IMAGINING CONVERGENCEKERALA CONTEXT

&AN IDEATION FRAMEWORK

August 2014Kudumbashree-National Resource Organization

III Floor, Carmel TowersCo�on Hill, Vazhuthacadu, Thiruvananthapuram, Kerala-695 014

Tel: 0471 2335714, keralanro@gmail.com | www.keralanro.org

Kudumbashree-National Resource Organization

KudumbashreeKerala State Poverty Eradica�on MissionGovernment of Kerala

AajeevikaNa�onal Rural Livelihoods Mission

Government of India

1

INTRODUCTION

This document is aimed at providing an overview to the

Panchayat Raj and the CBO system in Kerala and the scope

of activities of these institutions. It depicts the means and

methods by which the three tiers of the institutions interface

with each other. It further elaborates the ideas and strategies

used to avail the entitlements and services for the poor

through different central and state schemes. The role of

Gram Sabha as the most important platform for the collectives

for accessing rights and entitlements from the panchayats is

explained based on the Kudumbashree experience. It also

portrays how the panchayat’s governance and service delivery

capabilities are enhanced because of the participation of the

CBOs in the Governance processes.

In the second part, the ideation framework provides

diagrammatic representation of several ideas and possibilities

related to bringing about convergence between PRI and

CBO. These ideas, while based on the experiences in Kerala,

are not specific to any particular context. They are general in

nature, and can be used as first steps for developing specific

interventions for each State.

Overall, the document should help us imagine the concepts

and practice of convergence to enable poor communities to

claim their rights and entitlements and improve quality of

their lives.

2

3

ABBREVIATIONS

NHG Neighbourhood Group

ADS Area Development Society

CBO Community Based Organisation

CDS Community Development Society

IWDP Integrated Watershed Development Project

KS Kudumbashree

LSG Local Self Governments

MoRD Ministry of Rural Development

NBM Nirmal Bharat Abhiyan

NHG Neighbourhood Groups

NREGS National Rural Employment Guarantee Sheme

NRHM National Rural Health Mission

NRLM National Rural Livelihood Mission

NSAP National Social Assistance Programme

PRI Panthayatiraj Institution

RSBY Rashtriya Swasthya Bima Yojna

SHG Self Help Groups

SPEM State Poverty Eradication Mission

CSS/SSS Centrally Sponsored Scheme/ State Sponsored Scheme

GSLP Gender Self Learning Programme

ICDS Integrated Child Development Service

JLG Joint Liability Group

ME Micro Enterprise

KAASS Kudumbashree Accounting and Auditing Service Society

MEC Micro Enterprise Consultant

MF Micro Finance

MGNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme

NBA Nirmal Bharat Abhiyan

NRO National Resource Organization

4

1. P

AN

CH

AYA

TI R

AJ

IN K

ERA

LAB

efo

re

ind

epen

den

ce

ther

e w

ere

thre

e d

iffer

ent

reg

ions

in K

eral

a w

hich

had

bee

n un

der

d

iffer

ent

adm

inis

trat

ive

syst

ems.

Th

e sy

stem

of

go

vern

ance

of

pan

chay

ats

was

rec

om

men

ded

by

the

Ad

min

istr

ativ

e R

efo

rms

Co

mm

itte

e (A

RC

) in

195

7 w

hich

w

as

esse

ntia

lly

a tw

o-t

ier

syst

em

wit

h b

oth

dir

ectl

y el

ecte

d v

illag

e p

anch

ayat

s at

vill

age

leve

l an

d d

istr

ict

coun

cils

at

the

dis

tric

t le

vel.

This

Co

mm

itte

e is

the

ap

ex c

om

mit

tee

in G

ram

P

anch

ayat

co

nsis

ting

o

f al

l ele

cted

War

d

Mem

ber

s an

d is

cha

ired

b

y th

e P

resi

den

t.

The

stan

din

g c

om

mit

tees

ar

e g

ove

rned

by

a St

eeri

ng C

om

mit

tee

whi

ch h

as t

he P

resi

den

t an

d t

he S

tand

ing

co

mm

itte

e ch

airp

erso

ns

as m

emb

ers.

-Fin

ance

sta

ndin

g

com

mit

tee

-Dev

elo

pm

ent

stan

din

g

com

mit

tee

-Wel

fare

Sta

ndin

g

Co

mm

itte

e-H

ealt

h &

Ed

ucat

ion

stan

din

g c

om

mi

The

pan

chay

at a

lso

has

w

ork

ing

gro

ups

whi

ch

incl

udes

the

ele

cted

re

pre

sent

ativ

es a

nd

peo

ple

who

are

exp

erts

in

diff

eren

t fi

eld

s.

Thes

e co

mm

itte

es

are

resp

ons

ible

fo

r p

rep

arat

ion

of

pro

ject

p

lans

in t

heir

co

ncer

ned

fi

eld

s

The

Gra

m S

abha

ha

pp

ens

at t

he w

ard

le

vel a

nd is

co

nven

ed

by

the

resp

ecti

ve w

ard

m

emb

ers.

All

the

peo

ple

in

the

war

d (a

bo

ve t

he

age

of

18) a

re m

emb

ers

of

the

Gra

m S

abha

. The

q

uoru

m f

or

the

gra

m

sab

ha m

eeti

ng is

one

te

nth

of

the

tota

l vo

ters

in

the

war

d.

In

1994

, G

ove

rnm

ent

of

Ind

ia

enac

ted

C

ons

titu

tio

nal

amen

dm

ents

(7

3rd

an

d

74th

am

end

men

t) t

o b

ring

uni

form

sys

tem

o

f lo

cal

go

vern

men

ts i

n th

e co

nsti

tuen

t st

ates

of

Ind

ia w

ith

a un

ifo

rm t

hree

tie

r sy

stem

in r

ural

are

as a

nd o

ne t

ier

syst

em in

ur

ban

are

as.

Ker

ala

enac

ted

co

nco

mit

ant

leg

isla

tio

ns i

n 19

94,

in p

ursu

ance

of

the

Co

nsti

tuti

ona

l am

end

men

t.

- K

eral

a ha

s a

thre

e ti

er s

truc

ture

wit

h th

e G

ram

pan

chay

at a

t th

e vi

llag

e le

vel

-The

Gra

m p

anch

ayat

is d

ivid

ed in

to w

ard

s b

ased

on

the

geo

gra

phi

cal

area

and

the

po

pul

atio

n in

eac

h p

anch

ayat

.

-The

peo

ple

ele

ct t

he w

ard

mem

ber

s an

d t

he w

ard

mem

ber

s ch

oo

se

the

Pre

sid

ent

and

the

Vic

e P

resi

den

t fr

om

am

ong

st t

he e

lect

ed

rep

rese

ntat

ives

.

Dis

tric

t P

anch

ayat

Blo

ck P

anch

ayat

Thre

e ti

er s

truc

ture

in K

eral

a

Pan

chay

at C

om

mit

tee

Stee

ring

Co

mm

itte

eSt

andi

ng C

om

mit

tees

:W

ork

ing

gro

up:

Gra

m S

abha

:

Gra

m P

anch

ayat

In 1

994,

Go

vern

men

t of I

ndia

ena

cted

Co

nsti

tuti

ona

l am

end

men

ts

(73r

d

and

74

th

amen

dm

ent)

to

b

ring

uni

form

sys

tem

of

loca

l g

ove

rnm

ents

in t

he

cons

titu

ent

stat

es o

f Ind

ia w

ith

a un

ifo

rm t

hree

tie

r sy

stem

in r

ural

are

as a

nd o

ne t

ier

syst

em in

urb

an

area

s.

Ker

ala

enac

ted

co

nco

mit

ant

leg

isla

tio

ns

in

1994

, in

p

ursu

ance

o

f th

e C

ons

titu

tio

nal

amen

dm

ent.

4

5

2. Kudumbashree structure and function

Kudumbashree was launched by the Government of Kerala in 1998 for eradicating poverty from the state through concerted community action under the leadership of Local Self Governments. The Kudumbashree network has 41 lakh members and covers more than 50% of the households in Kerala. Literal meaning of Kudumbashree is prosperity (shree) of family (Kudumbam).

CBO Structure:For effective convergence of the programme, a three tier Community Based Organization (CBO) is in action at local body (panchayat) level. These are Neighbourhood Group (NHG), Area Development Society (ADS) and Community Development Society (CDS). Salient features of each tier are as follows:

Neighbourhood Group (NHG)The lowest tier constitutes the Neighbourhood Group (NHG) consisting of 10-20 women members from economically backward families. Meetings are convened on a weekly basis in the house of NHG members or at any common place. There are 5 office bearers in an NHG – President, Secretary, Income volunteer, Basic infrastructure volunteer and Health & Education volunteer.

CDS

ADS

NHG

Area Development Society (ADS)The second tier is the Area Development Society, which is formed at ward level by federating all the NHGs in the ward. The activities of the ADS are decided by the representatives of the women elected from various NHGs. The Area Development Society consists of:

General Body – It consists of all Presidents, Secretaries & 3 volunteers of the NHGs in the ward.

Executive Committee – It consists of 7 members elected by the ADS general body which include a Chairperson, Secretary and five sectorial volunteer for Micro Finance, Micro Enterprise, Social Development, Basic infrastructure and Joint Liability Group for Agriculture & MGNREGA.

6

Community Development Society (CDS) CDS is a registered body which is formed by federating all ADSs in the Panchayat. The CDS is constituted by:

General Body - It consists of executive committee members of all ADS in the Gram Panchayat. •

Executive Committee-It consist of one representatives of each ADS in the Gram panchayat, five • women elected representatives nominated by the Gram panchayat, two former CDS chair persons and member Secretary deputed by the Gram panchayat.

There are five sub-committees at the CDS level namely Micro finance, Micro Enterprise, MGNREGS, Basic Infrastructure and Social Development. All the executive body members except the Chairperson will be a part of one sub-committee.

Elections:The election should be conducted once in every three years , to the CDS governing body, the seven member ADS governing body, and the five member NHG governing body by convening special election at general body meetings. The office bearers cannot hold position for more than two consecutive terms.

3. Interface of the three tiers of the CBO with the Gram Sabha and PanchayatThe CBO through its structured network has an interface with the panchayat, where NHG, ADS and CDS aggregate their needs, prepare demand plans and present it to the panchayat; and also support the panchayat in improving its governance mechanism and outreach. Gram Sabha provides a foundation to this interface, where both the

institutions meet each other. Gram Sabha is the constitutional democratic platform where people from the community and the panchayat make a direct and regular interface with each other. The community based organization through its structure at the NHG, ADS and CDS level help in the mobilization of the Gram Sabha. The CBO network acts as an effective tool for the efficient functioning and conduct of the Gram Sabha. Also, the Kudumbashree women through their effective participation in Gram Sabha, raise their various demands and needs in the Gram Sabha, and get to access various rights and entitlements.

7

Strengthening Gram Sabha at Household and Ward Level

Working of federation with Gram Panchayat

NHG level

CDS level

ADS level

GR

AM

SA

BH

APA

NC

HA

YAT

CB

O S

TRU

CTU

RE

CB

O S

TRU

CTU

RE

Attend Gram Sabha as • collectivesDiscussions of the • issues to be raised in Gram SabhaHelp in identification of • the right beneficiariesSupport for resource • mobilization

Awareness generation • for participation in Gram SabhaAdding a point to be • included in the agenda setting for the Gram SabhaMobilisation of the • women to attend Gram SabhaDiscussion of issues to • be raised in Gram Sabha

Information dissemination• Primary data collection related to • different schemes and plans of the panchayatData collection and plan formulation • and implementation for the women component planConsolidate the demand plan of the • NHGs and ADS at the CDS level to be included in the Panchayat planProviding human resource support • to the work of the panchayatPreparation of developmental plans • and implementationPoverty eradication and alleviation • year plan formulationPublicity at the grassroot level• Supporting implementation of • functional activities of panchayat at the grassroot levelMobilisation for different activities • of panchayat like health and sanitation awareness, schemes and organisation

Membership in panchayat • working groupsPreparation of the community • demand planGetting the panchayats plan • for CDS access to ten percent women component plan fundPresenting the CDS demand • plan to be included in the panchayat planEvaluation committee as • a platform for accessing schemes and benefits from line departmentsAccessing the five percent of • the allotted plan fund for child development for Balsabha activities

Collective bargaining • for demandsADS member as mates• Consolidation of • MGNREGS demand for the panchayatCollective demand for • redressal of grievancesSelection of right • beneficiaries for the schemes

Access to MGNREGS • workAccess to the Job Card • registration processConversion of NHGs • into labour groupsAccess to RSBY card•

Accessing Entitlements from Panchayat through Gram Sabha

Accessing Entitlements from Panchayat through Gram Sabha

Accessing Entitlements from Panchayat

Enhancing Governance of Panchayat

Enhancing effective conduct of Gram Sabha

Enhancing effective conduct of Gram Sabha

8

It is the Mission Kudumbashree programme to strengthen both local governments and the women’s community network to take on these challenges and develop their own unique, sustaining model of local economic development

Economic development • is the base for other development.

Women Collective has been • recognized as tenets of women Empowerment.

Women empowerment • leads to Sustainable social development.

Panchayat plays a vital role • in Kudumbashree programs and activities

Panchayat supports • Kudumbashree in all aspects including financial support, providing infrastructure facilities, administrative work and capacitating the right holders of the programs

Highlights of the • program:

Poverty Eradication•

Agricultural production•

Local economic • development

Social Equity•

JLG Micro Enterprises

Asraya

BUDS

GSLP

Balsabha

Microfinance

9

4. K

udum

bash

ree

Pro

gram

mes

Eco

nom

ic E

mp

ow

erm

ent

Mic

ro F

inan

ce

Mic

rofi

nanc

e: B

asic

act

ivit

y fo

r N

HG

whi

ch in

volv

es in

thr

ift

and

cre

dit

op

erat

ion.

The

n g

ets

ban

k lin

ked

whe

re t

hey

rece

ive

Mat

chin

g G

rant

. Int

eres

t su

bsi

dy

for

linka

ge

loan

. Aud

itin

g w

ill

be

do

ne b

y K

AA

SS &

aut

hori

sed

ag

enci

es

Mic

roE

nter

pri

se: M

E in

itia

ted

as

inte

rest

bas

ed a

ctiv

ity

gro

up

or

ind

ivid

ualr

ecei

ve m

one

tary

su

pp

ort

fro

m b

anks

, Pan

chay

at

and

Kud

umb

ashr

ee a

nd t

echn

ical

su

pp

ort

fro

m t

rain

ing

tea

ms

and

M

EC

Co

llec

tive

Far

min

g: I

niti

ativ

e to

en

cour

age

cult

ivat

iona

nd u

tiliz

ing

th

efal

low

&cu

ltiv

able

was

te la

nd

to a

gri

cult

ural

use

thr

oug

h le

ase

land

far

min

g

Mic

ro

Ente

rpri

seC

olle

ctiv

e fa

rmin

gA

sray

a

Asr

aya:

Reh

abili

tati

on

pro

ject

fo

r d

esti

tute

fa

mili

es -

Des

titu

te f

amily

ar

e id

enti

fied

by

the

tran

spar

ent

risk

fac

tor

ind

ex a

nd in

div

idua

l ne

eds

are

iden

tifi

ed b

y th

e p

arti

cip

ato

ry n

eed

as

sess

men

t

Bal

asab

ha: N

eig

hbo

urho

od

co

llect

ive

of

the

child

ren

whi

ch is

fed

erat

ed in

th

ree

leve

ls, B

alas

abha

, B

alas

amit

hi a

nd

Bal

apan

chay

at. O

nce

ever

y ye

ar, c

hild

ren

par

tici

pat

e in

B

alap

arlia

men

t.

BU

DS:

Spec

ial s

cho

ol f

or

men

tally

and

phy

sica

lly

chal

leng

ed c

hild

ren

Kud

umb

ashr

ee p

lays

a v

ital

ro

le in

iden

tify

ing

the

chi

ldre

n an

d P

anch

ayat

pro

vid

es t

he

scho

ol b

uild

ing

and

veh

icle

fo

r tr

ansp

ort

atio

n

Gen

der

Sel

f Le

arni

ng

Pro

gra

mm

e: -

Spec

ial i

niti

ativ

e o

f

Kud

umb

ashr

ee t

o f

acili

tate

wo

men

d

iscu

ss a

nd b

e se

nsit

ized

to

war

ds

gen

der

issu

es.

- D

iffer

ent

mo

dul

es a

re d

evel

op

ed

to g

ener

ate

awar

enes

s am

ong

th

e K

udum

bas

hree

wo

men

on

diff

eren

t to

pic

s lik

e: W

om

en a

nd

Wo

rk, W

om

en a

nd H

ealt

h, W

om

en

and

Mo

bili

ty &

Wo

men

and

En

tert

ainm

ent

- Diff

eren

t p

rog

ram

s an

d a

ctiv

itie

s ar

e in

itia

ted

wit

h th

e ti

e up

of

Kud

umb

ashr

ee a

nd P

anch

ayat

on

Gen

der

issu

es a

nd c

onc

erns

:- G

end

er C

orn

er

- Jar

gri

thaS

amit

i

- C

rim

e M

app

ing

- Nir

bha

ya C

om

mit

tee

-

Sneh

itha

BU

DS

Bal

asab

haG

end

er S

elf

Lear

ning

P

rog

ram

me

Soci

al E

mp

ow

erm

ent

Wo

men

Em

po

wer

men

t

9

10

5. T

he im

plem

enta

tio

n o

f C

SS/S

SSTh

e co

nver

gen

ce b

etw

een

the

dem

ocr

atic

inst

itut

ions

and

po

or-

led

co

mm

unit

y b

ased

org

aniz

atio

ns is

the

inno

vati

ve w

ork

ing

mo

del

tha

t ev

olv

ed in

the

jo

urne

y o

f K

udum

bas

hree

. Her

e C

BO

pla

ys a

vit

al r

ole

in p

lann

ing

, im

ple

men

tati

on

and

mo

nito

ring

of

the

dev

elo

pm

enta

l pro

gra

mm

es. T

his

arra

ngem

ent

mut

ually

co

ntri

but

es to

act

ualiz

e th

e en

visa

ged

vis

ion

of b

oth

the

inst

itut

ions

. The

cha

nnel

izat

ion

of v

ario

us s

oci

o-w

elfa

re s

chem

es t

hro

ugh

this

co

nver

gen

ce

mec

hani

sm h

as e

nab

led

act

ive

par

tici

pat

ion

of

the

peo

ple

and

ens

ured

acc

ess

of

the

targ

eted

sec

tio

ns t

o t

he p

arti

cula

r b

enefi

ts. B

ring

ing

the

mar

gin

aliz

ed

sect

ions

of

the

soci

ety

into

mai

n st

ream

thi

s w

ay o

ffer

s a

leg

itim

ate

& p

ract

ical

so

luti

on

to a

dd

ress

the

incr

easi

ng g

ap b

etw

een

the

citi

zen

and

sta

te. I

n th

e la

rger

vis

ion

of

this

arr

ang

emen

t, t

he s

oci

o-w

elfa

re s

chem

es f

unct

ion

as t

he p

rim

ary

pla

tfo

rm f

or

inst

itut

ions

of

the

po

or

to e

stab

lish

and

str

eng

then

th

emse

lves

as

agen

cies

of

emp

ow

erm

ent.

The

follo

win

g T

able

dep

icts

the

ro

le o

f P

RIs

and

Kud

umb

ashr

ee n

etw

ork

in im

ple

men

ting

var

ious

sch

emes

.

Nam

e o

f th

e Sc

hem

eR

ole

of

PR

I in

the

Sche

me

as p

er

Cen

tre

Gui

del

ines

Ro

le o

f P

RI i

n th

e Sc

hem

e as

per

Sta

te

gui

del

ines

of

Ker

ala

Ro

le o

f C

BO

(K

udum

bas

hree

)

Inte

gra

ted

Chi

ld

Dev

elo

pm

ent

Sche

me

(IC

DS)

End

ors

e V

illag

e C

hild

Dev

elo

pm

ent

• P

lans

Rev

iew

vill

age-

leve

l chi

ld-r

elat

ed

• in

dic

ato

rs a

nd o

utco

mes

and

re

com

men

d v

illag

e s

pec

ific

inte

rven

tio

ns, i

nclu

din

g lo

cal

solu

tio

ns t

o r

each

the

yo

ung

er

infa

nt c

hild

Mo

nito

r an

d s

uper

vise

act

ivit

ies

• o

f th

e A

WC

and

oth

er p

roje

cts

/ p

erso

nnel

invo

lved

wit

h IC

DS

Mis

sio

n

Ap

pra

ise

pro

po

sals

and

ap

pro

ve

• th

em b

ased

on

the

bro

ad

fram

ewo

rk.

Pro

vid

e g

uid

ance

in p

rep

arin

g

• A

nnua

l Act

ion

Vill

age/

Urb

an

Cen

tre

Pla

ns b

ased

on

the

felt

-ne

eds

of

the

child

ren

and

wo

men

in

the

vill

age/

urb

an s

ettl

emen

t.

Pro

vid

e g

uid

ance

fo

r im

ple

men

ting

•

the

acti

viti

es

Faci

litat

e co

nver

gen

ce w

ith

ASH

As,

•

AN

Ms,

and

oth

er r

elev

ant

serv

ice

pro

vid

ers

at t

he v

illag

e le

vel

Co

llect

ing

and

up

dat

ing

ess

enti

al

• st

atis

tics

Bui

ldin

g a

war

enes

s o

n ci

vic

dut

ies

•

Ove

rsee

ing

the

Ang

anw

adis

•

Ensu

ring

imm

unis

atio

n•

Man

agin

g c

hild

wel

fare

cen

tre

•

Man

agin

g P

HC

, sub

-cen

tre

and

hea

lth

• d

isp

ensa

ry

Co

nstr

ucti

ng p

layg

roun

ds

•

Ass

isti

ng s

ched

uled

Cas

te/s

ched

uled

•

Trib

e st

uden

ts

Man

agin

g p

re-p

rim

ary

and

pri

mar

y •

scho

ols

Co

llab

ora

ting

wit

h ‘S

oci

al W

elfa

re S

tand

ing

Co

mm

itte

e’ o

f G

ram

•

Pan

chay

at in

pre

par

ing

the

pro

ject

pla

n fo

r al

l IC

DS

in a

vill

age

‘So

cial

Wel

fare

Sub

Co

mm

itte

e’ o

f C

DS

liais

ons

wit

h b

oth

•

targ

eted

ben

efici

arie

s as

wel

l as

the

PR

I

Iden

tifi

cati

on

of

ben

efici

arie

s fo

r ea

ch c

om

po

nent

of

ICD

S an

d

• en

rolli

ng t

hem

to

Ang

anw

adi

NH

G m

emb

ers

are

acti

ve in

‘Mat

hru

Sam

ithi

’of

each

Ang

anw

adi

• in

the

ir lo

calit

y

CB

O n

etw

ork

eng

ages

wit

h va

rio

us f

unct

iona

ries

of

NR

HM

to

•

colla

bo

rate

wit

h A

ngan

wad

is

NH

G m

emb

ers

are

acti

ve p

arti

cip

ants

of

Man

agin

g C

om

mit

tees

•

of

Ang

anw

adis

‘Hea

lth

and

Ed

ucat

ion

Vo

lunt

eer’

of

NH

G e

nsur

es t

hat

each

•

ben

efici

ary

fro

m t

he C

BO

net

wo

rk a

cces

ses

the

ben

efits

of

ICD

S

Cre

ates

po

siti

ve e

nvir

onm

ent

for

ICD

S th

roug

h C

BO

net

wo

rk

• p

rovi

din

g lo

cal s

upp

ort

Co

nduc

ts lo

cal f

esti

vals

and

cel

ebra

tes

spec

ial d

ays

in

• co

llab

ora

tio

n w

ith

Ang

anw

adi

10

11

Nat

iona

l Soc

ial

Ass

ista

nce

Pro

gram

me(

NSA

P)

Dis

sem

inat

ing

info

rmat

ion

abo

ut

•

the

NSA

P a

nd p

roce

dur

e fo

r

ob

tain

ing

ben

efits

und

er it

.

Pan

chay

at e

nco

urag

es

•

invo

lvem

ent/

co

op

erat

ion

of

volu

ntar

y o

rgan

isat

ion.

The

gra

m p

anch

ayat

als

o p

lay

an

•

acti

ve r

ole

in t

he id

enti

fica

tio

n o

f

ben

efici

arie

s un

der

the

sch

eme

thro

ugh

gra

m s

abha

.

The

cent

ral a

ssis

tanc

e al

so is

•

pre

fera

bly

dis

bur

sed

in p

ublic

mee

ting

s m

ainl

y in

gra

m s

abha

.

The

pan

chay

at a

re a

lso

invo

lved

•

in m

oni

tori

ng a

nd in

fo

llow

ing

up d

elay

s in

san

ctio

ns a

nd

dis

bur

sem

ent.

The

sele

ctio

n o

f b

enefi

ciar

ies

is t

he

•

dut

y o

f G

ram

Sab

ha,

The

ben

efici

arie

s ha

ve t

o s

ubm

it t

he

•

app

licat

ion

for

the

pen

sio

n to

the

Gra

m P

anch

ayat

.

The

app

licat

ion

is v

erifi

ed b

y •

the

Gra

m P

anch

ayat

aut

hori

ties

and

elig

ible

ap

plic

atio

ns a

re

reco

mm

end

ed f

or

rele

asin

g p

ensi

on

to t

he d

istr

ict

auth

ori

ties

Ap

plic

atio

n w

ith

enq

uiry

is v

erifi

ed b

y •

the

pan

chay

at c

om

mit

tee.

The

list

of

case

s sa

ncti

one

d a

re r

ead

•

out

at

the

Gra

ma

Sab

ha a

nd t

heir

view

s ar

e g

iven

due

co

nsid

erat

ion.

In e

very

cas

e o

f re

ject

ions

of

•

app

licat

ion

the

app

lican

t is

info

rmed

of

acco

rdin

gly

by

the

Secr

etar

y, G

ram

Pan

chay

at.

Ann

ual v

erifi

cati

on

of

the

•

ben

efici

arie

s is

do

ne b

y th

e g

ram

pan

chay

at a

nd r

epo

rtin

g o

f d

eath

s if

any.

Iden

tifi

cati

on

of

the

elig

ible

ben

efici

arie

s an

d t

he c

olle

ctio

n o

f •

app

licat

ions

thr

oug

h A

DS

leve

l mee

ting

CD

S o

ffice

sup

po

rts

the

app

lican

ts f

or

form

alit

ies

and

•

pro

ced

ures

CD

S su

pp

ort

s P

anch

ayat

in s

crut

inis

ing

and

fina

lisin

g t

he

•

ben

efici

ary

list

Ensu

ring

the

dis

per

sio

n o

f th

e b

enefi

ts t

o t

he b

enefi

ciar

ies

and

•

forw

ard

ing

co

mp

lain

ts if

any

, to

Pan

chay

at S

ecre

tary

11

12

Mah

atm

a G

and

hi

Nat

iona

l Rur

al

Em

plo

ymen

t G

uara

ntee

Sc

hem

e (M

GN

RE

GS)

Pla

nnin

g o

f w

ork

s•

Reg

iste

ring

ho

useh

old

s•

Issu

ing

job

car

ds

•

Allo

cati

ng e

mp

loym

ent

•

Mo

nito

ring

and

im

ple

men

tati

on

of

• th

e Sc

hem

e

Aw

aren

ess

bui

ldin

g e

nvir

onm

ent

• cr

eati

on

to s

pre

ad t

he m

essa

ge

of

MG

NR

EGS

Mo

bili

zing

and

reg

iste

ring

the

job

•

seek

ers

Mak

ing

sp

ecia

l eff

ort

s to

incl

ude

• m

arg

inal

ised

co

mm

unit

y lik

e tr

ibal

s,

wo

men

, SC

and

ST

com

mun

ity

Pre

par

atio

n o

f sh

elf

of

pro

ject

s an

d

• th

eir

app

rova

l.

Ensu

ring

wo

rksi

te f

acili

ties

fo

r •

wo

rker

s

Stat

e g

ove

rnm

ent

had

tak

en a

n •

init

iati

ve t

o t

rain

wo

men

mat

es (f

rom

th

e K

udum

bas

hree

net

wo

rk)

Co

nduc

t o

f aw

aren

ess

and

pub

licit

y ca

mp

aig

ns t

hro

ugh

war

d

• (A

DS)

leve

l co

nven

tio

ns o

f th

e N

HG

s, h

ous

e vi

sits

etc

.

Spec

ial g

ram

a sa

bha

s in

all

war

ds

wit

h th

e p

rese

nce

of

War

d

• M

emb

er a

nd A

DS

Secr

etar

y

Act

ive

invo

lvem

ent

of

Kud

umb

ashr

ee m

emb

ers

und

er N

REG

S •

Sub

Co

mm

itte

e o

f C

DS

Faci

litat

ion

of

reg

istr

atio

n o

f w

ork

ers

and

dis

trib

utin

g jo

b c

ard

s•

Dem

and

fo

r w

ork

is g

ener

ated

at

the

NH

G le

vel fi

rst

and

the

n •

take

n to

the

gra

m s

abha

AD

S m

ate

map

s o

ut d

eman

d f

or

emp

loym

ent

fro

m e

ach

war

d•

Iden

tifi

cati

on

of

wo

rks

and

sit

es f

or

MG

NR

EGS

und

er s

uper

visi

on

• o

f A

ssis

tant

Eng

inee

r

Map

pin

g t

he p

oss

ible

inte

gra

tio

n o

f N

REG

S w

ork

s id

enti

fied

wit

h •

exis

ting

CD

S ac

tio

n p

lan

AD

S m

emb

ers

coo

rdin

ate

Soci

al A

udit

whi

ch is

co

nduc

ted

by

• N

REG

S ac

coun

tant

Ass

ista

nt E

ngin

eer

and

VEO

(Vill

age

exte

nsio

n O

ffice

r) w

ho a

re

• re

spo

nsib

le f

or

fiel

d m

oni

tori

ng is

acc

om

pan

ied

by

AD

S m

ate

Lab

our

Gro

up f

unct

ions

as

‘Lab

our

Co

llect

ive’

ens

urin

g t

he

• em

plo

ymen

t b

eyo

nd t

he N

REG

S o

pp

ort

unit

y

Nir

mal

Bha

rat

Ab

hiya

n (N

BA

)

So

cial

mo

bili

zati

on

for

the

• co

nstr

ucti

on

of

toile

ts.

Cle

an e

nvir

onm

ent

by

way

of

safe

•

dis

po

sal o

f w

aste

s.

Pro

mo

ting

reg

ular

use

of

toile

t•

Mai

nten

ance

and

up

gra

dat

ion

of

• to

ilets

Pro

mo

te in

terp

erso

nal

• co

mm

unic

atio

n fo

r hy

gie

ne

educ

atio

n.

A V

illag

e W

ater

and

San

itat

ion

• C

om

mit

tee

are

cons

titu

ted

fo

r p

rovi

din

g s

upp

ort

in t

erm

s o

f m

oti

vati

on,

mo

bili

zati

on,

im

ple

men

tati

on

and

sup

ervi

sio

n o

f th

e p

rog

ram

me.

Pro

visi

on

of

Ind

ivid

ual H

ous

eho

ld

• La

trin

e (I

HH

L) a

nd s

anit

atio

n fa

cilit

ies

in G

ove

rnm

ent

Scho

ols

and

A

ngan

wad

is in

Go

vern

men

t b

uild

ing

s w

ithi

n th

e G

Ps

Pan

chay

at c

arri

es o

ut s

oci

al

• m

ob

iliza

tio

n fo

r th

e co

nstr

ucti

on

of

toile

ts a

nd a

lso

mai

ntai

ns t

he c

lean

en

viro

nmen

t b

y w

ay o

f sa

fe d

isp

osa

l o

f w

aste

s.

They

are

res

po

nsib

le t

o lo

ok

afte

r •

and

mai

ntai

n co

mm

unit

y co

mp

lexe

s,

dra

inag

es, e

tc. w

hich

are

co

nstr

ucte

d

und

er t

his

pro

gra

mm

e.

They

co

uld

als

o c

ont

rib

ute

thei

r •

avai

lab

le r

eso

urce

s in

the

co

nstr

ucti

on

of

scho

ol s

anit

atio

n in

fras

truc

ture

s.

In K

eral

a, t

he S

uchi

twa

(San

itat

ion)

•

Mis

sio

n w

as e

stab

lishe

d in

200

3 fo

r p

rovi

din

g a

dvi

sory

sup

po

rt t

o t

he

stat

e g

ove

rnm

ent

and

han

dho

ldin

g

sup

po

rt t

o t

he lo

cal g

ove

rnm

ents

Sens

itis

atio

n ag

ains

t o

pen

def

ecat

ion

and

rel

ated

hea

lth

issu

es•

Surv

ey a

nd id

enti

fica

tio

n o

f ho

useh

old

s ar

e d

one

by

NH

Gs

•

Ensu

red

tha

t ea

ch N

HG

fam

ily h

as IH

HL

•

‘Hea

lth

and

Ed

ucat

ion

Vo

lunt

eer’

was

giv

en t

rain

ing

to

be

par

t o

f •

cam

pai

gn

The

ben

efici

arie

s o

f P

anch

ayat

ho

usin

g s

chem

e w

ere

man

dat

ed

• to

hav

e IH

HL

Ava

ilab

ility

of

toile

ts in

Sch

oo

l and

Ang

anw

adi w

ere

ensu

red

•

thro

ugh

CD

S an

d A

DS

The

Aw

ard

Mo

ney

(Nir

mal

Gra

m P

urus

kar)

is s

hare

d w

ith

CB

O

• an

d a

lso

use

d in

fo

llow

up

act

ivit

ies

12

13

IMAGINING CONVERGENCE

AN IDEATION FRAMEWORK

Mah

atm

a G

and

hi

Nat

iona

l Rur

al

Em

plo

ymen

t G

uara

ntee

Sc

hem

e (M

GN

RE

GS)

Pla

nnin

g o

f w

ork

s•

Reg

iste

ring

ho

useh

old

s•

Issu

ing

job

car

ds

•

Allo

cati

ng e

mp

loym

ent

•

Mo

nito

ring

and

im

ple

men

tati

on

of

• th

e Sc

hem

e

Aw

aren

ess

bui

ldin

g e

nvir

onm

ent

• cr

eati

on

to s

pre

ad t

he m

essa

ge

of

MG

NR

EGS

Mo

bili

zing

and

reg

iste

ring

the

job

•

seek

ers

Mak

ing

sp

ecia

l eff

ort

s to

incl

ude

• m

arg

inal

ised

co

mm

unit

y lik

e tr

ibal

s,

wo

men

, SC

and

ST

com

mun

ity

Pre

par

atio

n o

f sh

elf

of

pro

ject

s an

d

• th

eir

app

rova

l.

Ensu

ring

wo

rksi

te f

acili

ties

fo

r •

wo

rker

s

Stat

e g

ove

rnm

ent

had

tak

en a

n •

init

iati

ve t

o t

rain

wo

men

mat

es (f

rom

th

e K

udum

bas

hree

net

wo

rk)

Co

nduc

t o

f aw

aren

ess

and

pub

licit

y ca

mp

aig

ns t

hro

ugh

war

d

• (A

DS)

leve

l co

nven

tio

ns o

f th

e N

HG

s, h

ous

e vi

sits

etc

.

Spec

ial g

ram

a sa

bha

s in

all

war

ds

wit

h th

e p

rese

nce

of

War

d

• M

emb

er a

nd A

DS

Secr

etar

y

Act

ive

invo

lvem

ent

of

Kud

umb

ashr

ee m

emb

ers

und

er N

REG

S •

Sub

Co

mm

itte

e o

f C

DS

Faci

litat

ion

of

reg

istr

atio

n o

f w

ork

ers

and

dis

trib

utin

g jo

b c

ard

s•

Dem

and

fo

r w

ork

is g

ener

ated

at

the

NH

G le

vel fi

rst

and

the

n •

take

n to

the

gra

m s

abha

AD

S m

ate

map

s o

ut d

eman

d f

or

emp

loym

ent

fro

m e

ach

war

d•

Iden

tifi

cati

on

of

wo

rks

and

sit

es f

or

MG

NR

EGS

und

er s

uper

visi

on

• o

f A

ssis

tant

Eng

inee

r

Map

pin

g t

he p

oss

ible

inte

gra

tio

n o

f N

REG

S w

ork

s id

enti

fied

wit

h •

exis

ting

CD

S ac

tio

n p

lan

AD

S m

emb

ers

coo

rdin

ate

Soci

al A

udit

whi

ch is

co

nduc

ted

by

• N

REG

S ac

coun

tant

Ass

ista

nt E

ngin

eer

and

VEO

(Vill

age

exte

nsio

n O

ffice

r) w

ho a

re

• re

spo

nsib

le f

or

fiel

d m

oni

tori

ng is

acc

om

pan

ied

by

AD

S m

ate

Lab

our

Gro

up f

unct

ions

as

‘Lab

our

Co

llect

ive’

ens

urin

g t

he

• em

plo

ymen

t b

eyo

nd t

he N

REG

S o

pp

ort

unit

y

Nir

mal

Bha

rat

Ab

hiya

n (N

BA

)

So

cial

mo

bili

zati

on

for

the

• co

nstr

ucti

on

of

toile

ts.

Cle

an e

nvir

onm

ent

by

way

of

safe

•

dis

po

sal o

f w

aste

s.

Pro

mo

ting

reg

ular

use

of

toile

t•

Mai

nten

ance

and

up

gra

dat

ion

of

• to

ilets

Pro

mo

te in

terp

erso

nal

• co

mm

unic

atio

n fo

r hy

gie

ne

educ

atio

n.

A V

illag

e W

ater

and

San

itat

ion

• C

om

mit

tee

are

cons

titu

ted

fo

r p

rovi

din

g s

upp

ort

in t

erm

s o

f m

oti

vati

on,

mo

bili

zati

on,

im

ple

men

tati

on

and

sup

ervi

sio

n o

f th

e p

rog

ram

me.

Pro

visi

on

of

Ind

ivid

ual H

ous

eho

ld

• La

trin

e (I

HH

L) a

nd s

anit

atio

n fa

cilit

ies

in G

ove

rnm

ent

Scho

ols

and

A

ngan

wad

is in

Go

vern

men

t b

uild

ing

s w

ithi

n th

e G

Ps

Pan

chay

at c

arri

es o

ut s

oci

al

• m

ob

iliza

tio

n fo

r th

e co

nstr

ucti

on

of

toile

ts a

nd a

lso

mai

ntai

ns t

he c

lean

en

viro

nmen

t b

y w

ay o

f sa

fe d

isp

osa

l o

f w

aste

s.

They

are

res

po

nsib

le t

o lo

ok

afte

r •

and

mai

ntai

n co

mm

unit

y co

mp

lexe

s,

dra

inag

es, e

tc. w

hich

are

co

nstr

ucte

d

und

er t

his

pro

gra

mm

e.

They

co

uld

als

o c

ont

rib

ute

thei

r •

avai

lab

le r

eso

urce

s in

the

co

nstr

ucti

on

of

scho

ol s

anit

atio

n in

fras

truc

ture

s.

In K

eral

a, t

he S

uchi

twa

(San

itat

ion)

•

Mis

sio

n w

as e

stab

lishe

d in

200

3 fo

r p

rovi

din

g a

dvi

sory

sup

po

rt t

o t

he

stat

e g

ove

rnm

ent

and

han

dho

ldin

g

sup

po

rt t

o t

he lo

cal g

ove

rnm

ents

Sens

itis

atio

n ag

ains

t o

pen

def

ecat

ion

and

rel

ated

hea

lth

issu

es•

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ey a

nd id

enti

fica

tio

n o

f ho

useh

old

s ar

e d

one

by

NH

Gs

•

Ensu

red

tha

t ea

ch N

HG

fam

ily h

as IH

HL

•

‘Hea

lth

and

Ed

ucat

ion

Vo

lunt

eer’

was

giv

en t

rain

ing

to

be

par

t o

f •

cam

pai

gn

The

ben

efici

arie

s o

f P

anch

ayat

ho

usin

g s

chem

e w

ere

man

dat

ed

• to

hav

e IH

HL

Ava

ilab

ility

of

toile

ts in

Sch

oo

l and

Ang

anw

adi w

ere

ensu

red

•

thro

ugh

CD

S an

d A

DS

The

Aw

ard

Mo

ney

(Nir

mal

Gra

m P

urus

kar)

is s

hare

d w

ith

CB

O

• an

d a

lso

use

d in

fo

llow

up

act

ivit

ies

14

The 73rd Constitutional Amendment Act, 1992 marked a new era in the democratic set up of the country as it created Panchayati Raj Institutions (PRIs) as tiers of self-governance below the level of States in the federal set up. It is also a landmark in the decentralized development as it envisions people’s participation in the process of decision-making, planning, implementation and delivery at local level.

1. Why PRI?Constitutional Support – Decentralization ( 73rd and 74th Amendment)

State Finance support earmarking a percentage budget to local bodies

Community oriented centrally sponsored schemes.

Local Self GovernmentsLocal self-government is a form of public administration for a locality or small community such as village, town or a city. The administrative body is represented by the local inhabitants and enjoys a large amount of autonomy, raising its revenue through local taxation and spending the proceeds on public services.

2. Constitutional Responsibilities of a PRIThe Constitutional provisions provides devolution of powers and responsibilities to different tiers of PRIs with respect to preparation of plans and programmes for economic development and social justice and their implementation in relation to 29 Subjects listed in the Eleventh Schedule(Article 243G).

Agriculture.

Small Scale industries

Khadi, Village & Cottage Industries

Managing Resource

Land improvement, implementation of land reforms, land consolidation and soil conservation

Minor irrigation, water management and watershed development

Animal Husbandry, dairying and poultry

Fisheries

Social forestry and farm forestry

Minor Forest Produce

Fuel and Fodder

Managing Basic Service

Rural Housing

Drinking Water

Transportation and Transport Networks

Health and Sanitation

Rural Electrification

Non-conventional energy sources

Education

Maintenance of community assets

Technical training & vocational education

Audit and non-formal education

Libraries

Markets and fairs

Public Distribution System

Local Economic Development

Poverty alleviation programmes

Welfare of the weaker sections and in particular of the SCs and STs

Women & Child Development

Social Welfare

Family Welfare

Cultural Activities

Programme Implementation

15

3. PRI Resources and Systems

4. PRI Resources and System interplay

5. Possibilities of new Centrally Sponsored Schemes

PARTNERSCommunity Based Organisations

DEV

OLU

TIO

N

RESOURCES SYSTEMS

OW

N R

ESO

UR

CES

FINANCESchemes & Programmes

Human Resources

Taxes and fees

NATURAL RESOURCESLand, Forest, Water etc

IMPLEMENTATION SYSTEMOfficial Administrative system

SUPPORTING SYSTEMCommunity Institution

SUSTAINABLE DEVELOPMEMT, EQUITY & JUSTICE

OWN RESOURCES

Human Resources•

Financial Resources•

Natural Resources•

Knowledge Resources•

Capability Improvement

Effective Utilization

Optimum Utilization

Cit

izen

ship

Rig

hts

Res

po

nsib

iliti

es

SYSTEMS & COMMUNITY

CapabilityCitizenship

Responsibility

Impoved Quality of •

Life

Responsible Citizens•

Equity & Justice to All•

Sustainable •

Local Economic

Development

Conservation of •

Natural Resources

Sche

mes

Examples

MGNREGS

Nirmal Bharat Abhiyan

RSBY

NSAP

NRHM

NRLM

Other CSS & SSS

Po

tent

ials Poverty Alleviation•

Water & Sanitation•

Income Generation•

Inclusive Health • Services

Social Security•

Mobilization•

Participation•

Grass Root Initiations •

Democratic process•

Governance•

Capability Building•

Right Consciousness•

Public Action•

Out

com

es

16

Implementation •

Monitoring •

Evaluation•

6. Convergence Opportunities in Local Economic Development

7. Convergence possibility in MGNREGS – Institutions

8. Convergence possibility in MGNREGS – Programmes

SCOPE FOR

CONVERGENCE

Programmes & schemes

Finance & Resources

Systems & Institutions

PR

Is &

Co

mm

unit

y In

stit

utio

n

MGNREGS

Co

mm

unit

y B

ased

Org

anis

atio

ns

Enrolment & Mobilisation

Labour Budgeting

Project Identification

Estimation

Implementation

Supervision

Payment

Social Audit

Monitoring

PANCHYATIRAJ INSTITUTIONS

MG

NR

EGS

Agriculture & land Development

Sanitation & Public Health Programmes

Housing projects

Watershed Management Programmes

Drinking Water Programmes

17

9. Opportunity for community empowerment & PRI strengthening in on- going CSS

10. Community empowerment through CSS

11. Opportunity for PRI and CBO synergy

Addressing the need of most

vulnerable category of the

community

NRLM

NREGS

NBA

Addressing the need at grassroots level

Increased reach

Strengthening PRI and CBOs

CBOs

PEOPLE

Knowledge

Capability

Self Realisation

CITIZENSHIP

PEOPLE

PEOPLE

NRHM

NRLM

NSAP

OTHER CSS/SSS

RSBY

NIRMAL BHARAT ABHIYAN

IWDP

MGNREGS

CBOs

PRI

NRLM MGNREGS

STRONG PRI: GOOD GOVERNANCE : STRONG CBOs

NBA

Mobilisation & participation Organic Collective of Poor Labourers

Mobilisation

Regular Employment & Wages Knowledge of health & sanitation

Skill Improvement & Ownership

Skill to Practice health

Knowledge of local

ResourcesPublic Action

System Building CBOs

Capability Building

Poverty alleviation

IMPROVED QUALITY OF LIFE & GOVERNANCE CAPABILITY HEALTH CAPABILITY

EMPOWERED COMMUNITY

18

12. PRI and CBO strengthening through NRLM

LOCAL ECONOMIC DEVELOPMENT

NRLM

Mobilization

Participation at grassroots

Empowerment Rights, Citizenship

EMPOWERED CBOs

for collectivization

19

13. Process oriented capability building scheme for collectivization

14. NREGS-NRLM Convergence

Collectivisation & Demanding capability

Empowered Community and Effective participation in Governance

Labour Groups

Bonding

Grouping

Self Selection

NREGS

Demand Capability

Governance Capability

Access to entitlement

SHGs-NRLM

NR

EGS

NR

LM

Self Selection• Physical & Social • MobilityJob Identification• Estimation• Labour Management• Knowledge of Local • ResourcesRegular Employment• Banking Culture• Governance System• Policies & Programmes•

Collectiveness• Physical & Social • Mobility Mobilization• Negotiation• Entrepreneurship• Governance System• Policies & Programmes• Increased Reach• System Building• Banking Culture•

CAPABILITY IMPORVEMENT

Effective Utilization of

Resources

Rights & Entitlement

Access to Public Institutions

Institutionalization of strong collective

20

Community Based Resource Institutions

PRI CBO Convergence

Community Based

Organisations

TrainersPanchayati Raj Institutions

Local Resource Person

COMMUNITY

Schemes

E�ective Grama Sabha

Rights oriented education campaigns

for entitlements

E�ective Implementation ofMGNREGS & other schemes

Strengthened CBO

Stakeholders and components

Output of PRI-CBO convergence project

Stakeholders and components

15. PRI-CBO CONVERGENCE