Devolution Index NCAER

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    i

    An Index of Devolution for Assessing Environment

    for Panchayati Raj Institutions in the States

    Empirical Assessment - 2008

    Prepared for

    Ministry of Panchayati Raj, New Delhi

    March 2009

    Final Report

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    ii

    Study Team

    Project Leader

    Anushree Sinha

    Rajesh Jaiswal (Associate Fellow)

    Palash Baruah (Research Associate)

    Esha Jain (Research Associate)

    Shubha Dubey (Trainee)

    Sadhana Singh (Technical Support)

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    iii

    Contents

    Acknowledgements .................................................................................................................. iv

    1. Introduction ............................................................................................................................12. Estimation Framework ...........................................................................................................3

    3. Data Collection ......................................................................................................................4

    4. Calculation of the Devolution Index ......................................................................................6

    5. Concluding Remarks and Future Work ..............................................................................26

    Annex 1: The Overall Devolution Index: The Main Components ..........................................30

    Annex 2: Classification of Functions Listed in Eleventh Schedule .........................................31

    Annex 3: State Devolution Index Survey 2008 - Questionnaire Used ...................................32

    Annex 4: State Devolution Index Survey 2008 Covering & Follow-up Letters from NCAER

    ..................................................................................................................................................39

    Annex 5: State-wise receipt of Documents by NCAER ..........................................................44

    Annex 6: List of States/UTs that sent the cover letters to NCAER/Ministry ..........................45

    Andhra Pradesh ................................................................................................ .................................... 46Bihar ........................................................ ................................................................... ......................... 47

    Goa ........................................................... ................................................................... ......................... 48

    Haryana ............................................................... ................................................................. ................ 49

    Himachal Pradesh ............................................... .................................................................... ............. 50

    Jammu and Kashmir ........................................... .................................................................... ............. 51

    Jharkhand .................................................................................................................... ......................... 52

    Kerala .................................................................. ................................................................. ................ 53

    Madhya Pradesh .......................................................................................................... ......................... 54

    Manipur ............................................................... ................................................................. ................ 55

    Orissa ................................................................................................... ................................................ 56

    Punjab ............................................................................. ................................................................. .... 57Rajasthan ............................................................. ................................................................... .............. 58Sikkim ......................................................................................................................... ......................... 59

    Tamil Nadu ................................................................... ................................................................... .... 60

    Tripura ................................................................ ................................................................. ................ 62

    Uttar Pradesh....................................................... .................................................................... ............. 63

    Uttarakhand ......................................................... .................................................................... ............. 64

    West Bengal ......................................................................................... ................................................ 65Andaman & Nicobar Island ............................................................................. .................................... 66

    Chandigarh .......................................................... .................................................................... ............. 67

    Daman & Diu ................................................................ ................................................................... .... 68

    Delhi ........................................................ ................................................................... ......................... 69

    Lakshadweep ................................................................ ................................................................... .... 70

    Annex 7: List of States/UTs that have sent official circulars to NCAER ............................................................. 71

    Assam ................................................................. ................................................................. ................ 72

    Bihar ........................................................ ................................................................... ......................... 73

    Chhattisgarh ................................................................................................................ ......................... 74Haryana ............................................................... ................................................................. ................ 75

    Manipur ............................................................... ................................................................. ................ 77

    Orissa ................................................................................................... ................................................ 79

    Uttar Pradesh....................................................... .................................................................... ............. 81

    Uttarakhand ......................................................... .................................................................... ............. 82

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    iv

    Acknowledgements

    The study team wishes to place on record the support and advice received from a number of

    people at various stages of the study.

    We thank Shri. A.N.P. Sinha, Secretary, Shri. Sudhir Krishna, Additional Secretary, Shri.

    A.S.Sahota, Joint Secretary and Shri. S.K.Chakrabarti, Deputy Secretary for providing

    valuable comments during various interactive meetings. Shri. P.K.Bhatnagar, Under

    Secretary also helped the study team in numerous ways by providing support to our data

    collection efforts. We also thank Prof. V. N. Alok for participating and providing useful

    comments in the Advisory Committee meeting.

    In addition, we would also like to thank the Chief Secretaries, Panchayati Raj Secretaries and

    other State Government officials who helped us with the data. Finally, the project team is

    grateful to Dr. Shashanka Bhide and Mr. K. A. Siddiqui for their critical inputs to this study.We would also like to thank Mr. Suman Bery for his valuable support.

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    1

    1. Introduction

    The institution of Panchayati Raj was accorded constitutional status through the 73rd

    Amendment Act 1992. This makes the Constitution mandate provisions for the setting up of

    Panchayati Raj as follows:

    Establishment of a three-tier structure (village Panchayat, Panchayat Samiti or

    intermediate level Panchayat and Zilla Parishad or district level Panchayat).

    Establishment of Gram Sabhas at the village level consisting of all adult members of the

    village as appear in the electoral rolls.

    Regular elections to Panchayats every five years.

    Proportionate seat reservation for SCs/STs.

    Reservation of not less than 1/3 seats for women

    Constitution of State Finance Commissions to recommend measures to improve the

    finances of Panchayats.

    Constitution of State Election Commission.

    The Act also envisages empowered Panchayats as institutions of self-government at the

    village level capable of: Planning and executing village level public works and their maintenance.

    Ensuring welfare of the people at the village level including health, education, communal