0 if otherwise 2
registration
certificate is issued 1 if renewal is done regularly, 0 if otherwise 1
by the Gram
Panchayat? 2 if the records are maintained in a register, 0 if otherwise 2
(k) What is the role What percentage of house or other construction takes place
of GP in house or by approving the plan from the GP
other construction? 2, if 90-100% 2
1, if 80-89%
0, if less than 80%
2, if GP approves the plan within due time
2
0, otherwise
1, if GP monitors whether construction is taking place
according to the approved plan 1
0, otherwise
(l) Whether any 5, if no
infectious disease 3, if at the time of spread information is given to
like Diarrhea, BMO(H) and medicine circulated brining from him
Malaria, TB etc. 2, if at the time of spread information is given to
5
did spread in a BMO(H) but GP did not take any initiative at its own
large scale during 0, if no action taken at the time of spread
the last 3 years in
the GP area?
(m) Is there any 1, if no 1
encroachment of 0, if yes
public streets or
public places
within the GP area?
(n) Does the GP 2, if 76-100% properties are managed and maintained
manage and 1, if 50-75% properties are managed and maintained
maintain the public 0, if less than 50% properties are managed and
tanks, common maintained
grazing grounds, 2
burning ghats,
public graveyards
or other properties
vested on it?
Continued in next page……

Maximum Marks
Marks Obtained
(o) Whether there 2, if exists everywhere
are separate ladies 1, if exists somewhere
and gents toilets 0, if exists nowhere
and water facility
2
in markets,
busstands or other
public places in the
locality?
(p) Whether there 2, if exists in 76-100% primary schools, SSKs and
are separate toilets anganwadi kendras
for boys and girls 1, if exists in 50-75% primary schools, SSKs and
and water facility anganwadi kendras
in the primary 0, if exists in less than 50% primary schools, SSKs and
2
schools, sishu anganwadi kendras
shiksha kendras
and anganwadi
kendras in the
locality?
(q) Whether there 1, if yes
are waiting sheds in 0, if no 1
the bus stands?
(q) Whether there 2, if exists in each habitation
are children parks 1, if exists in more than one habitation
or playground 0, if does not exist 2
under GP
management?
Total 60
4. GP Building & Office Management

Scoring Maximum Marks
Subject
Pattern Marks Obtained
Does the GP have own building? 1 if yes,
1
0 if no
Is there sufficient space to perform all the works in the GP building? ,, 1
Is there big hall for meeting/training in the GP building? ,, 1
Do the GP have own go down? ,, 1
Is there any provision of drinking water for the people coming to GP? ,, 1
Is there any provision of good toilet for the people coming to GP? ,, 1
Is there any provision of good ladies toilet for the people coming to GP? ,, 1
Is there any system of cleaning the toilets regularly? ,, 1
Total 8
5. GP Information Management & Disposing System
(a) Register related

Maximum Marks
Marks Obtained
Does Pradhan notice whether employees signing the 1 if yes, 0 if no
1
Attendance Register in due time?
Is Asset Register updated regularly? ,, 1
Is Stock Register updated regularly? ,, 1
Is Advance Register updated regularly? ,, 1
Is Project Register updated regularly? ,, 1
Is Works Register updated regularly? ,, 1
Is Register for Issue & Receipt of Letters updated ,,
1
regularly?
Is Cheque Issue & Receipt Register updated regularly? ,, 1
Is Birth & Death Register updated regularly? ,, 1
Is there any register to note complains? ,, 1
Total 10
(b) Are the following lists available at the GP office for public viewing?
Maximum Marks
Marks Obtained
BPL list 2 if yes, 0 if no 2
IAY beneficiary list 1 if yes, 0 if no 1
Annapurna Anna Yojana beneficiary list 1 if yes, 0 if no 1
Antyodaya Yojana beneficiary list 1 if yes, 0 if no 1
NOAPS beneficiary list 1 if yes, 0 if no 1
NMBS beneficiary list 1 if yes, 0 if no 1
Beneficiary list of other government
1 if yes, 0 if no 1
programmes
Land Reforms beneficiary list 1 if yes, 0 if no 1
List of registered bargadars 1 if yes, 0 if no 1
Total 10
(c) Regarding right to information

Maximum Marks
Marks Obtained
Is there any provision of 2 if there is provision and some people has
providing information collected information
to people as per 1 if there is provision but no people has 2
‘Right to Information collected information
Act’? 0 if there is no provision
Total 2
6. Transparency in GP’s work

Maximum Marks
Marks Obtained
(a) How GP Placed to Gram
Budget Sansad
and meeting
Annual Submitted to local 3 if all provisions are there
Report library 2 if any two provisions are there
are Supplied to public on 1 if any one provision is there 3
placed demand
for 0 if no provision is there
public
viewin
g?
(b) Is there any notice board in the GP 2 if yes, 0 if no
office displaying information 2
for public viewing?
(c) Is there any provision of displaying 3 if displayed all the times
necessary information (work 2 if displayed in maximum times
details, budget & who got 1 if displayed in some times 3
work) at the notice board in 0 if displayed never
the workplace?
(d) Is there any provision of giving 2 if there is provision and some
copy of Master Roll if people has collected
demanded? 1 if there is provision but no people 2
has collected
0 if there is no provision
Total 10
7. Education
Maximum Marks
Marks Obtained
(a) What is the female literacy rate 8 if 90-100%, 7 if 80-89%, 6 if 70-79%, 5 if
at the GP? 60-69%, 4 if 55-59%, 3 if 50-54%,
8
2 if 45-49%, 1 if 40-44% and 0 if
less than 40%
(b) By what percentage female 6 if less than 5%, 4 if 6-10%, 2 if 11-15%
6
literacy rate falls short of male? and 0 if more than 15%
(c) What is the percentage of 6 if 97-100%, 5 if 93-96%, 4 if 89-92%,
children going to 3 if 85-88%, 2 if 81-84%, 1 if 75-80%, 0 if
schools / alternative less than 75% and -2 if GP does 6
schools in 5-14 age not have any information
group?
(d) What percentage of children 5 if 90-100%, 4 if 80-89%, 3 if 70-79%,
admitted in Class I pass Class IV 2 if 60-69%, 1 if 50-59%, 0 if less than 50% 5
in due time?
(e) What percentage of children 5 if 85-100%, 4 if 70-84%, 3 if 55-69%,
admitted in Class I pass Class VIII 2 if 40-54%, 1 if 25-39%, 0 if less than 25% 5
in due time?
7. Education (Continuing)
Maximum Marks
Marks Obtained
(g) How the Do VECs hold regular meeting? 2 if yes, 0 if no 2
Vil Have Child Registers been
2 if yes, 0 if no 2
lag prepared?
e Whether household specific list for
Ed the out of school children
uca 2 if yes, 0 if no 2
have been prepared by
tio compiling Child Register?
n Whether any attempts have been
Co taken to admit those out of
m school children by house to 2 if yes, 0 if no 2
mit house or any other
tee campaign?
is Whether any attempts have been
fun taken to open EGS / Bridge
ctio Course / Rabindra Mukta
nin Vidyalayas in those Gram
g Sansads where there is no
wit 2 if yes, 0 if no 2
formal or alternative
hin school?
the
GP
?
What is the percentage of Gram Sansads without
5 if 0%, 4 if 1-5%, 3 if 6-
having any Primary School / Sishu
10%, 2 if 11-15%, 1 if 16- 5
Siksha Kendra / EGS / Bridge Course
20%, 0 if more than 20%
Centres?
Total 45
8. Public Health
(a) Health Services
Maximum Marks
Marks Obtained
Last Saturday health 3 if regularly takes place in every month and report
meeting in the of the meeting is regularly sent to BMO(H),
GP 2 if regularly takes place in every month but report
3
of the meeting is not sent regularly to BMO(H),
1 if the meeting takes place occasionally,
-2 if the meeting takes place never.
Does the GP take definite 2 if definite action plans taken in 9 or more
action plan for meetings in last financial year,
service 1 if definite action plans taken in 6-8 meetings in
2
providing at the last financial year,
last Saturday 0 if definite action plans taken in less than 6
health meeting? meetings in last financial year.
Does the GP implements 3 if implemented in 9 or more cases, 2 if
the action plan? implemented in 7-8 cases, 1 if
3
implemented in 5-6 cases and 0 if
implemented in less than 5 cases
(a) Health Services (Continuing)

Maximum Marks
Marks Obtained
Is there any provision of Doctor 5 if yes, 0 if no
coming to GP headquarter (If there is a system of doctor coming regularly
sub-centre at any particular in a health centre run by the Health Department 5
within the GP area, then also the GP will get 5
day in a week? marks)
Out of the total birth cases in last 5 if 80% or more, 4 if 70-79%, 3 if 60-
one year what was the 69%, 2 if 50-59%, 1 if 40-49%
percentage of children and 0 if less than 40% or data 5
whose birth was registered not available
within 21 days?
Out of the total death cases in last 5 if 80% or more, 4 if 70-79%, 3 if 60-
one year what was the 69%, 2 if 50-59%, 1 if 40-49%
percentage of cases where and 0 if less than 40% or data 5
death was registered within not available
21 days?
Is there any information at the GP 2 if yes, 0 if no
regarding primary health
2
sub-centre wise number of
Dais (midwife)?
Out of total Dais (midwife) in the 3 if 80% or more, 2 if 60-79%, 1 if 40-
GP area what is the 59% and 0 if less than 40% or 3
percentage of trained Dai? data not available
What is the percentage of child born 3 if 0%, 2 if 1-10%, 1 if 11-20% and 0
neither in hospital nor with if more than 20% or data not
the help of a trained Dai available 3
(midwife) during the last
one year?
What was the percentage of children 5 if 95-100%, 4 if 75-94%, 3 if 55-74%,
covered under vaccination 2 if 40-54%, 1 if 25-39% and 0
5
of 6 diseases in last one if less than 25% or data not
year? available
What was percentage of pregnant 4 if 85-100%, 3 if 70-84%, 2 if 55-69%,
women taking 2 tetanus 1 if 40-54%, 0 if less than 40%
4
vaccinations in last one or data not available
year?
What was percentage of women who 5 if 95-100%, 4 if 75-94%, 3 if 55-74%,
has gone through at least 3 2 if 40-54%, 1 if 25-39% and 0
health check-ups at the if less than 25% or data not
pregnancy period and and available 5
at least 1 health check-up
after delivery in last one
year?
Total 45
(b) Drinking Water & Sanitation
Maximum Marks
Marks Obtained
What is the percentage of families 4 if 100%, 3 if 95-99%, 2 if 90-94%,
who do not need to go 1 if 85-89% and 0 if less than 85% or
beyond 100 meters to collect data not available
4
drinking water even in
Baisakh-Jaistha (mid April to
mid June) months?
What is the percentage of families 4 if 80% or more, 3 if 60-79%, 2 if
having access to tap water? 40-59%, 1 if 20-39% and 0 if less than 4
20% or data not available
What is the percentage of families 4 if 50% or more, 3 if 40-49%, 2 if
having tap / tube well / well 30-39%, 1 if 20-29% and 0 if less than 4
within the household? 20% or data not available
What is the percentage of household 4 if 100%, 3 if 70-99%, 2 if 50-69%,
having sanitation? 1 if 30-49% and 0 if less than 30% or 4
data not available
What is percentage of tubewell/well On the basis of the available data
having cemented floor? 2 if 90-100%, 1 if 80-89% and 0 if 2
less than 80% or data not available
What is percentage of water source
,, 2
having soak pit?
Total 20
(c) Women & Child development
Maximum Marks
Marks Obtained
What is the percentage of girls 4 if 0%, 3 if 1-5%, 2 if 6-12%, 1 if 13-20%,
getting married under and 0 if more than 20% or data not
4
18 during the last one available
year?
What is the percentage of
women becoming
,, 4
mother under 20 during
the last one year?
What is the percentage of 4 if 10% or less, 3 if 11-20%, 2 if 21-30%,
women having 3 or 1 if 31-40% and 0 if more than 40% or data 4
more children? not available
Is there any provision of taking 1 if yes, 0 if no
weight at time of birth
when the child is born
1
neither in hospital nor
with the help of trained
dai?
If there is provision, what 2 if 80% or more, 1 if 70-79% and 0 if less
percentage of newly born child than 70% or data not available
2
was weighted during the last one
year?
(c) Women & Child development (Continuing)

Maximum Marks
Marks Obtained
What was the percentage of 2 if 10% or less, 1 if 11-20% and 0 if more
underweight children than 20% or data not available
out of the total child
birth in last one year 2
(classified in Red &
Yellow category of
ICDS weight chart)?
Does the GP have any 3 if GP has own arrangement, 2 if GP does
arrangement of not have own arrangement but helps in the
supplementary nutrition arrangement of anganwadi centres for all
for the underweight children, 1 if GP does not have own 3
children below 3 years arrangement but helps in the arrangement of
of age? anganwadi centres for some children and 0
if GP has done nothing or data not available
Total 20
9. Pro-poor Activities
Maximum Marks
Marks Obtained
(a) What is the percentage of BPL 5 if less than 10%, 4 if 11-20%,
family? 3 if 21-30%, 2 if 31-40%, 5
1 if 41-50%, 0 if more than 50%
(b) What is the average number of man 5 if 25 days or more, 4 if 21-24 days,
days generated per BPL family 3 if 17-20 days, 2 if 13-16 days,
in various employment 1 if 10-12 days, 0 if less than 10 days 5
generation programmes like
NFFWP/SGRY/ WBREGS?
(c) What is the percentage women 4 if 70% or more, 3 if 50-69%,
belonging to Self Help Group? 2 if 30-49%, 1 if 25-29% and 4
0 if less than 25%
(d) Is there any Cluster of SHGs at the 2 if the answer is yes and GP has
GP level? made arrangement for the office of the
Cluster, 1 if the answer is yes but GP
2
has not made any arrangement for the
office of the Cluster and 0 if the
answer is no
(e) What percentage of Untied fund has 2 if 15% or more,
been spent for the economic 1 if 5-14% and
2
development of women during the last 0 if less than 5%
financial year?
9. Pro-poor Activities (Continuing)

Maximum Marks
Marks Obtained
(f) What percentage of BPL families has 5 if 90-100%, 4 if 80-89%,
been targeted to be provided opportunities for 3 if 70-79%, 2 if 60-69%,
5
enhancing income under various schemes in 1 if 50-59%, 0 if less than 50%
the 2006-07 Annual Plan?
(g) What percentage of SC & ST BPL 2 if 90-100%,
families has been targeted to be 1 if 70-89% and
provided opportunities for 0 if less than 70%
2
enhancing income under various
schemes in the 2006-07 Annual
Plan?
(h) What is the percentage of families 5 if 10% or more,
expected to come out of BPL list in 4 if 8-9%,
this year? [combining the 3 if 6-7%, 2 if 4-5%,
5
opportunities mentioned in question 1 if 2-3% and
(f) and other incomes from own 0 if less than 2%
attempt]
Total 30
10. Development of Economic and Social Infrastructure
Maximum Marks
Marks Obtained
(a) What is the percentage of On the basis of the available data
land in the GP area 5 if 80-100%, 4 if 60-79%, 3 if 40-59%,
5
having irrigation 2 if 20-39%, 1 if 5-19%, 0 if less than 5% or
facility? data is not available
(b) What is the percentage of
2 if 60-100%, 1 if 30-59%, 0 if less than 30% 2
mouza having electrification?
(c) What is the percentage of 3 if 60-100%, 2 if 30-59%, 1 if 10-29%, 0 if
3
households having electricity? less than 10%
(d) What is the percentage of On the basis of the available data
primary schools in the GP area 5 if 0%, 4 if 1-20%, 3 if 21-40%,
5
that do not have minimum 2 if 41-60%, 1 if 61-80%, 0 if more than 80%
infrastructure? or data is not available
(e) What is the percentage of
Sishu Siksha Kendras in the
,, 5
GP area that do not have
minimum infrastructure?
(f) What is the percentage of
primary health sub-centres in
,, 5
the GP area that do not have
minimum infrastructure?
10. Development of Economic and Social Infrastructure (Continuing)
Maximum Marks
Marks Obtained
(g) What is the percentage of On the basis of the available data
ICDS centres GP area that do 5 if 0%, 4 if 1-20%, 3 if 21-40%,
5
not have minimum 2 if 41-60%, 1 if 61-80%, 0 if more than 80%
infrastructure? or data is not available
Total 30
11. Housing
Maximum Marks
Marks Obtained
(a) What is the percentage of
10 if 0%, 8 if 0.1-0.5%, 6 if 0.6-1%,
families without a 10
4 if 1.1-1.5%, 2 if 1.6-2%, 0 if more than 2%
homestead?
(b) What is the percentage of
5 if 0-5%, 4 if 6-10%, 3 if 11-15%,
families living in dilapidated 5
2 if 16-20%, 1 if 21-25%, 0 if more than 25%
house?
(c) What is the percentage of
5 if 0-10%, 4 if 11-20%, 3 if 21-40%,
families living in one room 5
2 if 41-60%, 1 if 61-80%, 0 if more than 80%
dwelling house?
Total 20
12. Disaster Preparedness
Maximum Marks
Marks Obtained
Do the GP have any advance 5 if yes, 0 if no
disaster 5
preparedness plan?
Total 5
13. Social Security
Maximum Marks
Marks Obtained
(a) Do all the poor / Antyodaya Anna 4 if the answer is yes by asking
Yojana beneficiary families directly to at least 10% beneficiaries,
get sufficient food as per 2 if the answer is yes by common 4
scheme standard quality and perception and 0 if the answer is no
quantity?
13. Social Security (Continuing)
Maximum Marks
Marks Obtained
(b) After how many days of receiving 4 if within 7 days of receiving
the last installment of NOAPS the allotment, 3 if within 15 days of
money has been given to be receiving allotment, 2 if within 21
pensioners? days of receiving allotment, 1 if 4
within 30 days of receiving allotment
and -2 if beyond 30 days of receiving
allotment
(c) Do the GP have list of physical and 4 if yes, 0 if no
4
mental handicapped persons?
(d) What is the percentage of physical
and mental handicapped 4 if 80-100%, 3 if 60-79%, 2 if 40-
4
persons provided with any 59%, 1 if 25-39%, 0 if less than 25%
benefit under any scheme?
(e) How many landless agricultural
labourers have been brought 4 if 80-100%, 3 if 60-79%, 2 if 40-
4
under the PROFLAL 59%, 1 if 20-39%, 0 if less than 20%
scheme?
Total 20
B. Resource Mobilization & Its Utilisation
14. Issues regarding Bye-Law of GP
Subject Scoring Pattern Maximum Marks

Marks Obtained
(a) Whether 3 if new Rate, Fee etc. have been fixed and accordingly
new Rate, Fee collection of Rate, Fee etc. have increased by 50% or more,
etc. have been 2 if new Rate, Fee etc. have been fixed and accordingly
fixed as per collection of Rate, Fee etc. have increased by 30-49%,
Bye-Law? 1 if new Rate, Fee etc. have been fixed and accordingly 3
collection of Rate, Fee etc. have increased by 15-29%,
0 if new Rate, Fee etc. have been fixed and accordingly
collection of Rate, Fee etc. have increased by less than 15%
and -2 if new Rate, Fee etc. have not been fixed
(b) How Rate 2 if collected by using all sections
Fee etc. are 1 if collected by using some sections
2
collected as per 0 if not collected
Bye-Law?
Total 5
15. Issues regarding GP Plan & Budget
Allotted Marks Marks

Subject
If yes If no Obtained
(a) Was any estimation Resources from Govt. Programmes 1 0
done at the time of annual GP’s Own Revenue 1 0
plan preparation regarding Peoples’ Contribution 1 0
total resources to be Local unused or low used resources 1 0
available?
(b) Whether village based participatory plans are prepared? 2 0
(c) Whether Annual Plan has been prepared in due time? 2 0
(d) Whether Annual Budget has been prepared in due time? 2 0
(e) If some expenditure is incurred beyond budget is that get approved 2 0
by GP General Body meeting?
(f) Before Is it checked whether the work is included in plan? 1 0
giving Is it checked whether the work is provisioned in budget? 1 0
work Is it checked whether exact plan & estimate exists? 1 0
order Whether the supply of funds is checked? 1 0
(g) If some expenditure is incurred beyond estimate is that get approved 1 0
by GP General Body meeting?
(h) Is there any mechanism at the time of expenditure to check whether 1 0
the work is included in approved plan & budget?
(i) How much time is required to 2 if 7 days or less, 1 if 8-15 days Maximum
start work after receiving of fund? and 0 if 15 days or more Marks : 2
Total 20 0
Actual Marks Obtained (= Total Marks Obtained ÷ 2) 10 0
16. Own Source Revenue in Last Financial Year
Maximum Marks
Subject Pattern Scoring Pattern
Marks Obtained
Tax 7 if Per Capita Tax Revenue is more than or equal to Rs. 10
R 6 if Per Capita Tax Revenue is within Rs. 8 to Rs. 9.99
e 5 if Per Capita Tax Revenue is within Rs. 6 to Rs. 7.99
vPer 4 if Per Capita Tax Revenue is within Rs. 5 to Rs. 5.99
7
e 3 if Per Capita Tax Revenue is within Rs. 4 to Rs. 4.99
n 2 if Per Capita Tax Revenue is within Rs. 3 to Rs. 3.99
u 1 if Per Capita Tax Revenue is within Rs. 2 to Rs. 2.99
e 0 if Per Capita Tax Revenue is less than Rs. 2

16. Own Source Revenue in Last Financial Year (Continuing)
Maximum Marks
Marks Obtained
What is the
perc
enta
ge of
incre
ment
of
tax 10 if increment is 30% or more
reve 9 if increment is 27-29%, 8 if increment is 24-26%
nue 7 if increment is 21-23%, 6 if increment is 18-20%
in 5 if increment is 15-17%, 4 if increment is 12-14%
10
the 3 if increment is 9-11%, 2 if increment is 6-8%
last 1 if increment is 3-5%, 0 if increment is less than 3%
year and -2 if last year’s collection is less than its
com previous year
Tax pare
R d to
e its
v previ
e ous
n year
u ?
eWhat was the
perc
enta
ge of
Coll
13 if 100% collected, 12 if 95-99% collected,
ectio
11 if 90-94% collected, 10 if 80-89% collected,
n out
of
7 if 50-59% collected, 6 if 40-49% collected, 13
Asse
ssme
3 if 20-24% collected, 2 if 15-19% collected and
nt in
0 if less than 15% collected
last
finan
cial
year
?
8 if Per Capita Non-Tax Revenue is more than or equal
to Rs. 10
7 if Per Capita Non-Tax Revenue is within Rs. 8 to
Rs. 9.99
Rs. 7.99
Per capita 5 if Per Capita Non-Tax Revenue is within Rs. 5 to
Non- Rs. 5.99
Tax 4 if Per Capita Non-Tax Revenue is within Rs. 4 to 8
Reve Rs. 4.99
nue 3 if Per Capita Non-Tax Revenue is within Rs. 3 to
Rs. 3.99
2 if Per Capita Non-Tax Revenue is within Rs. 2.50 to
Rs. 2.99
Rs. 2.49
Non-Tax 0 if Per Capita Non-Tax Revenue is less than Rs. 2
17. Cashbook
Maximum Marks
Marks Obtained
On which date cashbook has been 4 if yesterday
written last? 3 if within last 3 days
2 if in between 4-7 days 4
1 if in between 8-15 days
0 if more than 15 days ago
On which date subsidiary ,,
cashbook has been 4
written last?
On which date Pradhan has signed ,,
4
the cashbook last?
What is cash in hand today? (if 4 if Rs. 500 or less
some money is 3 if in between Rs. 501-700
withdrawn from the bank 2 if in between Rs. 701-800
to make labour payment, 1 if in between Rs. 801-900 4
that amount not to be 0 if in between Rs. 901-1000
taken into consideration -2 if more than Rs. 1000
here)
For how many days money is kept 4 if no such cash in hand or cash
in hand for labour withdrawn today or yesterday
payment as per today? 3 if cash withdrawn 2 days ago
4
2 if cash withdrawn 3 days ago
1 if cash withdrawn 4-5 days ago
0 if cash withdrawn more than 5 days ago
Total 20
18. Audit
Maximum Marks
Marks Obtained
Has the report of last Statutory Audit 2 if yes, 0 if no
has been placed and
2
discussed in the General
Body meeting of GP?
How the measures suggested in this 3 if all measures have been taken within
report have been taken? due time, 2 if some measures have been
taken within due time and some after due
3
time, 1 if all measures have been taken
after due time and 0 if no measures have
been taken

18. Audit (Continuing)
Maximum Marks
Marks Obtained
Has the report of last Internal Audit 2 if yes, 0 if no
has been placed and
2
discussed in the General
Body meeting of GP?
How the measures suggested in this 3 if all measures have been taken within
report have been taken? due time, 2 if some measures have been
taken within due time and some after due
3
time, 1 if all measures have been taken
after due time and 0 if no measures have
been taken
Total 10
19. Fund Utilisation

Maximum Marks
Marks Obtained
What is the percentage of funds utilized out of 40 if 90-100%, 32 if 80-89%,
the total funds received for different 24 if 70-79%, 16 if 60-69%,
programmes (including opening 8 if 50-59% and 40
balance) during the last financial 0 if less than 50%
year?
Utilisation What percentage of Own Fund has 10 if 90-100%, 8 if 80-89%,
o been utilized? 6 if 70-79%, 4 if 60-69%,
10
f 2 if 50-59% and
O 0 if less than 50%
w What percentage of Own Fund has 5 if less than 10%,
n been utilized for office 4 if 10-19%, 3 if 20-29% and 5
F expenses? 0 if more than 30%
u What percentage of Own Fund has 5 if 40% or more, 4 if 30-39%,
n been utilized for various 3 if 20-29%, 2 if 10-19%,
d social programmes (e.g. 1 if 5-9% and
o 5
education, health, 0 if less than 5%
f nutrition, women and
G child development etc.)?
P What percentage of Own fund has 5 if more than 15%, 4 if 13-15%,
d been utilized for 3 if 9-12%, 2 if 6-8%,
u 5
education during the last 1 if 3-5% and 0 if less than 3%
ri financial year?
n What percentage of Own fund has 5 if more than 15%, 4 if 13-15%,
g been utilized for health 3 if 9-12%, 2 if 6-8%,
t 5
during the last financial 1 if 3-5% and 0 if less than 3%
h year?
e What percentage of Own fund has 5 if more than 15%, 4 if 13-15%,
la been utilized for women 3 if 9-12%, 2 if 6-8%,
st & child development 1 if 3-5% and 0 if less than 3%
fi during the last financial
n year?
a
n
ci
al
y
e
a
r
(i
n
cl
u
d 5
i
n
g
o
p
e
n
i
n
g
b
20. Provision for sending Utilisation Certificates and Report Returns
(a) Utilisation Certificates
Maximum Marks
Marks Obtained
When For various 7 if sent within 3 months from the receiving of fund,
G sch 3 if sent within 4 months from the receiving of fund,
P em 1 if sent within 6 months from the receiving of fund, 7
es 0 if sent beyond 6 months from the receiving of fund
nFor
o ad
r mi
m nis
a -
l trat 3 if sent within the period for which the fund is received,
l ive 2 if sent within 15 days from the end of the period for
y ex which the fund is received,
pe 1 if sent within 1 month from the end of the period for
s nse which the fund is received, 3
e s 0 if sent beyond 1 month from the end of the period for
n which the fund is received and
d -2 if never sent
s
U
C
?
Total 10
(b) Report Returns
Maximum Marks
Marks Obtained
When Annual works report 2 if within the due date, 0 otherwise 2
GHalf-yearly works report 1 if within the due date, 0 otherwise 1
PMonthly progress report 4 if within the due date, 0 otherwise 4
3 if within the due date,
n 2 if within 7 days after the due date,
o 1 if within 15 days after the due date and
r 0 if more than 15 days after the due date
m
a
l
l
y
s
e
n
d
s
t
hData and reports
edemanded by State
sGovt., District, Sub- 3
edivision, Block from the
GP time to time
r
e
p
o
r
t
s
a
n
d
d
a
t
a
?
Total 10
21. Natural Resource Utilisation

Maximum Marks
Marks Obtained
(a) What percentages of areas On the basis of the available data
have been covered 10 if 90-100%, 8 if 80-89%, 6 if 70-79%,
under social forestry out 4 if 60-69%, 2 if 50-59%, 0 if less than 50% 10
of the total possible and -2 if data is not available
space?
(b) What is the percentage of 5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31-
tubewell/well/tank that dries out 40%, 1 if 41-50%, 0 if more than 50% 5
in the summer?
(c) What is the percentage of 5 if 1-10%, 4 if 11-20%, 3 if 21-30%, 2 if 31-
areas where it has not 40%, 1 if 41-50%, 0 if more than 50%
5
been possible to prevent
land erosion?
Total 20
Overall
Maximum Marks
Subject
Marks Obtained
A. Good Governance
1. Peoples’ (a) Last Gram Sansad meeting (General Meeting, not special) 10
participation in (b) Formation of Gram Unnayan Samiti and Secretary Election 10
GP’s activities
2. Participation (a) How many Upa-Samitis have submitted their Budget? 5
of the members (b) How many Upa-Samitis have submitted their budget within 5
in the due time?
functioning of (c) How many meetings of the GP General Body and Upa- 10
GP Samitis took place during the last one year?
(d) Issues regarding the General Body meeting of GP 5
(e) What was the average attendance in the meetings of GP 5
General Body and Upa-Samitis during the last one year?
3. Services delivered by GP 20
4. GP Building & Office Management 8
5. GP Information (a) Register related 10
Management & (b) Are the following lists available at the GP office for 5
Disposing System public viewing?
(c) Regarding right to information 2
6. Transparency in GP’s work 10
7. Education 15
8. Public Health (a) Health Services 15
(b) Drinking Water & Sanitation 10
(c) Women & Child development 10
9. Pro-poor Activities 10
10. Development of Economic and Social Infrastructure 10
11. Housing 10
12. Disaster Preparedness 5
13. Social Security 10
Total (Good Governance) 200
B. Resource Mobilization & Its Utilisation
14. Issues regarding Bye-Law of GP 5
15. Issues regarding GP Plan & Budget 10
16. Own Source Revenue in Last Financial Year 20
17. Cashbook 10
18. Audit 10
19. Fund Utilisation 15
20. Provision for sending Utilisation (a) Utilisation Certificates 10
Certificates and Report Returns (b) Report Returns 10
21. Natural Resource Utilisation 10
Total (Resource Mobilization & Its Utilisation) 100
Grand Total 300
Actual Total Marks Obtained (= Total Marks Obtained ÷ 3) 100
Signature & Seal of Secretary Signature & Seal of Executive Assistant Signature & Seal of Pradhan

Vision For Panchayat in West Bengal, India

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Vision For Panchayat in West Bengal, India

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Panchayat & Rural Development

ROADMAP FOR THE PANCHAYATS IN WEST BENGAL

Marketing and other facilities for Promotion of Economic Activities......................................47

Benchmark for Implementation Strategy of Roadmap ...........................................................104

THE NEED FOR A ROADMAP

Evolution of Rural Local Governance in West Bengal

Major Activities of the PRIs of the State Since 1978

The Need for Change

Bringing About Change

Approaches for the Roadmap

deep tubewells with motor-driven pump-sets installed for commercial purpose,

STRENGTHENING OF DEMOCRATIC FUNCTIONING OF THE PANCHAYATS

Participation at the Village Level

Organizing the Poor for Their Participation in Panchayats

Strengthening Functioning of the Upa-Samitis and Standing Committees

Defining the Roles of Members Who Are Not Office Bearers

Increasing Participation of the Political Parties in Opposition

Functioning of the District Council

Other Ethical Steps for Good Governance

Interface between Panchayat and Civil Society

IMPROVING CORE CIVIC SERVICES

Providing Civic Services to the Citizen

Drinking Water Supply and Sanitation

Services Related to Public Health

Prevention of diseases – Prevention of communicable diseases in general is the task of the

Services Related to Universal Literacy and Elementary Education

Maintenance of roads owned by the Panchayats – Maintenance of roads will be an important

Irrigation, Drainage and Flood Protection

Housing and Development of Habitat

Marketing and other facilities for Promotion of Economic Activities

Issuing Trade Registration Certificates and Licenses

Special Requirements of the Urbanised Gram Panchayats

DECENTRALISED PLANNING AND IMPLEMENTATION FOR ECONOMIC

Better management of Natural Resources and Improved Land Use

Development of Water-bodies and Promotion of Fishery – Water conservation by storing

Promotion of Animal Husbandry – Animal husbandry and development of livestock is

Promotion of Livelihood Opportunities in Non-Farm Sectors

Alleviation of Poverty & Social Equity

Implementation of area development programmes – The Panchayats have been fully

Measures for Social Security

Planning from Below for Economic Development and Social Justice

Developing Panchayat-Private Partnership

AUGMENTING PANCHAYAT FINANCE AND IMPROVING FINANCIAL MANAGEMENT

Current Status of Mobilisation of OSR

Improving Collection of OSR

Improvement of Budgetary Control and Financial Management

Improvement of Accounting Practices and Computerisation of Accounts

Internal Audit of Panchayat Accounts

Scrutiny of Panchayat Accounts by the Legislature

Capacity Building for Better Management of Fund

FUNCTIONARIES OF THE PANCHAYATS AND BUILDING THEIR CAPACITIES

Employees of the Panchayats

Capacity Building of Employees & Other Functionaries of Panchayats

Strengthening SIPRD, the ETCs

Use of Information and Communication Technology for Efficient Functioning

Strengthening the Directorate Office

HARMONISATION OF ACTS AND RULES CONCERNING FUNCTIONING OF THE

Acts for which Amendments are proposed

Amendment of Panchayat Act / Rules

Framing/amendment of Rules – Gram Panchayat Administration Rules [The West Bengal

ROAD AHEAD – STRATEGY FOR ACHIEVING THE GOALS