S.K. Acharya, G.C. Mishra and Karma P.

Kaleon

CHAPTER - 6

Conclusion and Recommendations

6.0 INTRODUCTION
This chapter presents a Conclusion and Recommendation assessment of the
effectiveness of the existing strategies. Bihar occupies a unique position in
the map of India. It is one of the highest populous state in the country (2nd
highest based 2001 census). The density of population is nearly double of
all India average. Literacy level is well below the national average. The
infant mortality rate is higher than Indian average. The rural population is
higher than national average. In some districts of North Bihar rural
population accounted for over 90 per cent. The higher concentration of
population in rural areas led to over dependence on agriculture. The average
size of holding is almost half of all India size. The north Bihar is highly
flood prone. The absence of viable strategies of flood control and water
management led to backwardness of the region and the state. The
agriculture growth of the state is well below the national growth.

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6.1 Three tiers (levels) of Panchayat Raj

The Gram Panchayat: Gram Panchayat is the primary unit of Panchayati Raj
Institutions or local self-government. In other words it can be said that the
first formal democratic institution under the directive principle in the Indian
constitution is the Gram Panchayat. It is a cabinet of the village elders,
directly elected by the adult citizens of the village. Gram Panchayats are
constituted considering their income, population and area. There is a
provision for reservation of seats for women and Scheduled Castes and
Scheduled Tribes. The panchayat has tenure of five years and is directly
elected. It has income through taxes to perform its functions.

6.2 Main functions of Village Panchayat

The main functions of Village Panchayat are:
1. Preparation of Annual Plans for the development of the village Panchayat
area.
2. Preparation Annual Budget of Village Panchayat.
3. Mobilization of relief in natural calamities.
4. Removal of encroachments on public properties.
5. Organizing voluntary labours and contribution for community works.
6. Maintenance of essential statistics of villages.
7. Such other development works as may be entrusted.
8. Service or developmental function, such as promotion of education,
health, agriculture, etc.
9. Representative function, where the main role is to voice and represent the
opinion;

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10. Regulatory and administrative functions, which consists of regulating

the conduct of individuals and institutions and also collection of taxes.

6.3 Sources of income of village panchayat

1. Share in land revenue.
2. Local tax.
3. Revenue earned from the settlement of shops, fisheries, etc
4. House taxes & other taxes as specified in Panchayati Raj Act.
5. Fees for providing amenities, cess, and tolls.
6. Contribution and grants.
7. Fine and penalties.

6.4 block Panchayat

It is also known as Panchayat Samiti or Panchayat Union: This is the second
tier of the administration at Taluka or Block level. It is headed by Taluka
President. Block Development Officer is appointed by the Government. He
functions as the leader of the Block.

6.5 Main functions of Panchayat Samiti

The main functions of the Panchayat Samitis are planning, execution and
supervision of all developmental programmes in the Block. It also
supervises the works of Gram Panchayats within its Jurisdiction. It has to
instil among people within its jurisdiction a spirit of self-help and initiative
and work for raising the standard of living. It has to support for the
implementation of development programmes. It has the welfare and
development activities in the fields of agriculture, animal husbandry, health,

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sanitation, elementary education, cottage industries and social. It has to use

the village housing project funds and loans.
6.6 Zilla Panchayat
It is also known as District Development Council or Zilla Parishad. This is
the third tier of Panchayat Raj functioning at district level. It is headed by
Panchayat Union Chairman. District Collector leads the work with the help
of District Development Officers.
6.7 Functions of Zila Panchayat
1. It works as advisory body for blocks.
2. It approves budget and plan of blocks.
3. It allots funds to the blocks.
4. It approves budget and plan of blocks. It allots funds to the blocks.
5. Secondary education is the responsibility of this council.
6. It should advise Government in all matters relating to rural development
in the district.
7. It has to review the results achieved under various items in all the blocks.
6.8 special features of Democratic Decentralization
1. The sanctioning powers of most of the works and schemes are with
panchayat Samitis and standing committees.
2. Most of the functions are implemented and performed by administrative
control of the Panchayat Samitis. Thus, there is a single agency at Block
level for all development programmes.
3. The power and functions of the District Boards are allocated among the
parishads and the samitis, which are within the reach of rural people.

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4. Panchayat samitis have all the technical assistance required at the block
level itself.
5. Elementary education is the sole responsibility of the panchayat samitis.
6. Rural medical institutions in the Block are under the administrative
control of the panchayat samitis.
7. Members of the panchayat samitis have the right to inspect institutions or
works in the Block with a view to ensure efficient working and execution
and draw the attention of the executive to any defects.
8. Personnel functioning within the Block are pooled together so that they
function in a coordinated way under the samitis.
9. The responsibility for maintenance of minor irrigation works.
10. Panchayat samitis provide financial and technical assistance and
supervision to panchayats.
11. Block plans are made based on village plans, district plans based on
block plans and state are made based on district plans. This way plans are
made truly based on needs of the people.
12. The panchayat samitis are given power to levy surcharges on taxes
levied by the panchayats. This will help the panchayat samitis to build up
their resources.
13. The main functions of the popular institutions are planning and
execution of all schemes of rural development on the twin principles of self-
help and mutual cooperation.
Panchayat Raj system gave significant progress in the fields of primary and
secondary education, communication, agricultural extension, cooperation,
health, etc. People could get drinking water. In some places people had

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protected water supply, Village streets, electric light provision, village

sanitation, etc., had enough resources. Rural awakening was brought up
among rural people; as a result villagers became conscious of their rights
and improved their standard of living.
6.9 Gram Swarozgar Yojana Swarnjayanti (SGSY)
Swarnjayanti Gram Swarojagar Yojana is centrally sponsored which came
into effect from 01/04/1999 Scheme basically emphasizes on self-
employment. Scheme covers all aspect of self- employment like capacity
building, subsidy, and infrastructure facility, and credit, skill upgradation,
insurance and marketing. Programme for self-employment of the poor has
been an important component of the antipoverty programmes implemented
through government initiatives in the rural areas of India. At present the
Swarnjayanti Gram Swarozgar Yojana (SGSY) is the major on-going
programme for self-employment of the rural poor. The programme was
started with effect from 01.04.1999 after review and restructuring of the
erstwhile IRDP and its allied programmes namely TRYSEM, DWCRA,
SITRA and GKY, besides MWS. The earlier programmes are no longer in
operation with the launching of the SGSY. The basic objective of the SGSY
is to bring the assisted poor families (Swarozgaris) above the Poverty Line
by providing them income-generating assets through a mix of Bank Credit
and Governmental Subsidy. The programme aims at establishing a large
number of micro enterprises in rural areas based on the ability of the poor
and potential of each area. The brief details of the programme are indicated
in the following paragraphs. Strategy: The SGSY is different from earlier
Programmes, in terms of the strategy envisaged for its implementation. It

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has been conceived as a holistic Programme of self-employment. It covers

all aspects of self-employment of the rural poor viz. organisation of the poor
into Self Help Groups (SHGs) and their capacity building, training,
selection of key activities and planning of activity clusters, infrastructure
build up, technology and marketing support.
6.10 Social Mobilization of the poor
A major shift of the SGSY, from the erstwhile programmes, is its emphasis
on the social mobilisation of the poor. The programme focuses on
organisation of the poor at grassroots level through a process of social
mobilisation for poverty eradication. Social mobilisation enables the poor to
build their own organisations {Self-Help Groups (SHGs)} in which they
fully and directly participate and take decisions on all issues that will help
them in coming above the poverty line. A SHG may consist of 10-20
persons belonging to families below the Poverty Line and a person should
not be a member of more than one group. In the case of minor irrigation
schemes and in the case of disabled persons, this number may be a
minimum of five. Efforts have to be made to involve women members in
each SHG and 50% of Self-Help Groups in each block should be
exclusively of women. Group activities are to be given preference and
progressively, majority of the funding should be for Self-Help Groups.
Activity Clusters - Planning and Selection: The SGSY also emphasizes
assistance to the Swarozgaris only for those activities which have been
identified and selected as key activity in terms of their economic viability in
the area. Each Block has to concentrate on 4-5 Key Activities based on local
resources, occupational skills of the people and availability of markets so

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that the Swarozgaris can draw sustainable incomes from their investments.
The SGSY adopts a Project approach for each Key Activity and Project
Reports are to be prepared in respect of each identified Key Activity. The
Banks and other financial institutions have to be closely associated and
involved in preparing these Project Reports, so as to avoid delays in
sanctioning of loans and ensure adequacy of financing. Selection of the
activities has to be done with the approval of the Panchayat Samitis at the
Block level and District Rural Development Agency/Zilla Parishad at the
District level. These Key Activities should preferably be taken up in
Activity Clusters so that the backward and forward linkages can be
effectively established and economies of large scale production can be
reaped. A major share of the assistance to be provided under the SGSY
should also be for Activity Clusters. Target Group: Families Below the
Poverty Line (BPL) in rural areas constitute the target group of the SGSY.
Within the target group, special safeguards have been provided to
vulnerable sections, by way of reserving 50% benefits for SCs/STs, 40% for
women and 3% for disabled persons. Financial Assistance: Assistance
under the SGSY, to individual Swarozgaris or Self Help Groups, is given in
the form of subsidy by the Government and credit by the Banks. Credit is
the critical component of the SGSY, subsidy being a minor and enabling
element. Accordingly, the SGSY envisages greater involvement of the
Banks. They are to be closely involved in the Planning and preparation of
Project Reports, identification of activity clusters, infrastructure planning as
well as capacity building and choice of activity of the SHGs, selection of
individual Swarozgaris, preceded activities and post-credit monitoring

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including loan recovery. SGSY also seeks to promote multiple credits rather
than a one-time credit .injection.. The credit requirements of the
Swarozgaris need to be carefully assessed and the Swarozgaris are allowed,
in fact encouraged, to increase credit intake, over the years. Subsidy under
the SGSY to individuals is uniform at 30% of the Project Cost subject to a
maximum of Rs. 7500/-. In respect of SCs/STs, the subsidy is 50% of the
Project Cost, subject to a maximum of Rs. 10,000/-. For groups of
Swarozgaris, the subsidy is 50% of the cost of the scheme, subject to a
ceiling of Rs. 1.25 lakh. There is no monetary limit on subsidy for Irrigation
Projects. Subsidy is back ended i.e. it is released as part of the loan to be
adjusted against last installment on satisfactory utilization of the loan for the
micro enterprise. No interest is charged on the subsidy amount.
6.11 Training of Swarozgaris
The SGSY seeks to lay emphasis on skill development through well-
designed training courses. Those, who have been sanctioned loans, are to be
assessed and given necessary training. The design, duration and the training
curriculum is tailored to meet the needs of the identified Key Activities.
DRDAs are allowed to set apart up to 10% of the SGSY allocation on
training. This may be maintained as .SGSY ¡V Training Fund..
6.12 Infrastructure Development
SGSY provides for review of existing infrastructure for the cluster of
activities and identification of gaps. Under SGSY, critical gaps in
investments have to be made up, subject to a ceiling of 20% (25% in the
case of North Eastern States) of the total allocation made under the SGSY
for each District. This amount is maintained by the DRDAs as .SGSY

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Infrastructure Fund.. Marketing and Technology Support: SGSY attempts to

ensure upgradation of technology in the identified key activity. The
technology intervention seeks to add value to the local resources, including
processing of the locally available material from natural and other resources
for the local and non-local market. SGSY also provides for promotion of
marketing of the goods produced by the Swarozgaris, which involves
organization and participation in exhibitions/ melas at
District/State/National/International levels to display and sell goods
produced by the Swarozgaris, provision of market intelligence,
development of markets and consultancy services, as well as institutional
arrangements for marketing of the goods including exports.
6.13 Mahatma Gandhi National Rural Employment Guarantee Act
(MGNREGA)
It is also known as NREGA. NREGA Launched on 2nd February 2006 as a
momentous initiative towards pro-poor growth. For the first time, rural
communities have been given not just a development programme but also a
regime of rights. The National Rural Employment Guarantee Act, 2005
(NREGA) guarantees 100 days of employment in a financial year to any
rural household whose adult members are willing to do unskilled manual
work. This work guarantee also serve other objectives: generating
productive assets and skills thereby boosting the rural economy, protecting
the environment, empowering rural women, reducing rural urban migration
and fostering social equity, among others. The Act offers an opportunity to
strengthen our democratic processes by entrusting principle role to

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Panchayats at all levels in its implementation and promises transparency

through involvement of community at planning and monitoring stages.
6.14 Pradhan Mantri Gram Sadak Yojana
Rural Road Connectivity is not only a key component of Rural
Development by promoting access to economic and social services and
thereby generating increased agricultural incomes and productive
employment opportunities in India, it is also as a result, a key ingredient in
ensuring sustainable poverty reduction. Notwithstanding the efforts made,
over the years, at the State and Central levels, through different
Programmes, about 40% of the Habitations in the country are still not
connected by All-weather roads. It is well known that even where
connectivity has been provided, the roads constructed are of such quality
(due to poor construction or maintenance) that they cannot always be
categorized as All-weather roads. With a view to redressing the situation,
Government has launched the Pradhan Mantri Gram Sadak Yojana on 25th
December, 2000 to provide all-weather access to unconnected habitations.
The Pradhan Mantri Gram Sadak Yojana (PMGSY) is a 100% Centrally
Sponsored Scheme. 50% of the Cess on High Speed Diesel (HSD) is
earmarked for this Programme.
6.15 Objectives of PMSGY
The primary objective of the PMGSY is to provide Connectivity, by way of
an All-weather Road (with necessary culverts and cross-drainage structures,
which is operable throughout the year), to the eligible unconnected
Habitations in the rural areas, in such a way that all Unconnected
Habitations with a population of 1000 persons and above are covered in

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three years (2000-2003) and all Unconnected Habitations with a population

of 500 persons and above by the end of the Tenth Plan Period (2007). In
respect of the Hill States (North-East, Sikkim, Himachal Pradesh, Jammu &
Kashmir, Uttaranchal) and the Desert Areas (as identified in the Desert
Development Programme) as well as the Tribal (Schedule V) areas, the
objective would be to connect Habitations with a population of 250 persons
and above.
6.16 Indira Awaas Yojana
Housing is one of the basic requirements for human survival. For a normal
citizen owning a house provides significant economic security and status in
society. For a shelter less person, a house brings about a profound social
change in his existence, endowing him with an identity, thus integrating him
with his immediate social milieu. For the first 25 years after independence,
the problem of rural housing did not receive any serious attention from the
Government. A housing programme for the rehabilitation of refugees was
taken up immediately after partition by the Ministry of Refugee
Rehabilitation and lasted till around 1960 under which approximately 5 lakh
families were housed in various centres mainly located in Northern India. A
Village Housing Scheme was also launched as part of the Community
Development Movement in 1957, in which loans to individuals and
cooperative were provided up to a maximum of Rs.5000/- per house,
however only 67000 houses were built under this scheme by the end of the
Fifth plan (1980). In 1972-73, the Estimates Committee of the Lok Sabha in
its 37th Report pointed out that ¡§ the Committee are distressed to note that
although 83% of India.s population live in villages and about 73% of the

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rural population reside in unsatisfactory kutcha structure, the problem of

rural housing has not received the close attention of the Government."
Following this, certain initiatives were undertaken by Government
including the launching of the House Sites cum Construction The genesis of
the Indira Awas Yojana can be traced to the programmes of rural
employment which began in the early 1980s. Construction of houses was
one of the major activities under the National Rural Employment
Programme (NREP) which began in 1980 and the Rural Landless
Employment Guarantee Programme (RLEGP) which began in 1983. There
was, however, no uniform policy for rural housing in the states. For instance
some states permitted only part of the construction cost to be borne from
NREP/ RLEGP funds and the balance was to be met by beneficiaries from
their savings or loans obtained by them. On the other hand others permitted
the entire expenditure to be borne from NREP/ RLEGP funds. While some
states allowed construction of only new dwelling others permitted
renovation of existing houses of beneficiaries.
As per announcement made by Government in June 1985, a part of RLEGP
fund was earmarked for the construction of SCs/ STs and freed bonded
labourers. As a result, Indira Awaas Yojana (IAY) was launched during
1985-96 as a sub-scheme of RLEGP. IAY thereafter continued as a sub-
scheme of Jawahar Rozgar Yojana (JRY) since its launching in April, 1989.
6% of the total JRY funds were allocated for implementation of IAY. From
the year 1993-94 the scope of IAY was extended to cover Non Scheduled
Castes/ Scheduled Tribes below the poverty line families in the rural areas.
Simultaneously, the allocation of funds for implementing the scheme was

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raised from 6% to 10% of the total resources available under JRY at

national level, subject to the condition that the benefits to Non-Scheduled
Castes/ Scheduled Tribes poor should not exceed 4% of the total JRY
allocation. IAY has now been de-linked from JRY and has been made an
independent scheme with effect from 1st January 1996. Objective: The
objective of Indira Awaas Yojana is primarily to help construction of
dwelling units by members of Scheduled Castes/ Schedule Tribes, freed
bonded labourers and also non- SC/ST rural poor below the poverty line by
providing them with grant-in-aid. Target Group: The target group for
houses under Indira Awaas Yojana is people below poverty line living in
rural areas belonging to Scheduled Castes/ Scheduled Tribes, freed bonded
labourers and non- SC/ST Categories. A maximum of 40% of the total IAY
allocation during a financial year can be utilised for construction of
dwelling units for non-SC/ST BPL categories. From 1995-96, the IAY
benefits have been extended to widows or next-of-kin of defense personnel
and Para military forces killed in action irrespective of the income criteria
subject to the condition that (i) they reside in rural areas; (ii) they have not
been covered under any other scheme of shelter rehabilitation; and (iii) they
are houseless or in need of shelter or shelter upgradation. Benefits have also
been extended to ex-servicemen and retired members of the paramilitary
forces as long as they fulfill the normal eligibility conditions of the Indira
Awaas Yojana and have not been covered under any other shelter
rehabilitation scheme. The priority in the matter of allotment of houses to
the ex-serviceman and paramilitary forces and their dependents will be out
of 40% of the houses set apart for allotment among the non-SC/ST

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categories of beneficiaries. A fund to the tune of 3% is earmarked for the

benefit of disabled persons below poverty line. This reservation of 3%
under IAY for disabled persons below the poverty line would be horizontal
reservation i.e., disabled persons belonging to sections like SCs, STs and
Others would fall in their respective categories. Identification of
Beneficiaries: District Rural Development Agencies (DRDAs) / Zilla
Parishads on the basis of allocations made and targets fixed shall decide the
number of houses to be constructed Panchayat wise under IAY during a
particular financial year. The same shall be intimated to the Gram
Panchayat. Thereafter, the Gram Sabha will select the beneficiaries from the
list of eligible households according to IAY guidelines and as per priorities
fixed, restricting this number to the target allotted. No approval of the
Panchayat Samiti is required. The Panchayat Samiti should however, be
sent a list of selected beneficiaries for their information.
6.17 Council for Advancement of People’s Action & Rural Technology
(CAPART)
Recognizing the need for an organisation that would coordinate and
catalyse the development work of voluntary agencies in the country,
particularly to ensure smooth flow of benefits to the underprivileged and
socio-economically weaker sections of society, Government of India, in
September, 1986 set up the Council for Advancement of People’s Action
and Rural Technology (CAPART), a registered society under the aegis of
the Department of Rural Development, by merging two autonomous bodies,
namely, People.s Action for Development of India (PADI) and Council for

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Advancement of Rural Technology (CAPART). The main objectives of the

CAPART are:-
To encourage, promote and assist voluntary action for the implementation
of projects intending enhancement of rural prosperity.
To Strengthen and promote voluntary efforts in rural development with
focus on injecting new technological inputs;
To act as a catalyst for the development of technology appropriate for rural
areas.
To promote, plan, undertake, develop, maintain and support
projects/schemes aimed at all-round development, creation of employment
opportunities, promotion of self-reliance, generation of awareness,
organisation and improvement in the quality of life of the people in rural
areas through voluntary action.
CAPART made useful contribution towards the implementation of the
following programmes or schemes:
1. Jawahar Rozgar Yojana (Now renamed as Gram Samridhi Yojana
(JGSY)
2. Development of Women & Children in Rural Areas (DWCRA)
3. The Schemes DWCRA, IRDP, MWS have been merged in single scheme
renamed as Swarnjayanti Gram Swarozgar Yojana (SGSY)
4. Integrated Rural Development Programme (IRDP)
5. Million Well Scheme (MWS)
6. Accelerated Rural Water Supply Programme (ARWSP)
7. Central Rural Sanitation Programme (CRSP)
8. Indira Awas Yojana (IAY)

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9. Panchayati Raj (PR)

10. Promotion of Voluntary Action in Rural Development (PC)
11. Organisation of Beneficiaries (OB) and Social Animators Training
(SAT)
12. Advancement of Rural Technology Scheme (ARTS)
13. Watershed Development
14. Assistance to NGOs
Regional Centres: With a view to bringing CAPART nearer to the people
and to ensure closer inter action between CAPART and voluntary agencies
at the grass-root level, functioning of CAPART has been decentralized by
setting up of nine Regional Committees/Regional Centres at Jaipur,
Lucknow, Ahmedabad, Bhubaneswar, Patna, Chandigarh, Hyderabad,
Guwahati and Dharwad. The Regional Committee is empowered to sanction
project proposals to voluntary agencies up to an outlay of Rs. 10.00 lakh in
their respective regions.
Funding Pattern: The quantum of assistance is normally decided on the
basis of the nature of the project and the capability of the organisation to
take up the project /to handle requested funds. On acceptance of the terms
and conditions, CAPART releases sanctioned funds in suitable installments
depending upon the nature of the project, quantum of assistance involved
and the proportion of assistance to be mobilized from other sources
including beneficiaries. contribution. Implementing Agency: NGOs are
provided financial assistance through CAPART Monitoring & Evaluation:
CAPART has fairly well developed monitoring system. CAPART projects
are monitored with the help of its own officers and external monitors.

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Conclusion and Recommendations

CAPART has a system of empanelling project Evaluators on different

subjects. CAPART projects are monitored at three different stages; Pre
funding appraisal, mid terms appraisal and Post Evaluation.
6.18 THE DISTRICT RURAL DEVELOPMENT AGENCY (DRDA)
The District Rural Development Agency (DRDA) has traditionally been the
principal organ at the District level to oversee the implementation of
different anti-poverty programmes. Since its inception, the administrative
costs of the DRDAs were met by way of setting apart a share of the
allocations for each programme. However, of late, the number of the
programmes had increased and while some of the programmes provided for
administrative costs of the DRDAs, others did not. There was no uniformity
among the different programmes with reference to administrative costs.
Keeping in view the need for an effective agency at the district level to
coordinate the anti-poverty effort, a new Centrally Sponsored Scheme for
strengthening the DRDAs has been introduced with effect from 1st April,
1999. Accordingly, the administrative costs are met by providing a separate
budget provisions. This scheme which is funded on a 75:25 basis between
Centre and States, aims at strengthening and professionalising the DRDAs.
Role and Functions of the DRDA
1. If effective programme design is critical to successful implementation of
rural development programmes, so is an effective delivery agency. None of
the anti-poverty programmes can have impact unless they are implemented
with clarity of purpose and a commitment to the task. It is here that the
DRDAs play a critical role. The DRDAs are not the implementation
through overseeing the implementation of different programmes and

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ensuring that necessary linkages are provided. To this extent the DRDA is a
supporting and facilitation organization and needs to play a very effective
role as a catalyst in development process.
2. The district Rural Development Agency is visualized as specialized and a
professional agency capable of managing the anti-poverty programmes of
the Ministry of Rural Development on the one hand and to effectively relate
these to the overall effort of poverty eradication in the District. In other
words, while the DRDA will continue to watch over and ensure effective
utilization of the funds intended for anti-poverty programmes, it will need
to develop a far greater understanding of the processes necessary for
poverty alleviation/eradication. It will also need to develop the capacity to
build synergies among different agencies involved for the most effective
results. It will therefore need to develop distinctive capabilities rather than
perform tasks that are legitimately in the domain of the PRIs or the line
departments. The role of the DRDA will therefore be distinct from all the
other agencies, including the Zilla Parishad.
3. DRDAs must themselves be more professional and should be able to
interact effectively with various other agencies. They are expected to
coordinate with the line department, the Panchayati Raj Institutions, the
banks and other financial institutions, resources required for poverty
reduction effort in the district. It shall be their endeavor and objective to
secure inter-sectoral and inter-departmental coordination and cooperation
for reducing poverty in the district. It is their ability to coordinate and bring
about a convergence of approach among different agencies for poverty
alleviation and would set them apart.

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4. The DRDAs are expected to coordinate effectively with the Panchayati

Raj Instructions. Under no circumstances will they perform functions of
PRIs.
5. The DRDAs will maintain their separate identity but will function under
the chairmanship of the Chairman of Zilla Parishad. They are expected to be
a facilitating and supporting organization to Zilla Parishad, providing
necessary executive and technical support in respect of poverty reduction
efforts. Wherever the Zilla Parishads are not in existence of are not
functional, the DRDAs would function under the Collector/District
Magistrate/Deputy Commissioner, as the case may be.
6. The DRDAs are expected to oversee the implementation of different anti-
poverty programmes of the Ministry of Rural Development in the district.
This is not be confused with actual implementation, which will be by the
Panchayati Raj and other Institutions. The DRDAs will monitor closely the
implementation through obtaining of periodic reports as well as frequent
field visits. The purpose of the visit should be to facilitate the implementing
agencies in improving implementation process, besides ensuring that the
quality of implementation of programmes is high. This would include
overseeing whether the intended beneficiaries are receiving the benefits
under the different programmes.
7. The DRDAs shall keep the Zilla Parishad, the State and Central
Government duly informed of the progress of the implementation of the
programmes through periodic reports in the prescribed formats. Special
report, as and when called for, shall be provided.

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8. It shall be the duty of the DRDAs to oversee and ensure that the benefits
specifically earmarked for certain target groups (SC/ST, women and
disabled) reach them. They shall all necessary steps to achieve the
prescribed norms.
9. The DRDAs shall take necessary step to improve the awareness
regarding rural development and poverty alleviation particularly among the
rural poor. This would involve issues of poverty, the opportunities available
to the rural poor and generally infusing a sense of confidence in their ability
to overcome poverty. It would also involve sensitizing the different
functionaries in the district to the different aspects of poverty and poverty
alleviation programmes.
10. The DRDAs will strive to promote transparency in the implementation
of different anti-poverty programmes. Towards this end, they shall publish
periodically, the details of the different programmes and their
implementation.
11. Keeping in view, the substantial investment that are being made in
poverty alleviation programmes, the DRDAs shall ensure financial
discipline in respect of the funds received by them, whether from Central of
State Governments. They shall also ensure that the accounts are properly
maintained including in respect of the funds allocated to banks or
implementing agencies in accordance with the guidelines of different
programmes.
12. Thus the role of the DRDA is in terms of planning for effective
implementation of anti-poverty programmes; coordinating with other
agencies-Governmental, non-Governmental, technical and financial for

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successful programme implementation; enabling the community and the

rural poor to participate in the decision marking process, overseeing the
implementation to ensure adherence to guidelines, quality, equity and
efficiency; reporting to the prescribed authorities on the implementation;
and promoting transparency in decision making and implementation.
13. In addition the DRDAs shall coordinate and oversee the conduct of the
BPL Census and such other surveys that are required from time to time.
14. The DRDAs shall also carry out / aid in carrying out action research/ or
evaluation studies that are initiated by the Central/State Governments.
15. The DRDAs should deal only with the anti-poverty programmes of the
Ministry of Rural Development. If DRDAs are to be entrusted with
programmes of other ministries or those of the State Governments, it should
be ensured that these have a definite antipoverty focus. Entrusting of any
programme to the DRDAs, other than anti-poverty programmes of the
Ministry, be it of any other Ministry of Government of India or the
respective State Government will have to be done with the approval of the
Secretary, Rural Development of the respective State (s), who should
examine such request in consultation with the Ministry of Rural
Development, Government of India. In such cases, it must be ensured that
adequate provision is made for requisite staffing needed for proper
implementation of the programme.
The composition of the governing body is as follows.
1. Chairman of Zilla Parishad Chairman
2. All MPs and MLAs and MLCs of the District

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3. 1/3rd of Panchayat Samiti Chairpersons to be nominated by rotation in

alphabetical order for a tenure of one year, one of whom must belong to
SC/ST and another woman.
4. CEO of Zilla Parishad / District Collector ¡V Chief Executive Officer /
Executive Director
5. Head of the Central Cooperative Bank of the District
6. Chairman Regional Rural Bank
7. District Lead Bank Officer
8. Representative of the Reserve Bank of India at district level
9. NABARD representative at district level
10. General Manager, DIC
11. Representative of KVIB
12. District Officer in charge of Scheduled Caste / Scheduled Tribe Welfare
13. District women & Child welfare officer
14. District officer dealing with welfare of the disabled
15. One representative from technical institutions
16. Two representatives of NGOs
17. Two representatives of the weaker sections, one of whom may be drawn
from SCs and STs
18. One representative of rural women
19. Project Director, DRDA- Member Secretary
Wherever the Zilla Parishads are not in existence, the State Governments
may nominate elected members of the State Legislature from the concerned
districts to act as Chairman of the Governing Bodies of the DRDAs.

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6.19 NABARD (National Bank for Agriculture and Rural

Development)
NABARD is set up as an apex Development Bank with a mandate for
facilitating credit flow for promotion and development of agriculture, small-
scale industries, cottage and village industries, handicrafts and other rural
crafts. It also has the mandate to support all other allied economic activities
in rural areas, promote integrated and sustainable rural development and
secure prosperity of rural areas. In discharging its role as a facilitator for
rural prosperity NABARD is entrusted with
1. Providing refinance to lending institutions in rural areas
2. Bringing about or promoting institutional development and
3. Evaluating, monitoring and inspecting the client banks
4. Besides this pivotal role, NABARD also:
Acts as a coordinator in the operations of rural credit institutions
Extends assistance to the government, the Reserve Bank of India and other
organizations in matters relating to rural development
Offers training and research facilities for banks, cooperatives and
organizations working in the field of rural development
Helps the state governments in reaching their targets of providing assistance
to eligible institutions in agriculture and rural development
Acts as regulator for cooperative banks
Specific Objectives:
1. Assistance to the economically weaker sections of the community.
2. Cohesion and cooperative self help in the community.
3. Development of cooperative institutions.

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4. Development of local resources including the utilization of manpower.

5. Production in agriculture as the highest priority in planning.
6. Progressive dispersal of authority and initiative both vertically and
horizontally with special emphasis on the role of voluntary organizations.
7. Promotion of rural industries.
8. Understanding and harmony between the people‟s representatives and
people servants through comprehensive training/education and a clear
demarcation of duties and responsibilities.
The economic and social infrastructure as judged by per capita electricity
consuption , road length per lakh population and hospital beds per lakh
compared unfavourably with the national average.
The state so far could not procureits due share of funds available with
various financial agencies. This was evident from the fact that till March
1996, the sare of Bihar in total sanctions from the financial institutions was
only 1.32 percent. The increase in percentage of total elected, plus co-opted.
However the above statistics exhibit that women”s participation the
panchayati Raj is not upto the mark. It is observed that mere reservation
will not solve the problem unless women members are given immensurate
powers to function effectively. However, in this regard the following steps
have been suggested:
(i) all women members of panchayats and other executive bodies must be
trained and empowered to exercise their authority.
(ii) Particular attention must be paid to the development of interpersonal
communication skills among the trainees/community leaders.

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(iii) Efforts are required to elicit participation of women through

establishing links between the elected representatives and the development
functionaries.
(iv) Programmes meant for women’s development should be linked with
panchayat/local functionaries for more effective participation of women.
(v) Despite being members of these democratic bodies or even their head,
women’s political participation may be severely constrained by various
socio-economic pressures. It would , institutional structures with other
measures such as mobilisation of women and involvement of panchayats on
specific socio-economic issues; and
(vi) There is need to organise women workers either in cooperative or any
other form whereby production and marketing are integrated. Government
institutions or voluntary welfare organisations must come forward to
organise women who are self employed and reduce their exploitation and
active participation in panchayats.
6.20 District Planning Committee
The district has been recognized as the basic unit for decentralized planning
functions. Operationalizing the concept of district planning requires
functional local institutions. The District Planning Committee is the
statutory authority for preparing plans for local development area planning.
The involvement of the people in the planning process is necessary to take
into account their felt needs, to mobilize local resources, to increase the
speed of implementation by securing the people’s cooperation, to increase
the acceptance of the plan and projects and also to bring about a change in
the power structure in people’s institutions in favour of the poor. Strong

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leadership and political will are the necessary conditions for facing the
challenge of enabling the local self-government institutions to become
effective instruments of social and economic development of rural areas.
6.21 Backward Region Grant Fund
The Backward Regions Grant Fund should be designed to redress regional
imbalances in development. The fund will provide financial resources for
supplementing and converging existing developmental inflows into 250
identified districts, so as to: Bridge critical gaps in local infrastructure and
other development requirements that are not being adequately met through
existing inflows. Strengthen, to this end Panchayat and Municipality level
governance with more appropriate capacity building, to facilitate
participatory planning, decision making, implementation and monitoring, to
reflect local felt needs, Provide professional support to local bodies for
planning, implementation and monitoring their plans Improve the
performance and delivery of critical functions assigned to Panchayats, and
counter possible efficiency and equity losses on account of inadequate local
capacity. Integrated development will commence with each district
undertaking a diagnostic study of its backwardness by enlisting professional
planning support. This will be followed by preparing a well-conceived
participatory district development perspective plan to address this
backwardness during 2006-07 and the period of the Eleventh Five-Year.
The Panchayats at the village, intermediate and district level, referred to in
Part IX of the Constitution, will undertake planning and implementation of
the programme, in keeping with the letter and spirit of Article 243 G, while
the Municipalities referred to in Part IX A will similarly plan and

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implement the programme in urban areas in conformity with the letter and
spirit of Article 243 W, read with Article 243 ZD of the Constitution.
Suggestions for better functioning to the PRIs for the rural
development of village panchayat
1. Gram Sabha should be endowed with ownership of minor forest produce.
The executive action in this regard may be taken by the gram panchayat or
the committee of gram sabha
2. The Gram Sabha of the village where the market is located should decide
on the modalities of the management. Development aspects including
improvement, modernization may be handled by the gram panchayat.
Regulatory aspects may be dealt with by the gram panchayats.
3. Gram Sabha should have the power and responsibility to decide on the
matter as per the prevailing provisions of law and gram panc hayat should
execute the decision of the gram sabha.
4. Gram Sabha should exercise control over functionaries and institutions
whose jurisdiction are entirely confined to the village. Gram panchayats
may exercise control over functionaries and institutions whose jurisdiction
extends to more than one village. Block Panchayats may exercise control
over institutions and functionaries whose jurisdiction extends to more than
one panchayat. Zilla Parishad may exercise control over institutions whose
jurisdiction extends to more than one block.
5. The decision of the gram sabha, where necessary, may be executed by the
gram panchayat and the decision of gram panchayat in this regard where
necessary may be executed by the block panchayat samiti. However, this is
in conflict with provisions in Madhya Pradesh Act.

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6. Gram Sabha should exercise control over local plans and resources. The
decision of the gram sabha may be executed by the gram panchayat. In
respect of schemes and plans which cut across the boundaries of gram
panchayats, the control may be exercised by the block panchayat samitis.
Health and Family Welfare Programmes The Ministry of Health and Family
Welfare has been implementing a number of national programmes for
disease control and family welfare most of which are externally funded.
These programmes are invariably implemented through vertical
bureaucratic formations and have not involved the panchayati raj
institutions even though the subject they cover fall within the domain of
powers and functions transferred to these bodies. The major programmes
are as follows: -
1) Family Welfare Programme - Reproductive Child and Maternal Health
(RCH) programmes
2) Vector Borne Disease Control Programmes (covers Malaria, Kalazar,
Dengue and Japanese encephalitis)
3) TB Control Programme
4) Blindness Control Programme
5) HIV AIDS / STD Programmes
Following is the sequence of activities in respect of each of these
programmes and the suggested role of appropriate PRI in regard to them.
7. For empowering the SCs, the nodal Ministry of Social Justice &
Empowerment implements various programmes, which encompass welfare,
development and protective measures.

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These include i) educational developmental programmes such as Post-

Matric Scholarships, Pre-Matric Scholarships, Provision of Hostels, Special
Educational Development Programmes for SC girls and Coaching and
Allied schemes etc; ii) Economic Development Programmes such as
employment and income generating activities supported through National
and State level SC/ST Finance and Development Corporations and iii)
Social justice and protective measures through implementation of PCR Act
(Protection of Civil Rights) 1955 and the SC/ST POA (Prevention of
Atrocities) 1989 and the Scheme for Liberation and Rehabilitation of
Scavengers.
8. All the programmes related to empowerment of SCs are implemented
through the State Governments. Therefore, PRIs being the grass-root level
institutions for promoting self-governance can be involved equitably /
effectively especially in –
(i) identification of needy and deserving beneficiaries;
(ii) distribution of schemes and beneficiaries among them;
(iii) identification of schemes in terms of their suitability and feasibility;
(iv) evaluating the continuing schemes to identify gaps / problems in their
implementation;
(v) monitoring progress of implementation of these schemes in respect of
physical and financial achievements and watching the actual performance
and impact of the schemes
(vi) monitoring the implementation of Special Component Plan (SCP) and
coordination, convergence and integration of various programmes therein at
the gross root level;

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(vii) prevention of diversion of earmarked funds / benefits and ensuring

utilization of the same for the purpose they are meant for; and (viii)
selection of grass-root level NGOs etc.
9. Zilla Parishad should be involved in developing linkages with various
programmes, improving the quality of services, timely allocation of funds
and timely sanction of scholarships, establishing linkages between hostels
and schools where beneficiaries are pursuing their studies, providing
various facilities at the hostels, identifying institutions for coaching services
and monitoring the quality of coaching as well as their impact.
10. Zilla Parishads should also make appropriate linkages with poverty
alleviation programmes to enable beneficiaries belonging to the most poor
and backward segments to take advantage of these educational schemes
whether of scholarships or of coaching or hostels. They should also promote
inter-sectoral linkages such as between educational and health programmes,
educational and poverty alleviation programmes etc.
11. In the category of economic development programmes especially those
are implemented through the State level Scheduled Caste Finance and
Development Corporation (SCFDC), zilla parishads should decide upon
specified number of beneficiaries to be taken up in the district and their
distribution among various blocks. The block level panchayats should
decide on the clusters where such schemes should be promoted. Block level
panchayats should also mobilize development and technical personnel to
help prepare appropriate self-employment projects for members of these
clusters which may include aspects such as selection of viable economic
and income generating ventures, arranging their forward and backward

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linkages i.e., raw material, skill development, appropriate market, and

motivating members for repayment of loans. The block level panchayats
should forward such schemes to the zilla parishads for onward transmission
and sanction of these projects. Zilla Parishads should ensure expeditious
sanction of these schemes and timely release of funds for implementation.
They should specifically ensure that various inputs and linkages as
envisaged in the projects are arranged and in case of any problem should
take corrective action. The zilla parishads should also monitor intensively
the implementation of these projects.
12 They should also try to promote intersectoral linkages for more effective
implementation through appropriate convergence of other schemes, which
have relevance for these programmes. In respect of social justice and
protective measures such as effective implementation of Protection Civil
Rights Act of 1955 and Prevention of Atrocities Act 1989, village level
panchayats should have the responsibility of reporting incidence of
atrocities committed on SCs/STs to the competent authority. They should
also take prompt action with the help of gram sabha in diffusing tension,
providing protection to the victims through social mobilization, creating a
climate where the perpetrators of atrocities are socially ostracized and
keeping vigil on the situation. Village level panchayats should also take
follow up action with regard to registration of case and help in its
expeditious investigation by mobilizing evidence. They should also forward
compensation claims and rehabilitation plans for the victims and upon its
sanction ensure that this assistance is distributed to the victims in the gram
sabha and made use of meaningfully. Village level panchayats should also

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investigate the circumstances in which atrocities have been committed and

if there are underlying causes, which require matters to be handled at a
higher level for intervention, may immediately report the matter to the
block level panchayats. They should also keep in touch with the victims in
order that the victims are not intimidated or forced to withdraw their
complaints or to run away from the village to frustrate the process of
punitive action.
13. The block level panchayats would have a very important responsibility
for ensuring that the cases are promptly registered and investigated and
where necessary, medical examination is carried out timely and also that the
victims are not intimidated and appropriate protection is provided to the
victims in case of harassment. Block level panchayat should also provide
immediate relief and social support to the victims and should monitor their
condition so as to make necessary intervention. Zilla Parishads would have
the responsibility to sanction compensation claim and rehabilitation plan
promptly. They should have the entire circumstances of atrocities
investigated comprehensively (apart from the criminal prosecution) in order
that there is no repeat of such cases in and around that area and if there are
underlying causes which have given rise to such atrocities, to take action to
prevent their recurrence. Zilla Parishads should also have the responsibility
to monitor the deliberations of the cases in the appropriate courts in order
that no harassment is caused to the victims through judicial process and
manipulation by the perpetrators of atrocities or through negligence of the
prosecution machinery. As regards the scheme relating to elimination of
manual scavenging, since by and large such scavenging takes place in

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urbanized areas within the jurisdiction of municipalities, Zilla Parishads

should ensure that the concerned municipalities / urban local bodies and
other competent authorities identify the families engaged in manual
scavenging. It should also ensure that a team of officers is placed at the
disposal of the municipality / urban local body to help them in preparing
rehabilitation package / project for such scavengers. 14. The Zilla
Parishads should also forge immediate linkages with programme under
which dry latrines are converted into wet latrines so that the underlying
cause for engagement of manual scavengers is eliminated. Zilla Parishads
should also promote convergence of various sectoral programmes relevant
to situations in respect of such beneficiaries. Zilla Parishads should
promptly sanction their rehabilitation plan and monitor its implementation
and intervene where corrective action is required. 15. Zilla Parishads
would have a major task of sponsoring awareness generation programmes
for preventing practice of untouchability and other forms of social and
economic marginalisation, discrimination and exploitation. For this
purpose, they would identify the agencies and instruments through which
this task would be performed, lay down modalities for generating this
awareness and for taking action where such practice is still prevailing and
monitor impact of these efforts. Zilla Parishads would have a major
responsibility for ensuring convergence of various programmes for
empowerment of untouchables so that the victims are enabled socially and
economically to experience enhancement of their status and equality with
other communities. They should also promote social mobilisation through
block panchayats and gram panchayats besides NGOs and other institutions

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for social ostracisation of those who practice untouchability. They should

also ensure that appropriate legal / punitive action is taken where such cases
come to the notice and mobilise evidence for effective disposal of such
cases in appropriate judicial fora so that exemplary punishment can be
awarded against offenders. In respect of programmes for
empowerment of OBCs and minorities, since the nature of the schemes are
the same as those referred to in respect of SCs such as those relating to
economic development, educational improvement etc. various tiers of PRIs
would continue to have similar responsibilities in respect of these
programmes as well.
Empowerment of Scheduled Tribes (STs)
1. Zilla Parishads would also have a major task of identifying starvation
prone areas or migration prone areas where due to food insecurity, tribals
suffer and to undertake measures by appropriate convergence and linkages
so that food security is provided and people are enabled to undertake
income-generating activities for enhancing their purchasing power.
2. Zilla Parishads should also identify minor forest produce collected by
tribals in the area and tie up with various market organisations both public
and private sector to ensure that timely procurements are made by public
sector agencies and remunerative prices paid to the tribals.
3. .Zilla Parishad should make other requlatory arrangements where market
is through private channels.
4. Zilla Parishads with the help of block panchayat should institute
mechanism in the markets to prevent exploitation of tribals through middle-
men and extortionists.

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5. Zilla Parishads would have a major responsibility of administration of

Ashram schools, their proper up keep, monitoring the quality of education,
the living conditions and the treatment of tribal students by the teachers etc.
They would also have the responsibility of identifying areas and sites where
new schools and hostels should be set up and ensure that available
opportunities in schools and hostels are equitably availed of by the needy
sections of the tribal communities.
6. .Zilla Parishads should also ensure appropriate linkages with health
sector for these schools and hostels. In all these activities they would
involve and be guided by the block panchayat. They should also
appropriately utilise block level panchayats for supervision of these schools
and hostels and to provide necessary funds where required for improving
their condition.
7. In respect of economic development programmes, the responsibilities of
various tiers of PRIs would be more or less the same as specified in respect
of SCs except to the extent that at the panchayat level customary social
organisation of the tribal community should also be actively involved in
identification of beneficiaries and selecting the nature of income generating
activity, mobilising women in various programmes. PRIs at the village and
block level would have to play a very major role in Over -seeing the
collection of minor forest produce, its storage, procurement, disposal and
processing, where feasible.
8. ICDS Programme In respect of ICDS programmes, the village level
panchayats with the help of gram sabha should select the Anganwadi
worker and helper. Gram Sabha should help in identification of beneficiary

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households (children and lactating mothers), arranging accommodation

within the village, providing necessary assistance to anganwadi worker for
cooking food where necessary, mobilising target group households to seek
assistance of the programme, verifying whether the benefits are reaching the
children and the pregnant / lactating mothers as the case may be. Village
panchayat should promote inter-sectoral linkages particularly between
health and nutrition programme and sorting out problems, if any in the
implementation of the programme. The village level panchayat should also
see that the ICDS centres operate regularly and necessary equipments like
weighing machines are available and in working order. It should monitor
whether food supplements are being received in time and should seek
assistance of block panchayat / zilla parishads in arranging them in time so
that there are no interruptions in services. It may also explore if community
contribution can come in this regard to maintain continuity and in fact
should promote such efforts. District and block level panchayats should
arrange training programmes for anganwadi workers, ensure timely supply
of food supplements / equipments, review the implementation of the
schemes, promote inter-sectoral linkages particularly between health and
nutrition staff and review impact of the programme on mal-nourished
children. District level panchayats should specifically promote linkages
with relevant programmes such as poverty alleviation in respect of those
households where the infants are not showing requisite growth.
9. With regard to Food and Nutrition Board, the village level panchayat
with the help of gram sabha should arrange and organise awareness camps
where Board officials can disseminate nutrition awareness through

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demonstration programmes based on local food available. It should also

promote nutrition awareness in their public contact programmes as well as
through the local anganwadi centres and health sub centres.
10. In respect of training-cum-employment programmes, village panchayats
through gram sabhas should be involved in the identification of
beneficiaries and extending cooperation, providing accommodation etc. for
taking up income generation activities in the village. The block level
panchayats should be involved in promoting linkages with
such groups and other development programmes and such institutions as
may assist these groups in carrying out the entrepreneurial activities. The
block level panchayats should also promote active linkages for such groups
with local markets in their jurisdiction by such actions as, for example,
providing proper space in market centres, protecting them from harassment
by other traders and other forms of exploitation.
11 .Zilla Parishads should promote skill upgradation and training and
promoting wider linkages with raw material and sources of markets. They
should also provide linkages with institutions which can feed them with
market information. Zilla Parishads should also review the activities of
these groups to see the difficulties being faced by them particularly in
respect of credit and working capital. In respect of Indira Mahila Yojana,
etc. Zilla Parishads may promote village level panchayats as recipient
beneficiaries organisations to take up projects for income generation.
12. In respect of awareness generation project, the village level panchayats
should be responsible for checking atrocities, promoting harmonious
relations, arranging programmes for awareness generation and assisting the

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victim/victims of atrocities by ensuring that the available assistance reaches

timely and is appropriately utilised.
13. Under the Paryavaran Sudhar Pariyojana, the entire scheme is people
oriented and, therefore, the local village panchayats and the concerned gram
sabhas should be actively involved in identifying the areas and nature of
efforts, monitoring etc. The scheme relating to Environmental Education,
Awareness & Training involves development of educational material,
assisting NGOs, training in manpower development and mobilising people
awareness. The scheme includes major programme for forming eco-clubs in
schools. Obviously, this programme needs to involve PRI in a big way.
Block level panchayats should select schools where eco-clubs need to be
formed. Block panchayats should also identify NGOs, which need to be
assisted. They should also identify target groups such as teachers, women,
professionals and public functionaries who need to be trained. Zilla
Parishads may identify manpower development of the district for this
purpose. Zilla Parishads may also be involved in designing programmes of
environmental conservation.
14. Forest Sector In the forest sector, most of the schemes are Central
Sector which provide financial assistance for forestry institutions for
education, training, research and extension. These schemes obviously
cannot be transferred to PRIs. In this category are also included schemes
relating to strengthening of wild life divisions, National Zoological Parks
and Forest Survey of India including application of remote sensing
technology.

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15. The Central Sector and Centrally Sponsored Schemes under this sector
can be broadly divided into the following sub-sectors:
(i) Crop Development
(ii) Land and Water Resources Development,
(iii) Production of Inputs,
(iv) Research,
(v) Regulatory arrangement,
(iv) Crop Development
Under this sub -sector, the following components / activities are covered.
Training of farmers,
Field demonstrations,
Arrangements for input supply and distribution through incentive subsidies,
Land development,
Training of officials. Land and Water Resources Development
Under this sub -sector, the components / activities include the following:
Watershed development, Soil conservation for enhanced productivity of
degraded lands, Land use planning, Rehabilitation of shifting cultivation
areas, Reclamation of degraded soils etc. Production of Inputs.
16. Crop Development This category deals with micro level crop
development and management schemes. Panchayati Raj Institutions at
various levels have a very crucial role and should be actively involved as
the programmes in this sector vitally concern the people. Usually,
agriculture is a transferred subject under the scheme of devolution of
powers to PRIs. Therefore, ordinarily funds relating to such CSSs ought to
get transferred to PRIs and the PRIs at the district, block and village level

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should have a decisive say in their implementation. The implementation

machinery consisting of officials of the agriculture extension and research
organization should plan and implement these programmes under the direct
supervision and control of these institutions. This would imply that the
entire blueprint of the schemes and the modalities of implementation
enshrined in the schematic guidelines would be explained to and placed
before the Zilla Parishad by the district level sectoral officers who would
apprise them of various technical parameters determining the
implementation of the specific schemes. A large number of schemes under
this category basically involve the components outlined above. The first
sequence of activities in this regard is identification of the technology in
respect of a crop which is sought to be extended to a specific area. This,
obviously, would be the function of the research organisation and the
district level technical head of the implementing agency. But PRIs at
appropriate level would provide farmers’ perception in taking a decision.
The second step would consist of identification of the area where
demonstration programme has to be positioned or extension work has to be
carried out. This is the domain where PRI should have a decisive say.
Depending upon the resources allocated for a particular programme to a
district, the zilla parishad would decide how available funds would be
distributed in different eligible areas [block-wise] and thereafter, block
panchayats would decide the manner in which selection of sites in various
panchayats would be undertaken subject to the technical parameters being
satisfied. The identification of the beneficiary / beneficiaries should be the
prerogative of the village panchayats through local gram sabha suitably

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assisted by the local level technical functionaries. The third sequence of

activities would be the arrangement of inputs. This should be done by the
technical functionaries in consultation with the PRI at the district level and,
where feasible / appropriate, at the block level so that transparency and
accountability in terms of effective supply and distribution can be ensured
and monitored. Where the inputs are required to be locally produced such as
seed multiplication, the technical officers at the district / block level as the
case may be, would identify the agency, individuals for such multiplication
with the approval of the appropriate level of PRI. The next sequence of
activities would be actual organization of demonstration which would be
done by the local level technical functionaries. Panchayati raj body at the
local level would be involved in publicizing the demonstration and ensuring
participation of farmers from nearby areas for widespread dissemination of
technology just in case some enterprising farmers wish to take it up on their
own.
17. The block panchayat should review the implementation of programme
and monitor results particularly the impact in terms of stated objectives. The
PRI bodies at block / zilla level should also be involved in developing
linkages with other development programmes which may facilitate the
realization of objectives of the schemes, participation of larger number of
farmers when demonstrations are carried out and effective interface with the
technical functionaries so that there is comprehensive dissemination of
technology. Also the PRIs can provide feedback of the demonstration to
technical functionaries for possible corrective interventions. The most
important sequence of activities in this category of scheme is the

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distribution of inputs, which essentially involves subsidies. The inputs may

consist of certified seeds, minikits, weedicides, machinery, farm
implements, sprinkler sets or micro-nutrients / fertilizers. In this sequence
of activity PRIs at approporiate level must get decisively involved so that
transparency, accountability and equity considerations can be ensured and
satisfaction of beneficiaries in terms of inputs received can be monitored.
18. Animal Husbandry and Dairy In this sector, there are 12 Centrally
Sponsored Schemes and 10 Central Sector schemes. The Central Sector
Schemes largely relate to the activities of Central Government institutions
such as breeding farms, training institutes, feed and fodder organizations,
survey and regulatory arrangements. These schemes do not have any
distributional angle and therefore do not involve any extension work or
provision of subsidy. Basically the schemes relate to the activities of the
organisations. Therefore, there is no way in which PRIs can be involved.
However, it is desirable that in districts where these institutions are located,
the Zilla Parishads are acquainted with their activities so that, if necessary,
they can seek their help for benefiting the people through training,
dissemination of knowledge / research findings, visits, getting inputs, etc. In
turn, the institutions can also seek the help of PRIs wherever the research
and production activities need people’s cooperation or support of local
administration.
As regards 12 Centrally Sponsored Schemes, these can be broadly divided
into 4 categories.
a) Those relating to assistance to State farms for enhancing their production.
The assistance is in terms of provision of inputs etc.

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b) Those relating to strengthening of frozen semen centres with equipments,

consumables, training and infrastructure improvement.
c) Those relating to veterinary health cover such as control of diseases
d) Those relating to dairy development. Under this category, the schemes
largely relate to assistance to cooperative organisations in terms of inputs
etc.
a) State farms - In this category of schemes, assistance is largely given to
state farms engaged in breeding / production activities. It is essential that
block and zilla level PRIs should be fully involved in the decision making
on the selection of farm, the range of activities for which assistance is being
proposed to be given and monitoring how this assistance is being utilised.
Thus, the Animal Husbandry Department of the State Government may
identify a particular breeding / production institution in consultation with
the zilla parishad where it is located, get the development plan prepared by
the institution so that it can subsequently be in a position to ensure that the
allocated amount is well spent. The activities of the institutions should also
be monitored. The zilla parishad would also sort out various problems that
stand in the way of optimal utilisation of infrastructure for breeding /
production programme and for better and effective linkages between the
breeding / production farm and the extension machinery. The zilla parishad
and block panchayat should also arrange periodic supervisory visits to see
that inputs being received are of proper quality and that farm animals are
being properly looked after. They should also be able to identify constraints
in utilisation of infrastructure and help out the institutions through better
convergence of programmes.

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(b) The second category of the schemes are those which are largely
dovetailed into a major project called ‘National Project on Cattle and
Buffalo breeding’.
19. Under this scheme are involved activities relating to transport, storage
and distribution of liquid Nitrogen, support to breeding associations,
cooperatives / NGOs, acquisition of bulls for natural service, strengtheni ng
of semen banks, training facilities and effecting better linkages between
service centres and beneficiaries. This is a programme in which PRIs should
have a major say. Zilla Parishad with the help of block panchayats should
identify snags in transport, storage and distribution of liquid Nitrogen and
initiate measures for removing them. Zilla Parishad should also identify
agencies which need to be supported under the programme. They should
also be involved in making arrangements for acquisition of bulls for natural
service and in strengthening of semen banks and designing of training
programmes. They should have a major say in setting up of artificial
insemination centres etc. Block panchayats and Zilla Parishad both should
monitor the utilisation of funds and the impact of programmes. These
schemes, therefore, should necessarily be approved by appropriate level of
PRI duly serviced by local technical officers.
In this category, the major scheme is of National Project on Rinder Pest
reduction. This involves monitoring and surveillance, organisation of
communication campaigns, vaccine production, quality assurance, disease
investigation etc. In monitoring and surveillance, village level panchayats
through gram sabha should be effectively involved with technical guidelines
from veterinary officers. Similarly, in organizing communication campaign

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village level panchayat should be fully involved and should play a major
role in designing as well as operationalizing these campaigns.
As regards, schemes relating to Dairy Development, the sequence of
activities would include the following:
Identification of co-operative societies.
Preparation of projects for assistance
Supply of inputs
Manpower development
Monitoring and review of activities.
20. Block level panchayat should select cooperative societies based on the
parameters decided upon by the technical department. Block panchayat
should also approve the project prepared by such cooperative societies with
the assistance of technical department. Technical department should arrange
for supply of inputs and manpower development. Village level panchayat
where the cooperative societies are located should ensure that the assistance
has been rightly distributed and received by eligible organisation. Block
level panchayat should also review and monitor implementation of the
programme. Block level panchayat should also integrate other relevant
schemes for the optimal utilisation of the project assistance such as
development of marketing facilities, linkage with milk producers,
ancillaries’ activities, etc.
21. Nyaya Panchayats try petty civil and criminal cases and can impose
fine. But they cannot award imprisonment. However, exceptions are there
and in Bihar, Nyaya Panchayats may even award imprisonment. At times,
Nyaya Panchayat gives only warning. District Officer may send for

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recommendation of any judgement given by Nyaya Panchayat. In general,

the performance of Nyaya Panchayat is not encouraging because people do
not appear before Nyaya Panchayats.
22. As regards regulatory activities such as integrated sample survey,
implementation of milk and milk product orders, undertaking research
studies and arranging seminars; these activities should be the sole concern
of the concerned technical department. However, block panchayats should
be involved in organizing demonstration and training programmes for
farmers, breeders and women on latest animal husbandry practices,
organising of milk yield competition and regional livestock and poultry
shows, arranging exhibition, gathering feedback from the beneficiary
groups and other people about the impact of various sectoral programmes.
23. Credit and Cooperation Major Activities under this sub-sector include
distribution of credit to farmers through primary cooperative societies,
assistance to cooperative institutions for development projects in the form
of working capital and infrastructure development assistance. In respect of
distribution of credit, village level panchayats should be involved in
selection of beneficiaries on the basis of laid down norms, preparation of
credit plan of primary credit societies and in ensuring that credit is made
available from the society to the beneficiaries in time. The village level
panchayats with the help of gram sabha should also be involved in
enlarging the membership of primary societies, impressing upon credit
takers to return their loan and where due to extraordinary circumstances, it
is not possible to do so, to endorse their difficulties to the credit institutions.
It should specifically mobilise action against willful defaulters. Block level

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panchayats should oversee disbursement work, develop linkage with

programmes providing other inputs, mobilise creditors for return of loan
and where due to adverse situation, repayment is delayed, to prepare the
case for rescheduling of the loan repayment plan. In respect of project loans
from cooperative institutions, block level panchayats should identify such
institutions which need assistance, help them to prepare their project reports
and with the assistance of zilla parishad should ensure timely disposal of the
loan applications. It should monitor the activities of such institutions to see
that assistance received by the institutions is properly utilised. The block
level panchayats should also identify viable development projects for
strengthening cooperative institutions with a view to providing better
services to local users. The block level panchayats should help such
cooperative societies by arranging technical expertise for them. District
level PRI should arrange timely release of sanctioned credit to primary
credit societies, cooperative bank clearance, endorsement of projects
relating to cooperative institutions, monitoring credit disbursement &
utilisation of project assistance, and promoting effective inter-sectoral
linkages and coordination.
24. Crop Insurance
The sequences of activities under this head include identification of
beneficiaries, preparation of claims, expeditious disposal of these claims
and timely receipt of the compensation amount. The village level panchayat
should be involved in identification of beneficiaries under this scheme and
in preparation of their claim which it should vet. The block level panchayat
/ zilla level panchayat, as the case may be, should arrange to ensure that the

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claims are expeditiously considered and settled by the competent authority.

The village level panchayat through gram sabha should ensure that amount
is disbursed to the correct beneficiary and is received by him / her without
any hassles. The village level panchayat should also help in arranging
support / assistance through sources other than insurance to such farmers
whose crops have been destroyed or lost in order that they can prepare
themselves for the next season of cultivation.
25. Relief against natural calamities The village level panchayats through
gram sabha should identify beneficiaries eligible for seeking relief under the
Relief Manual and get their claims prepared and send them to competent
authority. The block level panchayat should have this claim expeditiously
disposed of / settled. The village level panchayats should ensure that the
compensation amount or other assistance is distributed to the proper
beneficiaries under their supervision. They should also arrange to have
other forms of relief distributed and, where necessary through mobilisation
of concerned offices of Government and where possible through community
action.
26. Education There were seven schemes relating to elementary education
such as Operation Blackboard, Non-Formal Education, Teacher Education,
Nutritional Support to Primary Education, Lok Jumbish, Shiksha Karmi and
District Primary Education Programme. The main ingredients of these
activities include construction of class rooms, provision of teaching
materials, training of teachers, selection of volunteer teachers and supply of
food grains for nutritional support. All these schemes are now being

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integrated into one scheme called Sarva Shiksha Abhiyan. It is now claimed
that scheme would be implemented through Panchayati Raj Institutions.
27. National Literacy Mission Sequence of activities include location of
centres, identification of volunteers / instructors and development of
teaching and learning material. Selection of volunteers and location of
centres should be handled by the village level panchayats.

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