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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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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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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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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. 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