CHAPTER – 7
ROLE OF PANCHAYATS
7.1 The Gram Panchayats have the most critical role to play in the actual implementation of the scheme. They include the following:-
(1) The baseline survey using Socio-Economic Caste Census data would be coordinated by the Village Panchayats. They would also facilitate the participatory identification of the eligible beneficiaries.
(2) They should ensure maximum participation in the Gram Sabha held to finalize the five year priority list and the annual select list of beneficiaries.
(3) The Village Panchayats should conduct IEC campaign through the various field level functionaries of Government, Bharat Nirman Volunteers, SHGs and the representatives of Civil Society Organizations, in order to build awareness of the scheme among the people.
(4) They should arrange the meeting of beneficiaries either at the level of the Village Panchayat or for a cluster of Village Panchayats, depending on the number of beneficiaries, and facilitate the sensitization of beneficiaries on different aspects of construction of houses and access of support services from different sources. They would proactively promote affordable and green technologies.
(5) The Village Panchayats with the help of the Gram Sabha would identify families who cannot construct houses on their own and help in identifying NGOs/Civil Society Organizations of repute to handhold such beneficiaries to construct the houses in time.
(6) They would facilitate the beneficiaries in accessing materials required for construction at reasonable rates and also the masons
needed for construction.
- 31 -
(7) The Village Panchayats would ensure convergence of schemes using resources over which they have command like MGNREGS, BRGF, State and Central Finance Commission grants, etc.
(8) They should discuss the progress of the scheme in their monthly meetings.
(9) They should also proactively assist the social audit teams to conduct Social Audit.
(10) For coordinating different activities under IAY, a special Functional Committee or Task Force should be set up in each Village Panchayat consisting of the elected head, Chairpersons of Standing Committees, volunteers from the SHG network, representatives of NGOs/Civil Society Organizations and local officials.
7.2 The Panchayat at the intermediate level should provide technical assistance especially relating to building materials and construction technologies. It should act as a resource centre to assist the beneficiaries on a continuing basis. It should be the custodian of the publications and electronic material on different aspects of construction and proactively disseminate their contents.
7.3 The Intermediate Panchayat should also redress grievances of the beneficiaries. It should undertake field-level monitoring and send reports to the Zilla Parishad. It has a special role in getting the houses completed without delay.
7.4 The Zilla Parishad should coordinate the overall implementation of the programme in the district by ensuring that the different provisions of the guidelines are adhered to in practice. Wherever there are delays and other problems, the Zilla Parishad has to sort out the issues concerned. It should monitor the progress of the scheme and ensure smooth flow of funds.
In order to enable the Panchayats to play their role effectively, the State
Government should do the following:-
(1) Organise training programme to equip the Panchayats to carry out the tasks assigned to them.
(2) Provide the Panchayats IEC material particularly on materials and building technologies.
- 32 -
(3) Provide share of administrative expenses commensurate with workload.
(4) Issue an order specifying the roles and responsibilities of each tier of Panchayat as appropriate to the States. This should be done within six months.
Note:- It is clarified that in States where there are no Panchayats, democratic institutions at the appropriate levels should be assigned the roles specified for Panchayats. In States where Gram Panchayats are too small, clusters of Gram Panchayats should be formed and enabled to perform their tasks.
****
- 33 -
CHAPTER – 8
ACCOUNTABILITY
8.1 Disclosure
8.1.1 Details of implementation of all components of IAY should be proactively disclosed in the local area and the following are mandatory:-
(i) Wall paintings or notice boards at the Village Panchayat level;
(ii) Proactive dissemination of details to all organizations of SHGs under
NRLM.
8.1.2 The details should include the following:-
(i) The names and addresses of families in the five year priority list.
(ii) The names and addresses of the beneficiaries selected for a year under different components.
(iii) The norms used for selection.
(iv) Money each family is eligible and the amount dispensed. (v) Date of completion of the house.
8.1.3 There should be compulsory and pro-active disclosure of the following to the beneficiaries through local level officials, Anganwadi Workers, ASHAs, SHG Leaders and Community Resource Persons:-
(1) The rights and entitlements of the beneficiaries
(2) The responsibilities of the beneficiaries
(3) Registration in AwaasSoft, including entry of mobile number in the system
(4) Support services available from the State Government and the persons/agencies responsible for providing them
(5) The various options for appeal and grievance redressal.
8.1.4 There should be concurrent independent monitoring using Community Resource Persons, representatives of civil society organizations and students from Higher Secondary Schools and Colleges. They should be given a format covering
the points mentioned above.
- 34 -
8.1.5 Photographs of every beneficiary should be taken in the front of existing house as well as in front of the new IAY house after construction, in addition to different stages.
8.2 Audit
The State will ensure that the accounts at all levels are audited by a Chartered Accountant selected from a panel approved by the C&AG. The auditing should be completed before 31st August of the next financial year. All the IAY Accounts at all levels shall also be open to audit by the C&AG as well as by the Internal Audit Wing of the Pay and Accounts Office of the Ministry of Rural Development.
8.3 Social Audit
8.3.1 Social Audit is a continuous and ongoing process, involving public vigilance and verification of implementation of the scheme. Formal Social Audit is to be conducted in every Gram Panchayat at least once in a year, involving a mandatory review of all aspects.
8.3.2 The basic objective is to ensure public accountability in implementation and provide an effective means for its achievement. The process combines people's participation and monitoring with the requirements of the audit discipline. It is a fact finding process and not a fault finding process.
8.3.3 Social Audit Units (SAU) set up by the state government under MGNREGA can be roped in to facilitate conduct of Social Audit of all components of IAY including implementation of the house site programme. Resource Persons identified by the SAU at different levels may be involved with the Gram Sabha in conducting social audit. The resource persons can be drawn from primary stakeholders, civil society organizations, SHGs under NRLM, Bharat Nirman Volunteers (BNV) and other organizations or individuals, who have knowledge and experience in working for the rights of the people. The Quality Monitors and Community Resource Persons under the scheme should be a part of the Social Audit process.
8.3.4 The Social Audit process can be scheduled for an entire year and carried out in a staggered manner all over the State. The process of beneficiary
selection for different components of IAY for the next year and the social
- 35 -
auditing of the implementation of the previous year can be carried out in the same Gram Sabha meeting. The beneficiaries who have received the benefits in the past year and those in the IAY priority list should be informed about the date and venue where the Gram Sabha would conduct the audit.
8.3.5 The following procedure is suggested for social audit:-
(1) State Government should issue an order enabling the Social Audit Unit set up under MGNREGS to take up the social audit of IAY. The Social Audit Unit should identify resource persons at the district, block and village levels. It should prepare reporting formats and issue detailed guidelines for social audit of IAY.
(2) Social Audit Teams should be set up at the Village Panchayat level or for a group of Village Panchayats. Women SHG leaders should, as far as possible be included in the team, as also those from disadvantaged social groups like SCs/STs, persons with disability and so on. The Social Audit team members should not be from the Village Panchayat in which they are doing social audit. Adequate training should be given to all the resource persons and Social Audit team members.
(3) A time-table for Social Audit should be prepared at the beginning of the year in such a way that at least one audit is conducted every year.
(4) The Social Audit Unit may be provided all details of implementation of IAY like guidelines, five year priority list, annual select list, past beneficiary lists, payments made, support services provided, monitoring visits made from different levels, major inspections carried out etc.
(5) The Social Audit Teams and the resource persons along with the beneficiaries shall verify thefollowing, with respect to processes and procedures:-
(i) Five Year priority list of all components of IAY.
(ii) Selection of beneficiaries for the year including changes made if any and its justification – for all components of IAY
(iii) Progress of completion of houses
- 36 -
(iv) Quality of construction of houses
(v) Quality of house sites distributed
(vi) Quantum and timeliness of payments
(vii) Bank loans obtained by the beneficiaries including DRI loans
(viii) Other debt incurred by the beneficiaries
(ix) Support services provided
(x) Grievances and their proper and timely redressal
(6) Following the verification mentioned above, the Gram Sabha shall meet chaired by an elderly person who is not part of the Village Panchayat or implementing agency to discuss the findings of the Social Audit Team. The Gram Sabha will be a platform for all beneficiaries and persons in the five year priority list and annual select list and other villagers to raise issues related to implementation of IAY. Government may depute an observer to the Social Audit Gram Sabha. The entire proceedings should be videographed, suitably compressed and uploaded in the website.
(7) The Social Audit reports should be prepared in the local language and signed by the Chairperson of the Social Audit Gram Sabha and displayed in the notice board of the Village Panchayat. The Village Panchayats and others responsible for implementation should take follow up action on the findings of Social Audit and send the action taken report to the State Social Audit Unit. This should also be placed before the next Social Audit Gram Sabha.
8.4 Grievance Redressal
8.4.1 There should be a grievance redressal system at the block and district level to look into the following:-
1) Irregularities in selection of beneficiaries
2) Irregularities in release of instalments
3) Non provision of support services
4) Non provision of convergence schemes
- 37 -
5) Refusal to agree to the choice of design/construction technology made by the beneficiary
8.4.2 Multiple modes must be provided to the complainant for registering a complaint with the authorized officer including written complaints and complaints made through the provision available on the website. All such complaints must be duly acknowledged with a dated receipt. Time limits must be set for disposal of complaints. Monitoring of disposal of complaints must be done at the next higher level every month. The report generated by the MIS can be used to monitor the action taken on grievances.
****
ROLE OF PANCHAYATS
7.1 The Gram Panchayats have the most critical role to play in the actual implementation of the scheme. They include the following:-
(1) The baseline survey using Socio-Economic Caste Census data would be coordinated by the Village Panchayats. They would also facilitate the participatory identification of the eligible beneficiaries.
(2) They should ensure maximum participation in the Gram Sabha held to finalize the five year priority list and the annual select list of beneficiaries.
(3) The Village Panchayats should conduct IEC campaign through the various field level functionaries of Government, Bharat Nirman Volunteers, SHGs and the representatives of Civil Society Organizations, in order to build awareness of the scheme among the people.
(4) They should arrange the meeting of beneficiaries either at the level of the Village Panchayat or for a cluster of Village Panchayats, depending on the number of beneficiaries, and facilitate the sensitization of beneficiaries on different aspects of construction of houses and access of support services from different sources. They would proactively promote affordable and green technologies.
(5) The Village Panchayats with the help of the Gram Sabha would identify families who cannot construct houses on their own and help in identifying NGOs/Civil Society Organizations of repute to handhold such beneficiaries to construct the houses in time.
(6) They would facilitate the beneficiaries in accessing materials required for construction at reasonable rates and also the masons
needed for construction.
- 31 -
(7) The Village Panchayats would ensure convergence of schemes using resources over which they have command like MGNREGS, BRGF, State and Central Finance Commission grants, etc.
(8) They should discuss the progress of the scheme in their monthly meetings.
(9) They should also proactively assist the social audit teams to conduct Social Audit.
(10) For coordinating different activities under IAY, a special Functional Committee or Task Force should be set up in each Village Panchayat consisting of the elected head, Chairpersons of Standing Committees, volunteers from the SHG network, representatives of NGOs/Civil Society Organizations and local officials.
7.2 The Panchayat at the intermediate level should provide technical assistance especially relating to building materials and construction technologies. It should act as a resource centre to assist the beneficiaries on a continuing basis. It should be the custodian of the publications and electronic material on different aspects of construction and proactively disseminate their contents.
7.3 The Intermediate Panchayat should also redress grievances of the beneficiaries. It should undertake field-level monitoring and send reports to the Zilla Parishad. It has a special role in getting the houses completed without delay.
7.4 The Zilla Parishad should coordinate the overall implementation of the programme in the district by ensuring that the different provisions of the guidelines are adhered to in practice. Wherever there are delays and other problems, the Zilla Parishad has to sort out the issues concerned. It should monitor the progress of the scheme and ensure smooth flow of funds.
In order to enable the Panchayats to play their role effectively, the State
Government should do the following:-
(1) Organise training programme to equip the Panchayats to carry out the tasks assigned to them.
(2) Provide the Panchayats IEC material particularly on materials and building technologies.
- 32 -
(3) Provide share of administrative expenses commensurate with workload.
(4) Issue an order specifying the roles and responsibilities of each tier of Panchayat as appropriate to the States. This should be done within six months.
Note:- It is clarified that in States where there are no Panchayats, democratic institutions at the appropriate levels should be assigned the roles specified for Panchayats. In States where Gram Panchayats are too small, clusters of Gram Panchayats should be formed and enabled to perform their tasks.
****
- 33 -
CHAPTER – 8
ACCOUNTABILITY
8.1 Disclosure
8.1.1 Details of implementation of all components of IAY should be proactively disclosed in the local area and the following are mandatory:-
(i) Wall paintings or notice boards at the Village Panchayat level;
(ii) Proactive dissemination of details to all organizations of SHGs under
NRLM.
8.1.2 The details should include the following:-
(i) The names and addresses of families in the five year priority list.
(ii) The names and addresses of the beneficiaries selected for a year under different components.
(iii) The norms used for selection.
(iv) Money each family is eligible and the amount dispensed. (v) Date of completion of the house.
8.1.3 There should be compulsory and pro-active disclosure of the following to the beneficiaries through local level officials, Anganwadi Workers, ASHAs, SHG Leaders and Community Resource Persons:-
(1) The rights and entitlements of the beneficiaries
(2) The responsibilities of the beneficiaries
(3) Registration in AwaasSoft, including entry of mobile number in the system
(4) Support services available from the State Government and the persons/agencies responsible for providing them
(5) The various options for appeal and grievance redressal.
8.1.4 There should be concurrent independent monitoring using Community Resource Persons, representatives of civil society organizations and students from Higher Secondary Schools and Colleges. They should be given a format covering
the points mentioned above.
- 34 -
8.1.5 Photographs of every beneficiary should be taken in the front of existing house as well as in front of the new IAY house after construction, in addition to different stages.
8.2 Audit
The State will ensure that the accounts at all levels are audited by a Chartered Accountant selected from a panel approved by the C&AG. The auditing should be completed before 31st August of the next financial year. All the IAY Accounts at all levels shall also be open to audit by the C&AG as well as by the Internal Audit Wing of the Pay and Accounts Office of the Ministry of Rural Development.
8.3 Social Audit
8.3.1 Social Audit is a continuous and ongoing process, involving public vigilance and verification of implementation of the scheme. Formal Social Audit is to be conducted in every Gram Panchayat at least once in a year, involving a mandatory review of all aspects.
8.3.2 The basic objective is to ensure public accountability in implementation and provide an effective means for its achievement. The process combines people's participation and monitoring with the requirements of the audit discipline. It is a fact finding process and not a fault finding process.
8.3.3 Social Audit Units (SAU) set up by the state government under MGNREGA can be roped in to facilitate conduct of Social Audit of all components of IAY including implementation of the house site programme. Resource Persons identified by the SAU at different levels may be involved with the Gram Sabha in conducting social audit. The resource persons can be drawn from primary stakeholders, civil society organizations, SHGs under NRLM, Bharat Nirman Volunteers (BNV) and other organizations or individuals, who have knowledge and experience in working for the rights of the people. The Quality Monitors and Community Resource Persons under the scheme should be a part of the Social Audit process.
8.3.4 The Social Audit process can be scheduled for an entire year and carried out in a staggered manner all over the State. The process of beneficiary
selection for different components of IAY for the next year and the social
- 35 -
auditing of the implementation of the previous year can be carried out in the same Gram Sabha meeting. The beneficiaries who have received the benefits in the past year and those in the IAY priority list should be informed about the date and venue where the Gram Sabha would conduct the audit.
8.3.5 The following procedure is suggested for social audit:-
(1) State Government should issue an order enabling the Social Audit Unit set up under MGNREGS to take up the social audit of IAY. The Social Audit Unit should identify resource persons at the district, block and village levels. It should prepare reporting formats and issue detailed guidelines for social audit of IAY.
(2) Social Audit Teams should be set up at the Village Panchayat level or for a group of Village Panchayats. Women SHG leaders should, as far as possible be included in the team, as also those from disadvantaged social groups like SCs/STs, persons with disability and so on. The Social Audit team members should not be from the Village Panchayat in which they are doing social audit. Adequate training should be given to all the resource persons and Social Audit team members.
(3) A time-table for Social Audit should be prepared at the beginning of the year in such a way that at least one audit is conducted every year.
(4) The Social Audit Unit may be provided all details of implementation of IAY like guidelines, five year priority list, annual select list, past beneficiary lists, payments made, support services provided, monitoring visits made from different levels, major inspections carried out etc.
(5) The Social Audit Teams and the resource persons along with the beneficiaries shall verify thefollowing, with respect to processes and procedures:-
(i) Five Year priority list of all components of IAY.
(ii) Selection of beneficiaries for the year including changes made if any and its justification – for all components of IAY
(iii) Progress of completion of houses
- 36 -
(iv) Quality of construction of houses
(v) Quality of house sites distributed
(vi) Quantum and timeliness of payments
(vii) Bank loans obtained by the beneficiaries including DRI loans
(viii) Other debt incurred by the beneficiaries
(ix) Support services provided
(x) Grievances and their proper and timely redressal
(6) Following the verification mentioned above, the Gram Sabha shall meet chaired by an elderly person who is not part of the Village Panchayat or implementing agency to discuss the findings of the Social Audit Team. The Gram Sabha will be a platform for all beneficiaries and persons in the five year priority list and annual select list and other villagers to raise issues related to implementation of IAY. Government may depute an observer to the Social Audit Gram Sabha. The entire proceedings should be videographed, suitably compressed and uploaded in the website.
(7) The Social Audit reports should be prepared in the local language and signed by the Chairperson of the Social Audit Gram Sabha and displayed in the notice board of the Village Panchayat. The Village Panchayats and others responsible for implementation should take follow up action on the findings of Social Audit and send the action taken report to the State Social Audit Unit. This should also be placed before the next Social Audit Gram Sabha.
8.4 Grievance Redressal
8.4.1 There should be a grievance redressal system at the block and district level to look into the following:-
1) Irregularities in selection of beneficiaries
2) Irregularities in release of instalments
3) Non provision of support services
4) Non provision of convergence schemes
- 37 -
5) Refusal to agree to the choice of design/construction technology made by the beneficiary
8.4.2 Multiple modes must be provided to the complainant for registering a complaint with the authorized officer including written complaints and complaints made through the provision available on the website. All such complaints must be duly acknowledged with a dated receipt. Time limits must be set for disposal of complaints. Monitoring of disposal of complaints must be done at the next higher level every month. The report generated by the MIS can be used to monitor the action taken on grievances.
****
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