Strategy and capacity building plan of panchayats for bihar

Department of Panchayati Raj, Bihar

Vikas Bhawan, New Secretariat

Phone: 0612-2202229, fax: 0612-2200991

1. 
   Introduction
   

1. 
   State profile
   

2. 
   PRI in Bihar
   

The 73^rd amendment has been an effective constitutional intervention which different state governments have used differently. In case of Bihar affirmative actions, in the form of reservation for various sections, it has offered the poor and the disadvantaged a space of pre-eminence in the governance.

The representation of women and depressed communities has outnumbered that of the ‘privileged’ strata of the society and the world, today, looks at Bihar as a revived centre of deepening democracy. Looking beyond numbers, let us explore the by-lanes of villages to which democracy is expected to have percolated to the fullest. We have a difficult situation when we see the Gram Sabhas’ decisions being dominated by a few influential members. The Mukhias are said to be organizing meetings at places of their convenience and have been alleged to be tampering with the resolutions in relation with the functioning of the panchayati raj institution.

Success story Widowed at the tender age of sixteen Veena Devi from Loharpura Gram Panchayat of Navada district, Bihar is the recipient of the best Mukhiya award honoured by Somnath Chatterjee, the then speaker of Lokshabha. She has represented India as its brand ambassador at the Lahore summit on local government. Veena is also the recipient of the 2004 Sarojani Nayedu Award. A two term Mukhia (2001 and2006 elections) Veena has developed an iconic identity and the government officials always take her plans and ideas seriously. On her part she is a relentless crusader and the writings on the wall can well be seen in her Panchayat. It is true that Veena can not be cloned but the example demonstrates the potentials women members have which can be further harnessed using Veena as an example

3. 
   Unique Feature
   

Capacity building for decentralization is much more than training.  It includes building up a lot of enabling factors like the Act, rules, orders, finances, and powers, systems like the accounting and budgeting, and adequate human resources.  While some of these have to come from state and central governments, a few could be developed at the local level so as to force the former to approve. 

Backward Regions Grant Fund Programme (BRGF) was launched by the Prime Minister at Barpeta in Assam on 19th February, 2006.  The Programme covers 250 districts in 27 states.  The existing Rashtriya Sam Vikas Yojana which covers 147 districts has been subsumed into the Backward Regions Grant Fund programme.

The programme is designed to redress the regional imbalances in development. Funds are available for supplementing and converging existing developmental activities into identified districts. This programme is being implemented by Panchayati Raj Institutions at all levels and Municipalities. Though the participative preparation of district plans follows a bottom up approach where all the planning is carried on a micro level.

The structural and institutional structure of backward districts is very poor. These districts lack absorption capacity and hence the desired outcome is not as per the desired expectation. An inter Ministry task group formed on 4.8.2004 by the Planning Commission concluded that plans ought to be based on perceived need and real capacity in these areas to ensure optimum utilization of resources within the specified timeframe to produce expected results. Hence, BRGF focuses on implementation of the process of participative planning. Centrally sponsored schemes have specific sectoral objectives and targets. Backward Regions Grant Fund can be used to supplement them through a comprehensive macro approach cutting across sectors and meeting inter-sectoral requirements. Creation of capacity for effective planning at district and lower level was seen as a key-pre-requisite to participative planning.  Hence there is a specific component in the BRGF programme for the capacity building of Panchayati Raj Institutions.

3. 
   Capacity building plan activity mapping
   

• 
  State level workshop for identification of issues related to PRI at state level – As part of the preparatory work the department is planning to organize state level workshop for identifying the issues related to Panchayati Raj Institution at the state level. On of the major objectives of the workshop would be to identify PRI related issues at the state level. This workshop would be attended by senior government officials from various department such as Planning, Finance, Rural Development, Education, Health and family welfare, Agriculture, Disaster management, Rural works, Welfare, Minority Welfare, Urban development etc. where there can be a dedicated discussion on identifying issues related to Panchayati Raj Institutions at the state level.
  

• 
  Training need assessment for identifying training needs of PRI institution – The department is planning to conduct a training need assessment of existing institutions in the state. The training need assessment would help us in developing proper strategy and plan for strengthening training institutions in the state. The participants of this training programme will include representatives from various national level training institutes, senior level government functionaries, NGO professionals and academicians.
  

• 
  Stake holder workshop for developing a common vision among all stake holders – The department strongly feels that there is a need to develop common vision and understanding among all major stakeholders in the state. The stakeholders include various line departments, Panchayati Raj Institutions, academicians, NGO professionals etc. This workshop would also help us in developing a common vision and strategy for the department of Panchayati Raj and on the basis of that we can develop convergence among all major stakeholders.
  
• 
  Designing of Training modules for TOT for DRP – We are planning to develop 1898 district resource person in the state for all 38 districts. They would be imparted 60 days training by Master Resource Person in the state. The training and capacity cell of the department of Panchayati Raj has designed a training module for District Resource Person and the same training module will be used during the training programme.
  
• 
  Printing of TOT training modules for TOT for DRP – The training module will be published by the department and 2500 copies of the training module will be printed for circulation among all district resource persons.
  
• 
  Designing of course material for actual training – Actual training program of the elected representatives and government officials will start in the month of January 2010. The training cell of the department will design the training module for the actual training in the field and that will also be used as resource material in the state with regards to PRI. The training module will be designed keeping in mind the National Capacity Building Framework guidelines issued by the MoPR and on themes as per the guidelines.
  
• 
  Printing of course material for actual training – The resource material designed by the training cell will be printed as per the requirement for the actual training programme under BRGF programme.
  
• 
  Establishment of State Management Unit – State management unit would be established in the state for effective implementation of capacity building plan in the state. The unit would comprise of Project management, Communication and IEC expert, Institutional development, Capacity building and HR expert, Documentation officer, Monitoring and evaluation expert, Knowledge management specialist, Administration officer etc. The major function of the unit would be to plan and implement training and capacity building plan in the state.
  
• 
  Formation of Training cell at the department level – In order to strengthen the capacity building programme of the state, the department is planning to form training cell at the department level. The team would comprise of Decentralize planning expert, Capacity building expert, Social mobilizing expert, IEC expert. This team will undertake field visits in the state in order to ensure the quality of the training program and for monitoring of the training programme.
  
• 
  Designing of communication strategy and developing IEC material – Based on the need of the cliental group the department will design communication strategy in the state. This would help us in developing IEC material based on the needs of various types of participants for effective communication among all the stakeholders in the state. This campaign will help in generating awareness among the people regarding roles and responsibilities of the Panchayati raj Institutions. The ministry of Panchayati Raj will prepare quarterly newsletter for PRI in Bihar.
  
• 
  Developing a pool of resource person at the state level and district level - A resource pool would be prepared at the state level and district level which would assist in imparting training under the proposed activity of capacity building plan.
  
• 
  Establishing Panchayat Resource centre and training institute at the state level – The department is planning to establish a Panchayat resource centre at the state level for strengthening Panchayati Raj Institution in the state. The centre will act as a resource centre for the Institution and will focus on developing resource material for the Panchayati Raj Institutions.
  
• 
  Helpline – An 8 hour helpline will be established in order to support the Institution in the state. This help line will assist the PRI in addressing their immediate needs and they can seek support from helpline in order to know about their rights and responsibilities. To begin with all the call centres will operate during office hours. Through help line the people of the state would be able to redress their issues and can gather information about the functioning of the department and Panchayati Raj Institution.
  
• 
  Satellite Studio - A satellite studio will be established in the state with receiving stations at block level. The satellite studio will emphasis on promoting interactive learning at the block level and thus would promote capacity building of the Panchayati Raj Institution. The relay centre will be established in the state capital and training sessions would be organised on a regular basis for elected representatives. The project has been reviewed in the light of BSWAN project and it is proposed that training system may be established through BSWAN.
  
• 
  Policy research and network support – This would help us in assessing the effectiveness of the policy framed by the government and their impact on the institution in the state. On the basis of this research we might be able to amend existing state level policy and can amend the policy. This would be more people friendly and will have wider impact on the general people at large.
  

• 
  Provision of adequate functionaries at the Panchayats for planning and implementation (at ZP level) Zila Parishad Level - There is a provision of adequate functionaries at the Panchayats for planning and implementation of Zila Parishad level. The major functions of this team would be to help in the smooth implementation and designing of the BRGF plan. The source of this fund will be from 5% of the development grant.
  

ZP level
Post	Consolidated Pay	Units	Annual Pay	Pay for 30 months
District manager cum Coordinator, BRGF	20000	37	88.80	222.00
Assistant Engineer	12000	37	53.28	133.20
IT cum M&E expert	12000	37	53.28	133.20
Accounts & Finance Manager	12000	37	53.28	133.20
Computer Operator	6000	37	26.64	66.60
Total______2472.00__6180.00'>Total______275.28__688.20'>Total			275.28	688.20

• 
  Conduct of surveys/studies for BRGF Districts – Under the capacity building plan of the state a survey would be conducted in all the districts of the state. This would enable us to prepare a data base of the status of the Institution in the state. This would enable us to make a comparative analysis during the impact evaluation of the programme. The data would also be posted on the national panchayat portals for all GPs.
  
• 
  Divisional level PRI sensitization workshop (9 workshop at each divisional head quarter) – Nine divisional level sensitization workshops would be organised in the state for sensitizing the government officials, elected representatives with regards to the roles and responsibilities of the Panchayati Raj Institutions. The participants for the divisional level workshop will include district level government officials and PRI members from three tier structure.
  
• 
  Inter State exposure programme for PRI members – With the support of CDLG project the department would undertake exposure programme of selected representatives for seeing and observing the best practices prevalent in other states. This would be continuous programme and will be organised regularly in the state. Fund has also been allocated to the district administration to undertake such exposure programmes.
  
• 
  Capacity building of District Planning Committee (DPCs) – Capacity building of district planning committees will be organised in the state for DPC members. Capacity Building will be organised in terms of training of DPCs for preparing District Plans based on Micro-Planning at GP-level.
  

• 
  Creation of I T Cell at Intermediate Panchayat Level for implementing E –Governance – A dedicated IT cell would be created at IP level for implementing e-governance programme in the state.
  
• 
  Establishment and maintenance of the accounting and auditing system – There is a provision to develop a proper accounting and auditing system in the state from the capacity building fund of BRGF. This would enable concurrent audit of the funds released to the Panchayati Raj Institutions and will also help in monitoring of the funds flow in the Institution Accountant cum Computer Associate will be appointed to strengthen the system.
  
• 
  Provision of Technical assistance to support PRIs as well as gram sabha – Under the institutional building plan the department is planning to establish Panchayat Resource Centre at block level with a technical team with a desire to assist in the functioning of Panchayati Raj Institution in the state. The team would comprise of Programme Manager, Social Specialist, Assistant Manager and Accountant.
  

Post	Consolidated Pay	Units	Annual Pay (Lakhs)	Pay for 30 months
PS level
Programme Manager	16000	515	988.8	2472.00
Social Specialist	12000	515	741.60	1854.00
Assistant Engineer	12000	515	741.60	1854.00
Total			2472.00	6180.00

• 
  Satellite Receiving Studio – Satellite receiving station would be established at Panchayat Samiti level in order to promote interactive learning session at the PS level. Satellite studio based in the state capital will telecast learning sessions and on the basis of that training programme would be organised at the receiving station. The project has been reviewed in the light of BSWAN project and it is proposed that training system may be established through BSWAN.
  

• 
  Provision of adequate functionaries - There is a provision of providing adequate functionaries at the Panchayats for planning and implementation at Gram Panchayat level. This allocation will be used only for gap filling with respect to the critical support and not for salaried existing staff. The expenses of this would be met from 5% of the development grant provided under BRGF to the state. The structure of the proposed staff at Gram Panchayat level is as follows -
  

Post	Consolidated Pay	Units	Annual Pay	Pay for 30 months
GP level
BRGF Sewak	2500	2043	612.90	1532.25
Technical Assistant	2500	2043	612.90	1532.25
People Empowerment Volunteer	2500	2043	612.90	1532.25
Total			1838.70	4596.75

• 
  Providing sufficient office infrastructure for Gram Panchayats – There is a provision for creating sufficient office infrastructure at gram panchayat level for the staff of the Panchayati Raj Institution. The primary focus of this activity is to create physical infrastructure. This building as contemplated by the government of Bihar has been christened as Panchayat Sarkar Bhawan. This would function as secretariat of the Gram Panchayat and would be a platform where people can address their issues. The department is planning to raise funds for this project from 13^th Finance Commission grant and funds from World Bank.
  

• 
  Telephone linkages to Gram Panchayats – There is a provision on linking Gram Panchayats with a telephone connection for quick dissemination of knowledge and information. The telephone linkage programme would be initiated taking due support from department of telecommunication.
  

• 
  Induction course – In the state of Bihar there are 122 Master resource persons for carrying out the training programme proposed under BRGF plan. They have been imparted a 60 days training by BIPARD. For non-BRGF district there is a provision of 5 Master resource persons for carrying out the training as per our plan. We are also planning to create a pool of Master resource person for IT which will impart training to district resource persons.
  

Induction Course (Training of Trainers) – At this stage of the training cycle, we are planning to create a pool of District resource persons for BRGF (1832) and non-BRGF districts (66). This pool of trainers will be provided a 60 days training by our Master Resource Person. This training programme will be organised at district level in the month of November and December 2009. The training module for this training programme will be prepared in the month of October 2009.

• 
  Course 1 (a) Foundation Course – Overview of Panchayati Raj- This training programme will for the elected Panchayat representatives and Panchayati Raj officials for BRGF (132236) and non-BRGF districts (4831). The number of PRI officials for the foundation course is 9000 for BRGF districts and 330 non – BRGF districts.
  

• 
  Course 1 (b) Basic Functional course – This training programme will cover internal housekeeping including understanding of accounts social audit right to information Panchayats revenue. The participants would be elected leaders of panchayats at all levels and chairpersons of standing committees 5 per panchayat and Panchayati Raj officials. The total number of participants from ERs from BRGF (10400) and non-BRGF districts (340) is 10740. The total no Participants from Government officials from BRGF (9000) and non-BRGF (330) districts is 9330.
  

• 
  Course 1 © Financial Literacy Course - This training programme would be given to those who need to get an exposure to functional literacy. This is a 4 days training programme to be provided to the Illiterate or semi literate elected representatives from BRGF (70490) and non-BRGF district (2560). This number has been arrived @ 53% of the total elected women representatives.
  

• 
  Course II (a)Sectorally focussed training Programme – This training programme will aim at the core functioning of Panchayat aimed at improving capacities to deliver services and development programmes. The training programme will include Elected Panchayat Representatives from BRGF (132236) and Non- BRGF districts (4831). 18120 officials including GP accountant from Bihar will also participate in this training programme.
  

• 
  Course II (b) Computer training - This training programme will include training in basic computer skills and selected software for Panchayat level training. At least 2 persons for each panchayat at all levels – GP, PS,ZP. The total participants for this training programme will include 18064 both from BRGF and non-BRGF districts for this training programme.
  

• 
  Course III (a) and (b) This will cover Gram sabha level Campaigns and Panchayati Raj TV channel and radio programmes which will aim at creating awareness for strengthening PRI in Bihar. This training programme will be aimed at common people at large and for Gram sabha, NGOs and Community based organisation.
  

• 
  Course III (d) this would aimed at formation of networks of Panchayat elected representatives focussed on experience sharing at Panchayat level. The training programme would aim at 132236 participants from BRGF and 4831 from non-BRGF districts.
  

• 
  Course III (e) Visits to identified beacon Panchayats – PRIs show a broad spectrum of innovations and best practices on different issues across the country. It is proposed to send teams of elected representatives and officials related to PRIs for exposure study visits to learn from best practices across the country. 10400 elected leaders from BRGF districts and 340 elected leaders from non-BRGF district will participate in this training programme.
  

Other programmes

Shaktirupa – Under Panchayat Mahila ewam Yuva Shakti Abhiyan an association for elected women representatives has been formed named as Shaktirupa which is registered under Society Registration Act 1860. The major objective of this society is to build the capacity of EWRs and for ensuring larger participation of the women at district level as well as state level.
E-PRI – The Ministry of Panchayati Raj, Government of India is keen on executing the computerisation of PRIs in a fast track and time bound manner. Under this project the focus has been on developing the IT capability of the Panchayats. The information and need assessment study and process reengineering study has been completed for the state of Bihar.
Rules of Panchayat Secretary – In order to strengthen the function of Gram Panchayats rules and regulations is being framed by the department for capacity building and functional clarity of Panchayat Secretary. The objective of this proposed rule is to strengthen the functioning of the Gram Panchayat Secretariat.

Conclusion – Backward Region Grant Fund (BRGF) has been launched by the government of India to redress the financial imbalances existing in the country. This fund has been aimed at providing financial resources for supplementing and converging existing development inflows in 37 poor districts of Bihar. Apart from bridging critical gaps in local infrastructure and other development requirements, this program also aims at strengthening Panchayat and Municipality level governance with more appropriate capacity building.