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TRANSCRIPT
i
Need Assessment Study of Urban Local Bodies and Panchayati Raj
Institutions, Rajasthan conducted by Shiv Charan Mathur
Social Policy Research Institute, Jaipur
Dear Sir/Madam
The Fourth State Finance Commission entrusted the
responsibility of conducting a study on “Need Assessment of Urban Local
Bodies and Panchayati Raj Institutions” to the SCM Social Policy Research
Institute for taking up an assessment of the core functions identified by the
Commission. The objective of the study is to ensure that devolution is made in
accordance with the ground realities and the funds so devolved are efficiently
utilized by the Local Bodies for core functions in their respective area.
The Fourth State Finance Commission is expected to present it’s
final report to Her Excellency, the Governor of Rajasthan latest by30th
September, 2013. Before finalization of the report, Commission invites your
valuable views/suggestions on the recommendations/findings contained in the
Study Report.
The Study Report is as follows:
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Need Assessment of U LBs & Panchayati Raj Institutions
Contents
Foreword iii
Preface & Acknowledgements iv
List of Acronyms v-vi
1.
Introduction
1-26
2. Research Methodology 27-35
3. The Status of Panchayati Raj Institutions (PRIs) 36-65
4. The Status of Urban Local Bodies (ULBs) 66-112
5. Norms for the Core Functions for the PRIs 113-136
6. Norms for the Core Functions for the Urban Local Bodies 137-157
7. Human Resource and Staffing in Urban Local Bodies 158-171
8. Success Stories 172-189
9. Summary & Suggestions 190-204
Annexures 205-263
1. Tools for PRIs 205-229
2. Tools for ULBs
230-263
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Need Assessment of U LBs & Panchayati Raj Institutions
Foreword
Under the 73rd and 74th amendments of the Constitution, a mandatory provision was
made for constituting a Finance Commission by the State Government to review the
financial position of the Local Bodies - both urban and rural. It is praiseworthy that
the Fourth State Finance Commission of Rajasthan under the Chairmanship of Dr.
B.D. Kalla, took the initiative of conducting an in-depth enquiry into the physical and
financial needs of the local bodies in major sectors and the funds required for each
sector thereof. The Commission delegated the study on the Need Assessment of
Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy
Research Institute for taking up an assessment of the core functions identified by the
Commission. This included assessment of the financial needs, examination of the
efficacy and gaps in implementation of the core functions and suggesting physical
and financial norms for these functions.
The present report is the first of its kind in the State of Rajasthan and I am sure that
this would immensely help the Finance Commission in evolving a formula for
equitable distribution of the grants to be given to the third tier of governance.
Further, the report also comes up with suggestions to enhance the efficiency of the
local bodies so that the benefits really accrue to the common people as desired by the
Constitution of India.
(Dr. Sudhir Varma) Director, SCM SPRI
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Need Assessment of U LBs & Panchayati Raj Institutions
Preface & Acknowledgments
Needs assessment is practically ubiquitous today among planners and designers, often identified as the first step in any planning or design process. The discrepancy between the present condition and desired condition is measured to appropriately identify the need. The need assessment is a process undertaken with an aim to enhance the efficiency of a system. The Fourth State Finance Commission entrusted the responsibility of Need Assessment of Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. The aim is to evolve formulae for an equitable allocation of grants to these decentralized development units - panchayats and urban local bodies. The task was a huge challenge keeping in view the large scope as well as a number of sectors that needed to be consulted during the process of the study. Keeping in view, the objectives and research questions, detailed tools were designed, field tested and adopted to the local settings. A two day intensive training programme was conducted at the Institute for the investigators. The investigators were then put on observed field work. Data was collected according to the prescribed methodology for the study. Data thus collected, were carefully entered, cleaned and analyzed. The findings have been tabulated and suitably documented. We believe the findings would be useful for the State Finance Commission for ensuring that the devolution is made in accordance with the ground realities and assure that they are efficiently utilized. On behalf of the institute, I express our deep sense of gratitude to Hon‘ble Dr BD Kalla, Chairperson, Fourth State Finance Commission for trusting our abilities and supporting us throughout the study. The support of the SFC Members, Shri Raj Pal Singh Shekhawat and Dr JP Chandelia are gratefully acknowledged. A special mention of Dr PL Agarwal, Member-Secretary, SFC whose interest and involvement in the Study was a source of inspiration for us. Thanks are also due to Shri SS Rajawat and SL Jain for their valuable support. The study would not have been competed without the support of the elected representatives at all levels, CEOs, BDOs, EOs and officials of the PRIs and ULBs who continuously supported us by providing the required information despite their busy and demanding schedules. At the Institute, we are indebted to Shri Pradeep Mathur, Chairman for his support. Wirds fail me to express the gratitude to Dr. Sudhir Varma, Director, SCM SPRI for his constant guidance, supervision and contribution in writing the report. Thanks are due to the team membersespecially Ms Sonu Pareek, Ms. Neha,Shri Pradeep Sharma, Shri Yogeshwar Singh, Shri Ranveer Singh, Shri Yogesh Chhipa, Shri Ramakant and Shri Vinod Kewalramani.
(Manish Tiwari) Joint-Director, SCM SPRI
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Need Assessment of U LBs & Panchayati Raj Institutions
List of Acronyms
BOT Build Operate and Transfer
BPL Below Poverty Line
BSR Basic Scheduled Rate
CC Road Cement Concrete Road
CEO Chief Executive Officer
CFC Central Finance Commission
CFL Compact Fluorescent Lamp
DDP Desert Development Programme
DLB Department of Local Bodies
DPAP Drought Prone Area Program
DRDA District Rural Development Authority
EFC Eleventh Finance Commission
EO Executive Officer
FGD Focus Group Discussion
GOI Government of India
GOR Government of Rajasthan
GPF General Provident Fund
JDA Jaipur Development Authority
JMC Jaipur Municipal Corporation
LED Light Emitting Diode
MNRE Ministry of New and Renewable Energy
MNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme
NIUA National Institute for Urban Affairs
NTR Net Tax Revenue
O&M Operations and Maintenance
PHED Public Health and Engineering Department
PPP Public-Private Partnership
PRI Panchayati Raj Institutions
PSP Single Phase Pump
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Need Assessment of U LBs & Panchayati Raj Institutions
PWD Public Works Department
RIICO Rajasthan State Industrial Development and Investment Corporation
RIUA Rajasthan Institute for Urban Development
RUIDP Rajasthan Urban Infrastructure Development Project
RLB Rural Local Bodies
RPSC Rajasthan Public Service Commission
RSEB Rajasthan State Electricity Board
RVVNL Rajya Vidyut Vitran Nigam Limited
SFC State Finance Commission
SGSY Swarn Jayanti Gramin Swarozgar Yojana
SHG Self Help Group
SPV Solar Photovoltaic
SWM Solid Waste Management
TAD Tribal Area Development
TFC Thirteenth Finance Commission
UDT Urban Development Tax
UIT Urban Improvement Trust
ULB Urban Local Bodies
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Need Assessment of U LBs & Panchayati Raj Institutions
Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) have
acquired Constitutional status after the enactment of the Constitution (Seventy-third
and Seventy Fourth) Amendment Act. The Amendment Act' 92 in Part IX and IXA
has made mandatory provisions in Article 243-I for constituting a Finance
Commission by the Government of the State to review the financial position of the
panchayats and to make recommendations to the Governor. The principles which
should govern the review are as follows:
A (i) Distribution between the State and the panchayats of the net
proceeds of the taxes, duties, tolls and fees leviable by the State which
may be divided between them under this Part and the allocation
between the panchayats at all levels of their respective shares of such
proceeds
(ii) Determination of the taxes, duties, tolls and fees which may be
assigned to, or appropriated by, the panchayats.
(iii) Grants-in-aid to the panchayats from the Consolidated Fund of the
State.
B Suggest measures needed to improve the financial
position of panchayats.
C Any other matter referred to the Finance Commission by the Governor in the
interests of sound finance of the panchayats.
Introduction
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Need Assessment of U LBs & Panchayati Raj Institutions
Article 243 (y) also makes similar provisions analogous to Article 243-I for
constituting a Finance Commission to review the financial position of the
municipalities and to make recommendations to the Governor as in the case of
panchayats.
The present Fourth State Finance Commission under the esteemed leadership
of Hon‘ble Dr. BD Kalla has desired to conduct a scientific inquiry into the present
minimum physical and financial needs of these bodies, funds required and the
financial gaps that need to be filled with the support of the grants by the
Commission. The aim is to evolve formulae for an equitable allocation of grants to
these decentralized development units- panchayats and urban local bodies.
The Commission had asked the Shiv Charan Mathur Social Policy Research
Institute, Jaipur vide their letter dated 29th February 2012 to take up a Need
Assessment Study of core functions of both the Urban Local Bodies as well as
Panchayati Raj Institutions. The following are the functions to be studied:-
(i) To take up a need assessment study of the core functions of the urban
local bodies and the panchayati raj institutions of the State. The core
functions, which the Institute has been asked to study, are the
following:-
(a) Cleaning of waste water drainage in public places (including public
conveniences).
(b) Disposal of solid waste
(c) Public lighting
(d) Sewerage
(e) Maintenance of roads, public properties, public parks and
community centres.
(f) Maintenance of cremation and burial grounds
(g) Providing drinking water
(h) Public health and sanitation
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Need Assessment of U LBs & Panchayati Raj Institutions
The Institute was expected to
i. Make an in-depth assessment of financial needs for
implementing these core functions
ii. Examine the efficacy and gaps in the implementation of these
functions &identify the problems faced by the PRIs and ULBs
iii. Suggest physical and financial norms for fulfilling the core
functions
iv. Suggest norms for allocation of funds by the State Finance
Commission
v. Suggest a staffing pattern for the ULBs and thePRIs to enable
them to perform the core functions regularly and effectively.
The present chapter details the present scenario of socio-economic
development of the State with a focus on the identified core issues, a general
summary of the recommendations of the earlier state commissions and a review of
literature.
About the State
Rajasthan, the largest State in the country in terms of geographical area, is
located in the north-western part of the country. It has a geographical area of
3,42,239 sq.km, which constitutes 10.41 per cent area of the country and 5.67 per cent
of national population (Census, 2011 : Provisional Population
Tables).Physiographically, the State can be divided into major four regions, namely
the western desert; and sandy plains, the Aravalli hills: running south-west to north-
east starting from Gujarat and ending in Delhi, the eastern plains: with rich alluvial
soils and the south-eastern plateau. Mahi, Chambal and Banas are the three major
rivers of the State. The State has varied climatic conditions ranging from the semi-
arid to the arid. It is administratively divided into 7 divisions and 33 districts.
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Need Assessment of U LBs & Panchayati Raj Institutions
State Profile
Rajasthan has 33 districts that are divided into 244 tehsils, 248 panchayat
samities, 9,177 village panchayats and 184 municipalities (Statistical Abstract, 2011
DES, GoR). The salient features of the State vis-a-vis India are given in the table
below:
Table 1.1
Indicator Source Rajasthan India
Total population Census 2011 6,86,21,012 1,21,01,93,422
Density (Per Sq. Km.) Census 2011 201 382
Decadal Growth (%) Rate Census 2011 21.44 17.64
Rural Decadal Growth Rate Census 2011 19.05 12.18
Urban Decadal Growth Rate Census 2011 29.26 31.80
Crude Birth Rate SRS 2011 26.7 22.1
Crude Death Rate SRS 2011 6.7 7.2
Total Fertility Rate SRS 2011 3.1 2.5
Infant Mortality Rate SRS 2011 55 Rural 61 Urban 31
47 Rural 51 Urban 31
Maternal Mortality Ratio SRS 2007 – 09 388 212
Sex Ratio Census 2011 926 940
Child Sex Ratio (0-6 Years) Census 2011 883 914
BPL Population (%) BPL Census-02 22.66 % NA
Scheduled Caste population Census 2001 9.69 million 166.64 million
Scheduled Tribe population Census 2001 7.10 million 84.33 million
Literacy Rate Census 2011 67.06 74.04
Female Literacy Rate Census 2011 52.7 65.5
Rural Female Literacy Rate Census 2011 46.3 58.8
The above table reveals that the socio-econmic indicators of the State
still lag behind thenational averages. Sex ratio of Rajasthan has shown an
increasing trend from 921 in 2001 to 926 in 2011. Yet it is significantly less
than the sex ratio of India i.e. 940 in 2001. The Child sex rate is worse at
883. The rural women the literacy rate is any which becoming a major
hurdle in conveying health information. The state has a literacy rate of
61.03 in 2001, which is also lower than national average of 65.38 recorded
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Need Assessment of U LBs & Panchayati Raj Institutions
in 2001. The literacy rate for females is only 52.7 for rural women the
literacy rate is only 46.3 which is becoming a major hurdle in conveying
health information.
Three primary demographic indicators elicited in recent nationwide
survey have revealed maternal mortality ratio of 388 per lakh live births,
(SRS 2004-06) infant mortality rate of 55 per thousand live births, and a
total Fertility Rate of 3.1 (SRS 2011).
Growing Needs of the Urban Population
As per details from the Census 2011, Rajasthan has a population of 6.86
crores, an increase from 5.65 crores in 2001. The population growth in this decade
was 21.44 percent while in the previous decade it was 28.33 percent. The pace of
growth has slowed down, but isstill higher than the all India level. The population of
Rajasthan formed 5.67 percent of the Indian population in 2011. In 2001, the figure
was 5.49 percent. Out of a total population of Rajasthan, 24.89% people live in urban
towns, population of which, in the last 10 years has increased by 29.26 percent. The
rural population growth rate recorded for the decade (2001-2011) was 19.05%. The
rate of growth in the urban area (29.3) is far more than the rural area.
Districts having the highest urban growth rates in 2011 are Kota (60.30),
Jaipur (52.51), Ajmer (40.09), Jodhpur (34.30), Bikaner (33.95), Churu (28.24) and
Ganganagar (27.20). The districts which experienced the largest migration from rural
areas to urban were Kota, Baran, Alwar, Jaipur, Sikar and Rajsamand. Looking to
the fast growing minimum needs of the urban areas in the core sectors these fast
growing districts may need special provision from the State Finance Commission.
Panchayati Raj Institutions
Though the Panchayati Raj Institutions have been in existence in India since
times immemorial, they have not yet achieved the dignity of empowered bodies at
the village level owing to several reasons. Perhaps they were more powerful before
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Need Assessment of U LBs & Panchayati Raj Institutions
the formal Panchayati Raj system came into existence on 2nd October, 1959 which
was followed by the 73rd Constitutional amendment in 1992. The period between
1959 and 1992 was merely symbolic with the idea of community development at its
peak – may be to fulfill Mahatma Gandhi‘s dream of village governance. The so
called elected bodies during this period suffered from prolonged supersessions
resulting in irregular elections as the Parliament and the Legislative Assemblies
feared erosion of their own political and administrative powers. The elected
Panchayati Raj bodies had extremely insufficient representation of weaker sections
like scheduled castes and scheduled tribes and women. Women perhaps were
present only as ornaments and were co-opted because hardly any was ever given a
ticket to fight elections. There was inadequate devolution of powers and almost no
financial resources. This was totally contrary to the Directive Principles of State
Policy which stated that the State shall take steps to organize village panchayats and
shall endow them with such powers and authority as may be necessary to enable
them to function as units of self-governance.
Keeping in view the historical blunders committed in the earlier experiments
and the the growing demand for decentralized governance system in a globalised
era, the Central Government in 1992 introduced the 73rd and 74th Amendments to
the Constitution. Many provisions were incorporated under the Amendments with
the intention of making panchayats and urban local bodies as self-governing
institutions.
However, we would like to emphasize that self-governance in the spirit of the
Constitution is missing even after 20 years of the amendments. The only feature
distinguish is regular elections to these bodies. The State Finance Commissions have
also come into existence and are devolving funds to the third tier every five years.
Another important reason for the Constitutional amendments was the
reservation for women in the third tier of local governance. This was a provision
brought about specially for bringing women as major policy planners at that level
so that they may benefit directly from the development process. It meant that a
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Need Assessment of U LBs & Panchayati Raj Institutions
proportionate grant from the State Finance Commissions should be spent for
improving their status.
It has been proved that the concept of core functions for women is different
from that of men. It may be pointed out that rural women might give the topmost
priority to drinking water followed by naalis flowing through the internal village
roads and men to public lighting and improving internal roads on which they ply
their animal or motor driven vehicles. Similarly, the urban women may prioritise
solid waste management and sanitation compared to men again preferring road
lights followed by public parks.
The funds flowing from the state or central level, not linked with any
programme or scheme, are very meagre and lack any devolution design. The
transfers are made at the convenience and mercy of State governments, sometimes as
when a financial year is ending.
A look at the financial position of Panchayati Raj districts in Rajasthan
The following tales indicate the financial status of PRIs in
Rajasthan and the poor efforts made to generate sources of own income. However,
we cannot blame only the PRIs for poor local tax efforts. They hardly have any fiscal
autonomy.
Table 1.2 Receipts from the State Government/DRDA
S.No. Year Zila Parishad Panchayat Samiti
Receipts from the State
Own Revenue Receipts from the
State
Own Revenue
1 2005-06 28222.00 166.81 50078.23 995.24
2 2006-07 30515.83 229.47 52627.28 996.57
3 2007-08 41406.97 234.19 45016.24 846.76
4 2008-09 57219.91 389.24 46095.24 992.01
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Need Assessment of U LBs & Panchayati Raj Institutions
(` in lakh)
Source:Memorandum for IVth SFC, on the basis of information from 32 Zilla Parishad & 22 Panchayat samities
The above table proves the near total depending on the State Government for
funds. The own revenue of the Zila Parishad was mere 0.5 percent of the total
Receipts from the State while it was about 2 percent at the panchayat samiti level.
Table 1.3 Grant Received by the PRIs during 2005-06 to 2009-10
(` in lakh)
2005-06 2006-07 2007-08 2008-09 2009-10 Total
Salary and Allowances 13495.92 13064.32 17462.58 24089.00 29950.08 98061.90
SFC - III 15757.00 18000.04 18010.00 18010.00 49079.00 118856.04
TFC 24600.00 22293.75 14606.25 36900.00 24600.00 123000.00
Other Schemes 78300.23 83143.11 86423.21 103315.15 123491.31 474673.01
Octroi Reimbursement 476.00 476.00 476.00 476.00 476.00 2380.00
Total 132629.00 136977.22 136978.04 182790.15 227596.39 816970.95
Source:Memorandum for IVth SFC, on the basis of information from 32 Zilla Parishad & 22 Panchayat samities
The above table reveals that the grants received by the PRIs show an
increasing trend from 2005-06 to 2009-10. The major heads include scheme grants
(58.1%), SFC and TFC Grant (29.6%) and salary component (12%). It indicates that
the capacity of the PRIs must be enhanced to effectively utilize increasing funds
being allotted to the PRIs. The Finanace Commission Grants are also an important
source of of grants to the PRIs and it must be ensured that they are untilized
efficiently so as to become a source of development in the rural areas.
It is also a worry that the expenditure incurred by these bodies is far less than
the meagre funds provided. The following statement for the years 2005-06 to 2009-10
reflects it:-
5 2009-10 79012.90 205.35 44478.41 1233.98
Total 236377.61 1225.06 238295.40 5064.56
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 1.4 Income-Expenditure statement in Panchayati Raj Institution in Rajasthan
(` in lakh)
SN Head Zila Parishads
Panchayat Samitis
1. Income in Last Five Years
1. Tax Revenue 467.06 939.91
2. Non Tax Revenue 758.00 4124.65
Total (A) 1225.06 5064.56
2. Receipts from the State Government/DRDA (B) 236377.61 238295.40
Total Receipts (A+B) 237602.67 243359.96
3. Expenditure in Last Five Years
1. Salary and Allowances 13043.36 75459.56
2. Expenditure Development Works 144960.35 150821.47
3. Expenditure on Maintenance 709.14 2676.19
Total 158712.85 228957.22
Source: Department of Rural Development & Panchayati Raj, GoR
It is, obviously, a reflection in the efficiencies in execution of
projects by these bodies. It is indicated that a review of the capacity of the staff
available to these bodies needs to be carried out.
Urban Local Bodies
The Local self- government institutions have always existed in India in one
form or another. The present form of urban local government owes its genesis to the
British rule. The first such body called a Municipal Corporation was set up in
Madras in 1688 and was followed by the establishment of similar corporations in
Bombay and Calcutta in 1762. The tradition of local service delivery being the
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Need Assessment of U LBs & Panchayati Raj Institutions
explicit mandate for local government began with Samuel Laing, member of the
Viceroy‘s Council, in the Budget Speech (1861-62) proposing that local services
should be based on local resources. Lord Mayo‘s Resolution of 1870 introduced the
concept of elected representatives in the municipalities. Lord Ripon is considered to
be the founding father of urban local government as he devised the concept of
municipal authorities as units of self-government. His resolution of 18 May 1882 on
local self-government dealt with the constitution of local bodies, their functions,
finances and powers and laid the foundation of local self-government in modern
India. Since then the structure of municipal bodies has remained by and large the
same even though the number of urban areas has increased and their problems have
become more and more complex.
After independence, the Constitution of India was framed on federal
principles. Indian Constitution divided the government functions in three lists:
centre, state and concurrent. Local government bodies are covered in the State List.
Initially the extent of a municipality‘s power as well as the extent of government
control over a municipality/ municipal council depended on the statute enacted for
its creation. Presently, the statutes confer wider regulatory and supervisory powers
on the state government. This is due to two reasons: firstly, the Constitution does not
demarcate the power and the duties of the municipal authorities and secondly in the
absence of any clear-cut demarcation, it is obvious that state governments will tend
to control municipal authorities.
The Rural-Urban Relationship Committee set up by the Government of India
in 1963, pointed out that the local governments should not merely remain
instruments of political education and civic conscience but should play a role in the
promotion of social and economic development of local communities as well as be
an integral part of the Central Government. Entry 5 of the State list in the Seventh
Schedule of the Constitution of India gives legislative powers to the State with
regards to municipal laws, establishments, constitution, and powers of local
governments.
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Need Assessment of U LBs & Panchayati Raj Institutions
The functions of municipalities even during the British raj included public
work, maintenance of roads, provision of lighting, medical facilities and education,
etc. Today, sanitation is the biggest core function of urban local bodies. In Rajasthan,
health, education and drinking water are not in their domain.
As mentioned above, the financial position of local bodies has been very poor
in relation to the services and duties required of them ever since they came into
existence during the British Raj. In the opinion of the Simon Commission the main
causes of failure of local self government were lack of trained staff, inadequate
efforts of elected representatives in tapping resources through local taxes, and lack
of consistency between amount of grant-in-aid and financial responsibilities. All
these drawbacks still persist. With growing urbanisation, the concerns for
governance in the urban areas have assumed greater importance. Rajasthan ranks
twenty first in India in terms of urbanization. Rapid urbanisation has led to an
alarming deterioration in the quality of life of urban dwellers, who have to cope with
poor sanitation and disposal of solid waste, water shortage, pollution, poor transport
system, frequent epidemics, inadequate health facilities etc. Sewerage, sanitation,
waste water disposal and management of solid waste in the cities are dismal.
Table 1.5 Municipalities in Rajasthan
SN Level Numbers
1. Municipal Corporations 5
2. Municipal Councils 30
3. Municipal Board Grade II 19
4. Municipal Board Grade III 58
5. Municipal Board Grade IV 72
Total 184
Source:Annual Report, LSG Department, Government of Rajasthan, 2012
Presently, there are five Corporations, namely; Jaipur, Jodhpur, Kota, Ajmer
and Bikaner. The other categories are: - First class Municipal Councils (30) having a
population between one and five lakh. In his budget speech 2012 the Hon‘ble CM
announced all the Municipalities of District Headquarters were to be treated as
Municipal Councils thus raising the number of Municipal Council from 13 to 30.
Municipal Boards having a population below one lakh are further sub-divided into
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Need Assessment of U LBs & Panchayati Raj Institutions
(a) Second category (19) with population between 50000 to 99999 or Municipalities at
the District Headquarters (b) Third category (58) with population between 25000 and
49999 (c) Fourth category (72) with less than 25000 people.
Financial Condition of Urban Local Bodies
While the expenditure responsibilities of municipalities are increasing day by
day, their own efforts for revenue generation have more or less remained stagnant.
There is a complete mismatch between the expenditure responsibilities of urban
local bodies and their revenue augmentation efforts. Even after the 74th
Constitutional Amendment, the financial position of the municipal institutions in
Rajasthan has not improved commensurate with their functions and responsibilities.
Further, the position of the smaller municipalities is much worse, and at
times, they find it difficult to even meet their establishment costs. Their performance
has been dismal with regard to augmentation of resources to carry out these
functions. Even the statutory avenues of raising resources remained either
unexploited or under exploited, due to complete apathy of the public representatives
to resort to revenue augmentation measures. The ULBs with inadequate taxation
efforts, coupled with inefficient financial management, render the municipal services
far from a satisfactory level. One major hurdle faced by the ULBs is that they do not
have anything worth to tell the people on the quality of services provided by them to
ask for fresh user charges.
In spite of this indifferent attitude of the local bodies, the government is
continuously pouring money into the ULBs without suitable returns from them in
areas like sanitation, collection and disposal of waste, street lighting, sewerage
disposal, maintenance of municipal roads, etc. The poor performance of the ULBs is
in clear violation of the 74th Amendment which had required suitable action on all
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Need Assessment of U LBs & Panchayati Raj Institutions
these functions. SFC may like to decide to uphold the Constitutional obligation and
link its grants to a certain level of satisfactory work done by the recipients.
Today, with constantly bickering elected members in local bodies, it has
become extremely difficult to achieve even the minimum level of satisfaction in the
urban areas like manual scavenging, municipal roads, sanitation, sewerage, street
lighting, parking and public conveniences. In-fighting among the elected
representatives has led to most of the funds allocated remaining unutilized as may
be seen from figures below:
Table 1.6
(` in lakh)
SN Type of Body Income (2011-12)
Expenditure (2011-12)
% Utilisation
1 Municipal Councils 14811.93 7773.37 52.48
2 Municipality Grade II 4907.38 4681.76 95.4
3 Municipality Grade III 2006.45 1273.65 63.5
4 Municipality Grade IV 1108.06 930.31 83.9 Source: Department ofUrban Local Bodies, GoR
Efforts to generate own income have also been pathetic. The following figures
show it:
Table 1.7 Position of own Income in total Budget of the ULBs in Rajasthan
(` in crore)
Year Budgeted Amount
Actual Amount including Tax Advances
Own income Percentage
2008-09 2908.11 1730.35 93.14 5.38
2009-10 3497.72 1751.22 112.00 6.4
2010-11 3334.73 1990.00 317.00 1.6
Source: Department ofUrban Local Bodies, GoR
The Earlier State Finance Commissions
The Zakaria Committee report identified the essential function to be
discharged by ULBs and the requirement of financial resources for discharging these
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Need Assessment of U LBs & Panchayati Raj Institutions
functions. Since these estimates related to the year 1956-57, the National Institute of
Urban Affairs, in their report on Urban Development Strategy for the State of
Gujarat Volume-I, revised the cost of these core functions to 1990-91 prices. This
report also provided the low and high norms of thePlanning Commission These are
as under:-
Table 1.8 Norms of the Earlier State Finance Commissions
S.No. Core Services Norms of Zakaria Committee as per
Class of ULBs
Rs. /Capita Planning Commission Norms
Low High
1 Sewerage
A 556 464 696
B 642
C 385
D 291
E 240
2 Storm Water Drains
A 249 114 232
B 223
C 189
D 171
E 146
3 Solid Waste Disposal NA 58 93
4 Roads
A 600 464 696
B 351
C 249
D 180
E 137
5 Street Lighting
A 214 139 139
B 189
C 171
D 163
E 124 Source: Urban Development strategy for the state of Gujarat Vol.I, NIUA, 1995
A. Cities with population of 5 to 20 lakh. B. Cities with the population of 1 to 5 lakh C. Towns with the population of 50000 to 1 lakh D. Towns with the population of 20000 to 50000 E. Towns with the population below 20,000
21
Need Assessment of U LBs & Panchayati Raj Institutions
The First State Finance Commission
The First State Finance Commission adopted the norms of the Zakaria
Committee as indexed in the report of Urban Development Strategy for Gujarat
except for Solid Waste Management where higher norms of the Planning
Commission were adopted.
The First State Finance Commission worked out a total resource requirement
for all kinds of ULB‘s (treating Jaipur in B Class) at Rs.2874 (per capita) and after
deducting the income, reached the resource gap of Rs.1706.01 as follows:
Table 1.9 Resource Requirement as per the First SFC
Type of ULB Roads Street Lighting
Solid Waste
Disposal
Drains Total in `
Corporations 351 189 93 223 856
Councils 249 171 98 189 667
Class II 180 163 58 171 572
Class III 137 124 58 146 465
Class IV 104 87 58 125 374
Source: First State Finance Commission, Govt. of Rajasthan, Jaipur
The Commission recommended that these bodies should exploit their own
resource base and fixed targets for additional resource mobilization also and worked
out a per capita total deficit of Rs.995/-. Based on the gap assessment, a total deficit
of 349.18 crores was calculated for the first year.
The First State Finance Commission also recommended a 2.18% share in the
net tax proceeds of the state taxes to be devolved on the PRIs and ULBs. The amount
so devolved was to constitute a divisible pool from where distribution between PRIs
and ULBs was to be made as per their population ratio 3.4:1. In all, an amount of
Rs.305.60 crores to PRIs and Rs.89.890 crores to ULBs were recommended to be
devolved over the period from 1995-96 to 1999-2000.
Basic objective underlying funding pattern:
22
Need Assessment of U LBs & Panchayati Raj Institutions
(i) To incentivize acceleration of local efforts in mobilizing resources.
(ii) Judicious employment of funds to bring about balanced growth.
(iii) To recognize good work done by some ULBs to promote excellence.
The First State Finance Commission further recommended some incentive
grant by way of cash awards for Best Performance at State and Divisional levels for
ULBs. At the State Level one award for Corporations of Rs five lakh and three for
Councils (Rs.five lakh, three lakh and one lakh) were proposed. Similarly at the
Divisional Level for Class II Municipalities six awards (one in each division) of Rs.
Five lakh, 12 for Class III First and Second in each division for Rs. five lakh and
second for Rs. three lakh, and Class IV Awards (3 in each division), first of Rs.5 lakh,
second for Rs.3lakh and third for Rs. two lakh were proposed. This was not an
additional grant but was from the divisible pool for the ULBs. The cash award was
to be utilized for development works only. It was to be performance linked in
revenue earnings and services rendered to the people in terms of quality and
quantity.
The criteria for assessment of performance were –
(i) The ULB to achieve targets fixed for additional resource mobilization.
(ii) Establishment expenditure not to exceed 10% of total expenditure in
case of corporations, 15%, in case of councils and 20% in case of
Boards.
(iii) Norms in respect of sanitation, street lighting and urban roads were to
be fixed for earning the award.
(iv) The state was to issue strict instructions to ensure utilization of the
amount of cash awards only on development works.
The Second Finance Commission
The Second State Finance Commission fixed norms and worked out
requirement of funds of PRIs as under:
23
Need Assessment of U LBs & Panchayati Raj Institutions
Table 1.10 Second SFC Norms for Gram Panchayat
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Street Lighting No. of electrified villages 36677. 10 poles per village. 40 watt bulb per pole. 10 hours lighting per night.
18.78 93.90
Rs.3.30 Unit Cost 146 Units consumption per pole per year Rs.3.30 x 146 = Rs.482 per pole x 10x36677 =17.68 crore per year + life of a bulb 4 months, 3 bulbs per pole per year.Cost of bulb Rs.10/-. Total requirement Rs.1.10 crore.
2. Sanitation Two labour per day @ Rs. 60/- per day per panchayat for 300 days in a year + 120 for material = Rs.37200/- per g.p.
37200x9189 = 34.18
170.90
3. Maintenance of Roads 11500 km @ Rs24000 perkm 27.60 138
4. Local Maintenance and Office Administration charges
Rs.30,000/- per g.p. annually 9180x30,000=27.57
137.85
5. Maintenance of Public properties, Burial, Cremation grounds, Maintenance of
Rs.50,000/- per g.p. 9189x50,0= 45.95
329.75
24
Need Assessment of U LBs & Panchayati Raj Institutions
schoolsetc.
6. Infrastructure provision for construction of public utilities – toilets, bus sheds, water huts
Rs.2.20 lac one time 9189x2.20 2.216
7. Maintenance of accounts as per EFC
Rs.4000/- per g.p. per annum 9189 x 400 = 3.68
18.40
8. Data base development as per EFC
7.35
Total 998.31
Table 1.11 Second SFC Norms for Panchayat Samitis
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Maintenance of Assets - Buildings and other Assets
Rs.5000/- per panchayat samiti 1.19 5.95
2. Data base development as per EFC
0.16
3. Maintenance of Accounts as per CFC
Rs.4000/- per p.s. per annum 0.09 0.45
4. Establishment 65.00
Total 71.56
Table 1.12 Second SFC Norms for Zila Parishads
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Maintenance of Assets - Zila Parishad Buildings
Rs.50,000/- per z.p. per annum
0.16 0.80
2. Data base Development (EFC)
0.03
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Need Assessment of U LBs & Panchayati Raj Institutions
3. Training of Public Representatives
Rs.50,000/- per panchayat samiti per annum
1.19 5.93
4. Incentive to g.p. for Training
12.57
5. POL Rs.1 lac per z.p. per annum 0.32 1.60
Total Zila Parishad 29.25
Grand total of all PRIs 1099.12
Less Grant recommended by EFC 490.95
Net requirement 608.17
The norms determined for PRI institutional for various services were based
on estimates which were fairly old and need to be re-determined keeping the present
cost for labour etc., Maintenance cost for buildings has to be determined as per
norms of maintenance fixed by PWD.Norms for street lighting would vary as per
size of the village and population.
For Urban Local Bodies
The Second State Finance Commission also worked out the requirement of
funds for core civic services as per norms set up by Zakaria Committee and the
Planning Commission.The requirement of funds so worked out were reduced by the
own income of ULB‘s.The gap in resources was worked out accordingly. It was
Rs.406.08 crores for the year 1999-2000.
The Second Finance Commission did not recommend the entire gap to be
bridged through devolution from State net tax revenue. It observed that since the
requirement of funds for discharging core civic services is quite large, it ought to be
met from plan funds including centrally sponsored and externally funded projects.
The devolution recommended was 2.25% of net tax revenue.
I & II SFC’s
26
Need Assessment of U LBs & Panchayati Raj Institutions
For distribution of divisible funds among districts PRIs, the first SFC
recommended the criteria of incidence of poverty of the district, total rural
population and population in non-DDP /non DPAP/non TAD blocks for
distribution of development grant and for other grants, the criteria was mainly
population.
The second SFC enlarged the scope and recommended the following
parameters and their weights for distribution of entire additional transfers of funds
to PRI institutional at all the three tiers.
Table 1.13 Parameters for Devolution by the Second SFC
S.No. Parameters Weight
1. Population 80%
2. Geographical area 10%
3. Poverty – number of BPL families 5%
4. Level of Literacy 5%
Source: First & Second State Finance Commission, Govt. of Rajasthan, Jaipur
The Third State Finance Commission
The Third State Finance Commission adopted the following parameters for
district-wise distribution of funds for onward devolution to PRIs:
Table 1.14 Parameters for Devolution by the Third SFC
S.No. Parameters Weight
1. Population 60%
2. Geographical Area 20%
3. Poverty represented by number of BPL families 5%
4. Level of literacy 5%
5. SC Population 5%
6. ST Population 5%
27
Need Assessment of U LBs & Panchayati Raj Institutions
Source:Third State Finance Commission, Govt. of Rajasthan, Jaipur
Further distribution amongst the three tiers (gram panchayats., panchayat
samitis and zila parishads was recommended to be made as 85% to gram
panchayats, 12% to panchayat samities and 3% to zila parishads.
The Third State Finance Commission found the criteria of distribution based
on geographical area, BPL families and literacy rate not feasible in respect of urban
local bodies. It, therefore, recommended distribution of 80% amount from the share
in tax revenue among all the urban local bodies based on population. In order to
help financially poor local bodies namely Municipalities Class –II, III and IV to
perform their basic civil functions effectively, it recommended an additional amount
from out of the balance 20%, to be distributed to such II, III & IV class municipalities.
The entire devolved amount was to be passed on as untied funds.
The First State Finance Commission recommended 2.18% of the net proceeds
of State taxes to be devolved on the local bodies, whereas the Second State Finance
Commission recommended 2.25% share of Net Tax Returns of the State. It
recommended only a marginal increase of 0.7% over the recommendation of the First
Commission. The Third State Finance Commission recommended a total devolution
of 3.50% of the net tax revenue of the State which is 1.25% higher than the one
recommended by the Second State Finance Commission. It further recommended
that out of the total devolved amount of 3.50%, 0.50% should be earmarked for
incentivizing the performing local bodies who levy additional or new taxes or
augment their revenue thereby earning are equal amount of their additional revenue
by way of an incentive.
The comparative position of the amounts devolved by all the three State
Finance Commissions is given below:-
Table 1.5 Statement of the amounts devolved by the three SFCs
Name of Commission
Percentage of Devolution
Amount Devolved
Further Distribution PRIs Urban Bodies
First State Finance Commission
2.18% of Net Tax Revenue
Rs. 55.40 crores for 95 Total 1995-2000 Rs. 395.49 crore
Rs. 42.81 crore for 1995-96 Total 1995-2000 Rs. 305.60 crore
Rs. 12.59 crore for 1995 Total 1995-2000 Rs. 89.89 crore
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Need Assessment of U LBs & Panchayati Raj Institutions
Second State Finance Commission
2.25% of Net Tax Revenue
Rs. 738.60 crores excluding entertainment tax & 1% royalty on minerals
Rs. 553.20 crore + Rs. 12.57(0.05% Incentive) Total Rs. 565.77 crore
Rs. 168.99 crore + Rs. 3.84 crore (0.05%) Incentive Total Rs. 172.83 crore.
Third State Finance Commission (population figures of 2004-05)
3.50% of net tax revenue (State Net Tax revenue) 61438.43 crore (2150 crore)
Rs. 2230.97 crores Inclusive of entertain tax of Rs. 34.40 crore and royalty from minerals Rs. 46.22 crores (2005-2010)
75.7% Rs. 1395.27 crore (3%) + Rs. 232.55 (.50%) Total Rs. 1627.82
24.3% Rs. 447.88 crore 3% share + Rs. 74.65 crore from 0.50 Total Rs. 522.53
Basis & Formula for Sharing the Assigned Taxes
The following table shows the criteria being followed by the various SFCs for
devolution of funds to the PRIs and ULBs:
Table 1.16 Norms for Devolution by other States
State Norms for Devolution
Kerala Efficiency in own revenue collection
Punjab Stamp duty Derivative principles between PRIs and ULBs
MVT on the basis of road length
Electricity duty on the basis of collection
Entertainment Tax 80% for ULBs and 20% for PRI‘s
West Bengal Population, level of non-literacy, % of SC, ST population and population density.
Tamil Nadu Population (45%), SC, ST Population (20%), Per capita own revenue (15%), Per capita expenditure on core services (20%)
Karnataka Population (33.3%), Area (33.33%), Illiteracy (11.11%), Hospital Bed per Persons in per (11.11%), Road length per km. (11.12%)
Uttar Pradesh Population (80%), Area 20%
Madhya Pradesh
Urban population (40%), Sales Tax Contribution (35 %), backward and SC/ST population (15%), level of infrastructure (10%)
Maharashtra On the basis of city size determined by population
Delhi Population (70%), Area (30%)
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Need Assessment of U LBs & Panchayati Raj Institutions
Source:Reports of various third SFCs
The Central Finance Commissions
It is also pertinent to briefly review the main recommendations of various
Central Commissions for the devolution of funds. These are:
The Tenth Finance Commission:
(i) Though the NIUA indicated an estimated gap between revenue and
expenditure for Operation & Maintenance of core municipal services at
Rs5987 crore in 1995 which was likely to go upto Rs12980 crore in 2000; the
Tenth Finance Commission passed on the onus for the estimation of the gap
and the measures that the State and the ULBs can adopt to bridge the gap to
the State Finance Commission.
(ii) Rs. 1000/- crores recommended for 5 years period (1995-2000) enabling the
ULBs to meet their primary obligations.
(iii) The inter State distribution of this sum was based on the inter-State ratio of
the slum population derived from the slum population figures as per 1971
census.
(iv) These grants were additionality over and above the grants flowing to the local
bodies from the State Governments.
(v) Local bodies were asked to provide at least matching contribution. Grant
were not to be spent on salaries and wages.
The Eleventh Finance Commission :
(i) With a view to augmenting the Consolidated Fund of the State for
supplementing the resources of local bodies, the Commission recommended
assignment of Land Tax, Profession Tax and surcharge/ cess on State taxes to
Local bodies for improving the basic civic services.
(ii) Reforms in respect of property tax/ house tax and user charges.
30
Need Assessment of U LBs & Panchayati Raj Institutions
(iii) These grants were purpose specific and were to be utilized for maintenance of
accounts, development of data base and maintenance of core civic services.
(iv) The recommended grants were untied except that these were not to be used
for payment of salaries and wages.
(v) Inter-se share of states in the grants provided for municipalities was based on
the following formula –
Urban population of the State - 40%.
Index of decentralization - 20%
Distance from the highest per capita income - 20%
Revenue effort of the local bodies - 10%
Geographical area - 10%
The Twelfth Finance Commission
The Twelfth Finance Commission‘s main emphasis was on Solid Waste
Management. It observed that about 42 million tons of municipal Solid Waste was
produced in urban India with a per capita income generation varying between 0.2 to
0.6 kg. per day. This waste generation was expected to grow at the rate of 5% per
annum. Presently ULB‘s spent on an average 60%-70% of their budget on this
function.
(i) A sum of Rs.2000 crore was recommended for the panchayats and
Rs.5000crore for Municipalities as grant –in-aid for the period 2005-2010.
(ii) Inter-se share of the states in the grants provided for the municipalities was
based on the following formula –
Population of the State - 40%
Geographical area - 10%
Distance from the highest per capita income municipality - 20%
Index of deprivation - 10%
Revenue effort - 20%
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Need Assessment of U LBs & Panchayati Raj Institutions
While the 11th Finance Commission earmarked 10% grant –in-aid for revenue
efforts, the 12th Finance Commission increased it to 20%. Instead of Index of
decentralization adopted as one of the norms for devolution by the 11th Finance
Commission, the 12th Finance Commission also adopted Index of deprivation as a
norm for devolution with a 10% weightage.
(i) At least 50% of the grants- in-aid provided to each state for the ULB‘s had to
be earmarked for the scheme of solid waste management through P.P.P.
Municipalities were required to concentrate on collection, segregation and
transportation of solid waste. The cost of these activities whether carried out
in house or outsourced was also permitted to be spent out of this grant-in-aid.
(ii) States were required to earmark funds for building database and maintenance
of accounts of local bodies.
(iii) Apart from these grants the T.F.C. had recommended separate grants for
maintenance of roads and bridges. Rs.1,50,000 crore had been recommended
for maintenance of roads and bridges and Rs.5000 crore for maintenance of
public buildings.
Determining the adequacy of the level of expenditure holds the key to
reviewing the finances of municipalities. It is a common knowledge that spending
levels are far below the norms considered necessary for delivering services at
acceptable levels. Assessing the level of under spending or deficit on municipal
services should be arrived at after comparing actual municipal expenditures with
expenditure norms or standards.Which norms should be used is a critical factor in
estimating the financial requirements of municipalities. Options in respect of
expenditure norms were :-
Zakaria Committee norms (Indexed to 2012)
Task forces on Housing and Urban Development (Planning Commission Norms).
Average expenditure of better off municipalities
Average expenditure of municipalities.
State – specific norms, if any.
32
Need Assessment of U LBs & Panchayati Raj Institutions
While assessing the resource potential, the composition, coverage and nature
of the municipal tax base e.g. the relevance, elasticity and buoyancy of taxes
assigned to municipalities, limits imposed on their use by placing limits on tax rates
or taxing down tax exemption policies should be taken into consideration. The poor
quality of services rendered by the ULBs is due to not only the constraint of
resources but also due to poor staffing -lack of required skill- and poor quality of
management especially financial management. The Zakaria Committee norms are, in
the present context, considered to be excessive and unaffordable. A recent county
wide survey showed that only ten out of the 249 municipalities met the expenditure
norms established by the Zakaria Committee. The basis of norms suggested by other
committees and their country wide relevance and application has been questioned
on other grounds.
We find that most of the National and State Finance Commissions have
groped to find an ultimate solution to fulfill the objectives of the Constitutional
amendments. They have juggled with percent based devolution and suggested
different permutations and combinations to meet the requirement of various core
functions of the third tier of governance. However, our state wide surveys have
clearly brought out the fact that the population is not yearning for more but is still
looking for a minimum standard of living. We do not want to suggest a formula or a
set of formulae to the Fourth State Finance Commission for devolution for providing
a minimum standard of living to the people as mathematical jugglery in allocating
funds has failed miserably in the past but feel that by the end of five years, the
people should reach closer to it. The present ills are primarily because of bad
governance and an indifferent attitude of elected representatives. As nothing much
can be done for the latter, the emphasis needs to be on improving governance. With
ample funds available through various Central and State government schemes,
improved governance may lead to better utilization of funds which is a sore point at
the moment. The State Finance Commission may like to fix a minimum level of
achievement in various core sectors – both rural and urban – and devise a set of
formulae accordingly. With women having reservation, yet not having a voice in
decision-making, their needs for safe and easily accessible drinking water and
33
Need Assessment of U LBs & Panchayati Raj Institutions
sanitation, which will help in improving mortality rates need an over-riding priority
in rural areas whereas solid waste management which has made life unbearable in
urban areas- all kinds of ULBs included, need to be over-emphasized. Corruption
has become a cancer in ULBs. It is, therefore, suggested that enough funds should be
devolved for replacing human beings with machines, both for carrying out core
functions as well as keeping an eye on employees. We do not believe in divisions
like urban and rural population because it is an aggregate of individual human
beings and a human being should be the only target. No doubt, it is a difficult task !
34
Need Assessment of U LBs & Panchayati Raj Institutions
Under the 73rd and 74th Amendments of the Constitution the State Finance
Commissions have been set up for devising norms for grants to the PRIs and ULBs.
Most of the earlier grants were based on population and had failed to ensure that
they were channeled into fulfilling the basic needs of villages and the smallest unit
of ULBs.
The Fourth State Finance Commission felt an urgent need to look into the
present needs, available funds and the gaps that need to be filled during the course
of next five years. The basic premise is to evolve formulae for an equitable allocation
of the grants to be distributed to the local bodies.
The present study has been designed to identify the needs in terms of
physical and financial norms, for each tier, especially in crucial areas of drinking
water, sanitation, sewerage, cleanliness of inner roads in the villages or small urban
local bodies, street lighting, etc..
Objectives
Within the broad framework of research, this study attempts to conduct an in
depth analysis on the following concerns associated with physical and financial
needs of the PRIs and ULBs:
Conduct an in-depth assessment of the financial needs for implementing the
core functions of the PRIs and ULBs, hitherto under-funded and whether the
PRIs and ULBs need strengthening physically and financially to achieve them.
Research Methodology
35
Need Assessment of U LBs & Panchayati Raj Institutions
Examine the efficacy and gaps in implementation and implications of these
functions as well as record the perceptions and problems faced by them in
fulfilling these functions. The physical and financial norms prevalent in these
bodies presently were to be examined and suggestions were to be made to
fulfill the gaps, if any.
Design standard norms of distribution of funds by the Finance Commission to
these bodies on the basis of the analysis and findings of the core functions.
Suggest suitable measures for simplification and empowering the devolved
structures, if any.
Methodology and Strategy
The initial stages of the research project dealt with collection of relevant data,
which included information from secondary sources and key informants to develop
an insight into the present situation. This was used to identify research questions
and preparation of tools for collection of the primary data. These prioritised
issues/questions were taken up for an in-depth study during the collection of
primary data. Primary data was collected in accordance with the proposed
methodology. The data collected was analysed using qualitative and quantitative
techniques.
Need and Source of Data
Secondary Data
For macro level investigations, secondary level information/data was
collected from all the available sources. Broadly these included; official records, and
research reports of various governmental and non-governmental agencies of the
State. This included data on the activities taken up by the PRIs and ULBs to meet the
basic requirements of a model gram panchayat or an urban local body and the
budgetary provisions along with the requirement for these activities. This facilitated
the identification of gaps as well as the physical and financial norms for these
36
Need Assessment of U LBs & Panchayati Raj Institutions
activities. This information helped in assessing the scenario. The data collected was
essential to sampling for collection of primary data.
Primary Data
Data was collected from secondary sources to select gram panchayats and
ULBs. The districts were selected on the basis of a composite index prepared on the
basis of area, location and Human Development Index. Similarly, the blocks were
identified on the basis of an index on area, SC, ST, OBC population and location.
Each development unit was visited to collect data on their present funds, functions
and to identify their needs, priorities and unit cost for each function.
Primary Data was collected through schedules. Purposive Quota Stratified
sampling was used for this purpose. The gram panchayats were chosen on the
following basis
Table 2.1
Districts Blocks Gram Panchayats
One district from each of the seven administrative divisions
From each of the sampled district, two blocks were chosen (three in Barmer due to special conditions)
Four gram panchayats were chosen from each block
Criteria : Composite Index Indicator
Area
Location
HDI
Criteria : Composite Index Indicator
Area
SC/ST/OBC population
Location
Criteria : Composite Index Indicator
Area
Sarpanch (m/f)
Population
Number of households (their present status)
Total 7 Total 7*2+1=15 Total 7*8=56
A total of 56 gram panchayats were selected in the seven districts (eight in
each district). In the selected blocks Gram Panchayat were chosen basis of area
population number of household and the gender of the Sarpanchas. Interview
method was chosen for in-depth analysis and was suitably supplemented with the
37
Need Assessment of U LBs & Panchayati Raj Institutions
findings of informal and expert interviews. Sample villages under the samplegram
panchayats were also visited as a part of the study.
For The urban local bodiesalso, the Purposive Quota Stratified sampling was
used. The ULBs from each category were chosen on thebasis a composite index
developed on indicators viz. area, population and human development index. In all
15 ULBs were chosen for collecting primary level information.
Table 2.2
S.No. Category of Municipal Bodies Number of ULBs in Rajasthan
Sample ULBs
1 Municipal Corporation 05 02
2 Municipal Council 13 02
3 Municipality Class two 36 03
4 Municipality Class Three 58 03
5 Municipality Class Four 72 05
Total 184 15
Interviews during the Field Visits
A schedule was developed for the presiding officers of the development units
and the data for last three years was collected along with the other information and
their views were recorded. This exercisewas expected to indicate the gaps and the
physical and financial norms.
For the data collection work, teams of research officers were trained. An
intensive training was imparted to the field teams on the issues being addressed in
the study, methods of data collection, interview procedures, etc. Duration of training
was three days. It also involved field training. One data collection team consisted of
two ROs supervised by one Project Officer. Strict monitoring of fieldwork was
ensured. The information thus collected through intense fieldwork was evaluated
using data analysis techniques and suitable software packages. This has been
documented in the form of a report card.
38
Need Assessment of U LBs & Panchayati Raj Institutions
The sample districts, blocks and villages for the PRIs and Corporation,
Councils and Municipal Boards for the ULBs were selected in consultation with the
State Finance Commission. The following are the lists:
Table 2.3 List of Sample Districts and Blocks
Jodhpur Region
Barmer Second Largest Area Strategic Location (Refinery) Poor HDI
Barmer Chohtan Baytu
Strategic Location Refinery High SC/ST Population Large Area
Bharatpur Region
Karauli Largest Area Largest SC&ST Population
Hindaun Sapotra
Highest SC Population Largest Area Highest ST Population
Jaipur Region
Jaipur Largest Population High HDI
Phagi Jamwaramgarh
Best Indicators Economic Prosperity Highest ST Population
Udaipur Region
Dungarpur Largest Area High HDI
Sagwara Aspur
Largest SC&ST Population Largest Area Strategic Location (State Border)
Bikaner Region
Ganganagar Highest HDI Largest Area
Raisinghnagar Suratgarh
Highest SC&ST population Largest Area Large SC&ST Population
Ajmer Region
Bhilwara Strategic Location (Mining Area) Lowest HDI
Shahpura Jahajpur
Largest Area Highest ST Population Strategic Location (Mining)
Kota Region
Kota Best HDI Growing Urban Area
Ladpura RamganjMandi
Largest Area Highest ST Population Large Area Large SC&ST Population
39
Need Assessment of U LBs & Panchayati Raj Institutions
Table 2.4 List of Sample Blocks and Gram Panchayats
District Block Original Sampled GP
Reason for selection Gram Panchayats Visited
Reason for Change, ifany
Ganganagar
Raisingh Nagar
22PS Rural
Large area & minimum population
22PS Rural
-
5-NP Large area population and highest no. of households
1MK-B (Udsar) Post of Secretary vacant
15PTDA (Sameja)
Lowest area and high population
15PTDA (Sameja) -
17-TK Comparative high population
12 NRD Post of Secretary vacant
Suratgarh
Thukrana
Maximum area household
Thukrana -
Kardoo
Highest population Dei das pura
Kardoo is not Grampanchayat
15-LKS (Dhaba jhalar)
Large area.
15-LKS(Dhaba jhalar)
Rayanawali Smallest area but large population and no. of households.
Peprein Rayanawali is not Grampanchayat
Barmer Barmer
Mahabar Largest area. Mahabar -
Barmer (Rural) Largest population and households
Barmer (Agor)
-
Bayetu
Utarlai Less area but households and population are comparatively high.
Dhoondha (Kawas) Special Reason -Cairns Energy
(Refinery)
Rawatsar
Large population. Chitar ka par Special Reason - Cairns Energy
(Refinery)
Chohtan
Chohtan
Highest population, area and no. of households
Chohtan
-
Bakhasar Lowest population. Bakhasar -
Konra No. of households is good.
Konra -
Alamsar
Less area but high population and households.
Alamsar
-
40
Need Assessment of U LBs & Panchayati Raj Institutions
District Block Gram Panchayats Reasons
Bhilwara Shahpura
Khamor Dheekola Khamnor Phooliyan kalan
Gidriya Dheekola Khamnor Phooliyan kalan
Large population. Higest population and households. Highest area. Minimum area.
Repeat of GP
Jahazpur
Luhari Kalan Pander Ropan Sarsiya
Etunda Pander Ropan Amerwasi
Large area. Largest area. Highest no. of households and population. Less area but population is high.
Post of Secretary vacant -
Post of Secretary vacant
Karauli Hindaun
Dhindhora
Jagar
Mothiyapur
Suroth
Dhindhora
Jagar
Mothiyapur
Suroth
Population is high. Largest area. Large area. Lowest area but population and no. of households is max.
- - - -
Sapotra
Bahadarpur
Narauli
Sapotra Salempur
Bahadarpur
Narauli
Sapotra Salempur
Largest area. Highest households and population. Lowest area but population is large. Large population.
- - - -
Kota Ladpura
Ranpur
Borawas
Rangbari Mandana
Rangpur
Borawas
Kasar Mandana
Large area. Largest area. Minimum area but households and population is maximum. No. of households and population is considerabely good.
GP merge in municipal corporation Kota
- GP merge in municipal
corporation Kota -
Ramganj Mandi
Ghati jagir
Julmi
Khairabad Askali
Modak station
Julmi
Khairabad Sahrwada
Largest area. Area is large . Largest no. of households and population. Lowest area but population is good.
Ghati jagir is not GP. - - -
Askali is not GP
Dungarpur Sagwara Jethana
Obri
Khargada Bheeloora
Jethana
Obri
Khargada Bheeloora
Large area. Large population. Lowest area but highest no. of households and population. Largest area.
- - - -
Aaspur
Punjpur
Munger Sabala Reenchha
Punjpur
Munger Nithauwa Reenchha
Largest area. Largest no. of households and population. Lowest area but no. of households is considerably high. Large area.
- -
Secretory was Not working due to retired
-
41
Need Assessment of U LBs & Panchayati Raj Institutions
Jaipur Phagi
Chauru
Phagi Renwal Manji Madhorajpura
Chauru
Phagi Renwal Manji Madhorajpura
Large area. Largest area, no. of households and population. No. of households and population is good. Lowest area but population is large.
- - - -
Jamwa Ramgarh
Dhoola Raoji
Tala
Jamwa Ramgarh Andhi
Dhoola Raoji
Tala
Jamwa Ramgarh Andhi
Largest area. Large population. Lowest area but no. of households and population is maximum. Large no. of households.
- - - -
42
Need Assessment of U LBs & Panchayati Raj Institutions
Table 2.5 List of Municipal Bodies
ULBs Sampled ULBs Studied ULBs Reason for
selection
ULBs
replaced if
any,
Municipal corporation Jaipur Jaipur Largest Population High urban area
-
Ajmer Ajmer Weak -
Municipal council Udaipur Udaipur Financially sound Problem town
-
Churu Churu Financially poor Agricultural Area
-
Municipal board grade 2
Chittoregarh Chittoregarh Management Issues
-
Sawaimadhopur Sawaimadhopur -
Deoli Deoli Developing town
-
Municipal board 3 Bandikui Bandikui Prosperous -
Kuchaman Kuchaman -
Suratgarh Peelibanga Suratgarh is already
selected as rural Block
Municipal board 4 Nawan Nawan -
Kapren Kapren Problem town -
Jahajpur Soorajgarh Staff Issues Jahajpur is already
selected as rural Block
Uniara Uniara Philanthropic, Participation
-
Jobner Jobner Weak -
43
Need Assessment of U LBs & Panchayati Raj Institutions
In order to assess the needs of the rural local bodies a survey of 56 gram
panchayats was conducted. The panchayats were selected on the basis of the
prescribed methodology. The present chapter deals with the findings of the survey
of the gram panchayats. In each panchayat, the Sarpanch, Gram Secretary and the
community were interviewed with the help of a pre-designed questionnaire. A team
of two investigators visited each panchayat. One of the investigators interviewed the
Gram Secretary and the Sarpanch while the other conducted the community
interview andobservations.
Demographic Profile of the Sample Panchayats
This study covered 56 gram panchayats across the seven divisions of
Rajasthan selecting one district from each division. In each district two blocks were
identified on the basis of composite index, and from each block, four Gram
panchayats have been selected. The total population, according to the census 2001 is
366443.The population for 2011 has been estimated on the basis of the 2011 district
decadel growth rate comes to 436667 with a cumulative calculated decadel growth of
19.16.
The Status of Panchayati Raj Institutions (PRIs)
44
Need Assessment of U LBs & Panchayati Raj Institutions
Table 3.1 Demographic Details of the Sample Gram Panchayats
District Population of selected GP
(Census 2001)
Estimated Population
(2011)**
Decadal Growth
2001-2011
Number of Households*
Number of BPL
families*
Kota 52166 55322 6.05 13400 893
Barmer 67804 90261 33.12 21456 4917
Bhilwara 42984 50777 18.13 11425 5253
Dungarpur 42255 53503 26.62 11160 3041
Ganganagar 47710 51202 7.32 9887 1363
Karauli 54600 65471 19.91 14521 3355
Jaipur 58924 70131 19.02 18900 1351
Total 366443 436667 19.16 100749 20173
* Field Survey (Primary data)
**Extrapolated on the basis of district decadal growth rate 2011
Thus, the average population per GP comes out to be 7797 and the average
number of households in a GP is 1799.These figures have been used for
calculation of norms for each core sector in the later part of the report. The total
area (in bighas) of the 56 gram panchayats is 24302.4. The ratio of the BPL families
to the total population per GP was found to be 20 per cent.
Income and Expenditure
Table 3.2Income and Expenditure of the sample GPs (2010-11 & 2011-12)
SN Source of
income&Expenditure
Income Expenditure Income Expenditure 2010-11 % 2010-11 % Per
capita 2011-12 % 2011-12 % Per
capita
1 SFC 256.44 13.34 193.34 11.77 44.28 407.39 15.17 261.74 12.67 59.94
2 TFC 242.83 12.64 180.67 11.00 41.37 287.53 10.71 240.15 11.62 55.00
3 Untied fund 29.27 1.52 24.33 1.48 5.57 387.45 14.43 111.31 5.39 25.49
4 BRGF 186.15 9.69 179.91 10.95 41.20 183.24 6.82 142.96 6.92 32.74
5 MA LAD 45.32 2.36 38.11 2.32 8.73 68.44 2.55 50.61 2.45 11.59
6 MP LAD 25.69 1.34 19.85 1.21 4.55 37.58 1.40 28.75 1.39 6.58
7 Own Resources 48.73 2.54 33.22 2.02 7.61 39.2 1.46 20.93 1.01 4.79
8 NREGA 1011.2 52.62 915.8 55.74 209.73 1164.78 43.37 1168.2 56.55 267.53
9 BADP 10.51 0.55 0 0.00 0.00 8.45 0.31 0 0.00 0.00
10 Social Justice 0.26 0.01 0.26 0.02 0.06 0.48 0.02 0.06 0.00 0.01
11 PHED 3.88 0.20 4.63 0.28 1.06 1.3 0.05 1.75 0.08 0.40
12 Schemes/Flagship Programme
44.3 2.31 36.32 2.21 8.32 84.87 3.16 39.42 1.91 9.03
13 Other 17.12 0.89 4.52 0.28 1.04 15.02 0.56 0 0.00 0.00
Total 1921.72 100 1643.06 100 376.27 2685.73 100 2065.89 100 473.10
45
Need Assessment of U LBs & Panchayati Raj Institutions
Table 3.3Headwise Expenditure of the PRIs (2011-12 & 2012-13)
SFC, 15.17
TFC, 10.71
Untied fund , 14.43
BRGF, 6.82
MA
LA
D ,
2.5
5
MP
LA
D, 1
.4O
wn
Res
ou
rces
, 1
.46
NREGA, 43.37
BADP, 0.31
Social Justice , 0.02PHED, 0.05
Sch
emes
/Fla
gsh
ip P
rogr
amm
e , 3
.16
Other, 0.56
Position of Income of GPs
S N Budget head Expenditure in year 2011-12
% of Total
Expenditure in year 2011-12
Per capita Expenditure year 2011-12
Estimated budget for year 2012-13(as per
annual plan)
Per capita Expenditure year 2012-13
(in Lakh Rs) (in Rs) (in Lakh Rs) (in Rs)
1 Solid waste management
46.41 2.21 10.63 142.5 32.63
2 Waste water drainage
77.05 3.66 17.65 245.63 56.25
3 Street lighting 15.01 0.71 3.44 148.56 34.02
4 Construction of roads/pulia/rapat
701.71 33.36 160.70 1936.205 443.41
5 Burials and burial ground
44.8 2.13 10.26 251.32 57.55
6 Community halls 25.52 1.21 5.84 224.69 51.46
7 Public toilets 0.12 0.01 0.03 57.813 13.24
8 Public health 0 0.00 0.00 5.825 1.33
9 Public parks 13.37 0.64 3.06 89.45 20.48
10 Drinking water 321.68 15.29 73.67 478.68 109.62
11 NREGA/OTHER 858.03 40.79 196.50 0 0.00
Total 2103.7 100.00 481.76 3591.673 822.52
46
Need Assessment of U LBs & Panchayati Raj Institutions
Government’s Reluctance in Providing Fiscal Autonomy to PRIs
During this study it was found that the panchayats have very little fiscal
autonomy. For this pathetic condition of PRIs and ULBs, the State Government has
to take the blame. They have done it at their own cost. They are forced to provide
much larger funds to meet the expenditure of these bodies from their own kitty or
through the State Finance Commission grants, which cuts into their own needs for
the state‘s infrastructural and core sector requirements.
An important point on which the 73rd and 74th amendments were based was
the devolution by the State Legislature, powers and responsibilities for the
preparation of plans for economic development of the third tier as well as securing a
sound financial base for it. A fair degree of financial autonomy (in the true spirit of
decentralisation of power) is a sine qua non for local governments to function more
effectively as self-governing institutions. By financial autonomy we mean that they
should have their own taxation and borrowing powers in addition to a share in the
state‘s taxes and duties and grants-in-aid. The local governments should not only
have the power to raise revenues but their own sources of revenues should
constitute a very significant share in the total revenues. Many states have done it. We
would further propose that the state or the SFC should provide only 66%-70% of the
Solid
was
te
man
agem
ent
Was
te w
ater
d
rain
age
Stre
et li
ghti
ng
Co
nst
ruct
ion
of
road
s/p
ulia
/rap
at
Bu
rial
s an
d b
uri
al
gro
un
d
Co
mm
un
ity
hal
ls
Pu
blic
to
ilets
Pu
blic
hea
lth
Pu
blic
par
ks
Dri
nki
ng
wat
er
NR
EGA
/OTH
ER
10.63 17.653.44
160.70
10.26 5.84 0.03 0.00 3.06
73.67
196.50
Per capita Expenditure in GPs year 2011-12 (Rs)
47
Need Assessment of U LBs & Panchayati Raj Institutions
total fund requirement of PRIs so that they are motivated to enhance their own
income in order to meet the remaining needs.
Even in the Act this was provided. Areas were specifically prescribed in
which the 3rd tier of governance was to be autonomous. The State Legislature was
also mandated to provide grants to it from the Consolidated Fund of the State and
also assigning of the revenues of designated taxes, duties, tolls and fees. It was
envisaged that with sufficient funds coming from the State Government as well as
the 3rd tier generating its own resources, the dream of Mahatma Gandhi about self-
sufficiency at the grass-root level would be realized. This power of both planning
and acquiring finances to meet the prepared plan was not to be interfered by the 1st
and 2nd tiers of governance. On the other hand, it was to be insisted upon. The
government of India and the State governments were obliged to assist the 3rd tier to
prepare their plans as well as to provide them funds to meet their plan expenditure
either from their own sources or to allow them to generate their own sources of tax
and non-tax revenues. The State government was also expected to assign funds from
taxes, duties, tolls and fees levied and collected by State government. However, it is
found that the general environment of not levying any taxes at the State level on the
baseless fear of losing elections has pervaded to the 3rd tier also, a tendency which
has harmed the third tier much more than the second. The result is that not only
development but establishment requirements are being met, that also only partly, by
the State government. This has led to wide gaps in funds required and available for
even basic infrastructural requirements of panchayats and urban local bodies.
Minimum needs of the people are being put on the back burner. The state
governments have failed to play the role of hand holding of the third tier.
It is understood from the basic objectives of the 73rd and 74th amendments
of the Constitution that it is necessary that the funds from the State Finance
Commission should not only fill the gaps in the required and available levels of
funds for the 3rd tier of Governance for infrastructural development and meeting
their core functions but also should work as a catalyst to improve their capacity
and motivate them to generate their own resources to fulfill their unmet needs. At
the same time, the recipients should also be asked to provide the physical targets
48
Need Assessment of U LBs & Panchayati Raj Institutions
they are going to meet with the help of the funds devolved. Otherwise the hard
earned money of the general tax payers will be just like a dole given to
irresponsible beneficiaries.
Waste Water Management
Table 3.4 Physical status of Drainage (Naalis)
Requirement of nali (m.)
Total length of drainage nali (m.)
Proposed nali in next year (m)
Proposed maintenance of nali in
next year (m.)
336988 169733 70045 27505
The sampled 56 Gram Panchayats, under reference presently have facility of
drainage system comprising of merely 169733 mtrs. i.e. 50.36%, whereas the
requirement accounts for 336988 m. It is evident that the available drainage system is
far more less than the actual need. In the year 2012-13 construction of 70045 m. i.e.
20.78% is required and maintenance of 16% existing dilapidated drainage system
have been proposed.
Financial Status of Drainage Nali
Table 3.5 Financial Status of Drainage (Naalis)
Expenditure for nali 2011-12
Expenditure for
maintenance of nali in year
2011-12
Expenditure for nali 2012-13
Expenditure for maintenance of
nali in year 2012-13
Per capita expenditure for
construction and maintenance of nali
in year 2012-13
54.81 22.24 216.9 28.73 56.25
The expenditure of Rs.54.81 lacs for drainage system and Rs.22.24 lacs for
maintenance of the same in the year 2011-12 has been incurred by GPs. An estimated
budget of Rs.216.9 lacs for construction and Rs.28.73 lacs for maintenance of existing
length of drainage system in the year 2012-13 has been proposed by GPS to the
concerned authorities.
49
Need Assessment of U LBs & Panchayati Raj Institutions
Solid Waste Management
Table 3.6 Status of Sweepers
Total sweepers
Regular Contractual Coverage population per sweeper
Coverage household
Additional requirement
Planned coverage population per sweeper
Planned Coverage household per sweeper
253 0 253 1726 398 322 759 175
The GPS under reference have shown an untidy, unhealthy situation. It is
quite a serious matter and may be a pointer to a kind of unhygienic surroundings
prevailing in GPs. Most of the GPs (52%) are afflicted with the disease of un-
cleanliness Solid Waste Management is done in 48.1 GPS. At present there are 253
contractual sweepers to render services to 100749 households. It means that 398
households are being served by one sweeper covering a population of 2013 per
sweeper. It is indeed regretful to note that due to paucity of sweepers or else to
collect solid waste, all sampled eight GPs of Ganganagar present a worse situation
with regard to solid waste management. This creates discomfort to inhabitants,
therefore with 322 more required sweepers the population covered by one sweeper
will come down from 1726 to 759 and households from 398 to 175 though it is still
higher than the prescribed norms, yet a slight improvement will be there.
Interval of Cleaning
Table 3.7 Interval of cleaning
Daily Interval of 3-4 days Weekly
2% 18% 80%
There is no denying of the fact that in 80% of GPs the practice of weekly
cleaning is in vogue and it is done at an interval of 3-4 days in 18% GPs. There is
nothing to be satisfied with only 2% GPs, under reference, having daily cleaning
practice. It is significant to quote that Dungarpur, despite being a tribal district and
Kota an industrial hub, present an example in this respect to be followed by others.
50
Need Assessment of U LBs & Panchayati Raj Institutions
Status of Assets
Table 3.8
Status of Assets
S. no.
Assets Present status no.
Additional requirement in
next year
Estimate budget require in next
year(in lakh)
1 Tri Cycle 0 2 0.1
2 Push Cart with bin 0 309 9.27
3 Bins 0 1114 41.2
4 other 0 333 2.005
The perennial problem of total absence of cleaning equipment across 56 GPs
remains to be sorted out. Requirement of cleaning assets such as tri cycles, push carts
with Bens, Bins and some other equipments and their estimated budget of Rs.2.005
lakhs has been proposed to the concerned authorities.
Street lighting
Table 3.9 Status of Street Lighting Points Equipment LED CFL
Available in year 2011-12
Estimated no. for
next year
Estimated budget for next year
Available in year 2011-12
Estimated no. for
next year
Estimated budget for
next year(in
lakh) Tube light 0 0 0 435 220 2.42
Bulb 0 0 0 950 6515 71.66
Mercury 0 0 0 0 16 0.56
Sodium light 0 0 0 0 163 5.725
High mask light
0 0 0 0 0 0
Gen. bulb 350 0 0 315 0 0
other (Solar) 18* 10* 3.4 20 7** 0
Total point 368 10 3.4 1720 6921 80.365
*solar light considered as CFL, **Solar lights provided by water shade program.
The miniscule i.e. 26.8% of GPs having road light facility evidently manifests
the poor governance at Gram Panchayat level 73.21% GPs across the sample,
regrettably are lacking in street lighting facility.
51
Need Assessment of U LBs & Panchayati Raj Institutions
The total number of street lighting points, available presently comes to 2088
across 56 GPs i.e. 23.15%. An estimated budget proposal for additional 6921 lighting
points for year 2012-13 has been presented to the authorities for acceptance.
Status of Timer
Table 3.10 Status of Timers
Timer Solar Automatic Manual No. of points coverage by each timer
Status in year 2011-12 22 38 27 32
Estimate for year 2012-13 22 478 0 19
At present there are 49 timers to regulate 2088 street lighting points. A need of
500 more automatic timers has been has been stated by GPs for the year 2012-13.
The coverage per lighting point in terms of population comes to 209. A
quantum increase of 6921 lighting points will make total number of points as 9019,
making a favourable impact on coverage of population per point, i.e. 48 per point.
Expenditure for street lighting
Table 3.11 Expenditure for street lighting
Particulars Year 2011-12 (in lakh)
Estimated for next year(in
lakh)
Per capita expenditure
(in Rs)
Expenditure for energy 5.53 39.86 9.13
Expenditure for new purchase 6.2 84.76 19.41
Expenditure for maintenance 3.68 3.78 0.87
Expenditure for vehicle 0 0 0.00
Expenditure for establishment 0 20.16 4.62
Other expenses 0 0 0.00
Total 15.41 148.56 34.02
Citizens of 73% GPs across the sample remain dissatisfied with wherewithal
of street lighting system. An estimate of Rs.148.56 lacs has been presented to the
authorities to improve lighting system, which will make per capita expenditure to Rs
34.02.
52
Need Assessment of U LBs & Panchayati Raj Institutions
Road/ Pulia / Rapat
Physical status of roads / pulias / rapats
Table 3.12 Physical and Financial Status of Road/pulia/rapat Construction Total
length of roads
/number in present (in Km)
construction of Road/pulia/ra
pat in year 2010-11 (in
Km)
construction of
Road/pulia/rapat in year 2011-12 (in
Km)
Estimate construction
of Road/pulia/ra
pat in year 2012-13 (in
Km)
Estimate budget for
Road/pulia/rapat in year
2012-13 (in lakh)
Per KM /unit Estimate
budget for Repairing
Road/pulia/rapat in year
2012-13 (Lakh)
C.C. Road 149.42 8.2 15.75 48.75 820.77 16.84
Kachchi road 456.5 112.75 102 145 334.82 2.31
Pukki road 172.5 8 7.5 82 0.00
Rapat 51 1 3 22 4.74 0.22
Pulia no. 187 40 28 105 37.55 0.35
Grawal 373.3 60 74.6 91.3 486.54 5.33
Kharanja 7.5 1 1 7.6 58.07 7.64
Total 1742.49
The roads vis-à-vis C.C.
road, kacchi and pakki road, rapat, pulia, kharanja etc. has coverage of 1391.22 km.
at present. The estimated budget proposals of Rs.1742.49 lacs to construct additional
roads of 430.53 km. i.e. .30% length in 2012-13 has been presented to the authorities.
Repairing of Roads
Table 3.13Physical and financial status for Repairing of Road/pulia/rapat
Repairing Repairing of Road/pulia/rapat in year 2010-11
(Km.)
Repairing of Road/pulia/ra
pat in year 2011-12 (Km.)
Estimate Repairing of
Road/pulia/rapat in year 2012-13
(Km.)
Estimate budget for Repairing
Road/pulia/rapat in year 2012-13
(Lakh)
Per KM /unit Estimate budget
for Repairing Road/pulia/rapat in year 2012-13
(Lakh)
C.C. Road 0 2.5 30.05 125.545 5.34
Kachchi road 0 4 16.9 10.81 0.64
Pukki road 0 0 1 0 0.00
Rapat 0 0 1 0.1 0.10
Pulia 0 0 4 0.8 0.2
Grawal 12.1 0 43 54.21 1.26
53
Need Assessment of U LBs & Panchayati Raj Institutions
Kharanja 2.25 0
Total 193.715
Table 3.14 Financial status of construction and maintenance of road/pulia/rapat
Expenditure for construction of
road/pulia/rapat in year 2011-12
(in lakh)
Expenditure for maintenance of
road/pulia/rapat in year 2011-12
(in lakh)
Expenditure for construction and maintenance of
road/pulia/rapat in year 2011-12
(in lakh)
Per capita expenditure for
construction and maintenance of
road/pulia/rapat in year 2011-
12(in Rs.)
Estimate Per capita
expenditure for construction and maintenance of
road/pulia/rapat in year 2012-13
(in Rs.)
673.89 27.82 701.71 160.7 443.41
Only 6.5 km. of road has been repaired in present year.
An estimation of Rs.193.715 lacs to repair 95.95 km (.068%) of roads has been
proposed for the year 2012-13 construction and maintenance of roads/rapat/pulia.
In 2011-12 Rs.701.71 lacs has been expended on construction and maintenance of
roads. A need is felt to spend Rs.443.41 per capita to construct and maintain the
roads, rapat etc. in 2012-13.
Status of Burials and Burial Ground
Table 3.15
Physical Statusof Burials and Burial
Ground
No .of Burials and burial ground
Area of Burials and burial ground (bigha)
Additional area require for Burials and burial
ground (in bigha) Burials burial
ground Burials burial
ground Burials burial
ground
278 61 620.9 172 70 18
Table 3.16 Financial Statusof Burials and Burial Ground
Expenditure for Burials and burial
ground in year 2011-12
Estimated budget for
Burials and burial ground
Estimated Budget for Maintenance
in next year
Per capita expenditure for Burials and burial
Estimate Per capita
expenditure for Burials
54
Need Assessment of U LBs & Panchayati Raj Institutions
(in lakh) in next year
(in lakh) (in lakh) ground in
year 2011-12 (in Rs.)
and burial ground in
year 2012-13 (in Rs)
44.8 212.25 39.07 10.26 57.55
Presently there are 278 cremation grounds and 61 graveyards across 56 GPS
covering 620.9 and 172 bigha area respectively. It is estimated that an additional area
of 70 bigha for cremation ground and 18 bigha for grave yard is required. An
estimated budget of 39.07 Lakh Rsfor maintenance in addition to 212.25 Lakh Rs for
construction of burials and burial ground in 2012-13 has been presented to the
concerned authorities for acceptance.
Status of Public Parks
Table 3.17 Physical Status
Status of Public parks
No. of Public parks
Area of Public parks (Sq. ft)
Additional Public parks
require
Additional area require for Public
parks(Sq. ft)
Public parks run by ULBs
11 196900 20 233600
Public parks run by Agency/committee.
1 27000 0 0
Public parks run by Trust/community
0 0 0 0
Table 3.18 Financial Status
Expenditure for Public parks in year 2011-12
(in lakh)
Per capita expenditure for Public parks in
year 2011-12(in Rs)
Estimated budget for Public parks in next
year(in lakh)
Estimate Per capita expenditure for
Public parks in next year(in Rs)
13.37 3.06 89.45 20.48
There are 12 public parks across 56 GPs with area of 196900 sq. ft. The
need of 20 more public parks is being expressed. The proposal for the earlier
covering an area of 233600 sq. ft. has been submitted. Out of present 12 public parks,
55
Need Assessment of U LBs & Panchayati Raj Institutions
11 are run by GPs and one is taken care of by committee. An estimated budget of
Rs.89.45 for public parks in next year has been presented.
Community halls
Table 3.19 Physical status of Community halls Status of Community halls No .of
Community halls
Area of Community halls (sq.ft)
Additional Community halls require
Additional area require
for Community halls (sq.ft)
Community halls run by GP 186 140738 83 112453
Community halls run by Trust/community
2 1500 0 0
Table 3.20 Financial Status
Expenditure for Community halls in year 2011-12(in lakh)
Per capita expenditure for
Community halls in year
2011-12(in Rs)
Estimated budget for Community halls in
next year
(in lakh)
Estimate Per capita expenditure
for Community halls in next year
(in Rs)
25.52 5.84 224.69 51.46
56 Gram Panchayats have 188 community halls covering area of 142238 sq. ft.
Two community halls are run by the community and rest are taken care of by GPs
themselves. There is need for 83 more community halls in the next year and an
estimated budget for the same of Rs.224.69 has been submitted.
Drinking water
Presently there are following sources of drinking water across 56 GPs.
–
Table 3.21 Status of drinking water resources
Resources Expenditure in 2011-12 (in lakh)
Per capita
expenditure in 2011-
12(in Rs)
Additional requirement
Estimate budget for year 2012-13(in lakh)
Per capita expenditure for year 2012-13(in
Rs.) Recurring Nonrecurring
Janta Jal 13.13 2.58 1 10.66 0 2.44
PPP 0 0.00 0 6.5 0 1.49
56
Need Assessment of U LBs & Panchayati Raj Institutions
Hand pump 100.28 19.69 261 0 139.65 31.98
Tube well 14.52 2.85 18 0.2 48.81 11.22
Wells 14.08 2.76 2 0 3.0 0.69
Bawri 0 0.00 0 0 0 0.00
Pond 0 0.00 1 6.0 0 1.37
Tank 74 14.53 193 108.2 24.78
Kund 0.8 0.16 0 0 1.0 0.23
Tape water 0 0.00 0 0 0 0.00
Rain water harvesting
57.34 11.26 15 0 50 11.45
Maintenance of water resources
11.74 2.31 32 40.18 0 9.20
Tanker supply
0.55 0.11 0 0 0 0.00
Pipe line 16.21 3.18 32829 0 42.48 9.73
Other 18.82 3.70 10 0 22 5.04
Total 321.47 63.13 63.54 415.14 109.62
Javata Jal, PPP, Hand Pump, Tube well, Wells, Pond, Tank, Kund, Rain water
harvesting, water pipe lines and tanker supplies. Gram Panchayats have incurred
Rs.321.44 as expenditure on above drinking water resources in 2011-12. Due to
additional requirement of augmentation of above water resources an estimated
budget of Rs.478.68 (63.54 recurring + 415.14 non- recurring) has been presented to
the concerned authorities. The availability of drinking water in villages was found in
64.28% GPs i.e. in 36 GPs and out of these 36 GPs the availability of water was
adequate in 86% GPs. Proper drinking water was available at the public places in
57% GPs.
Public Health
Table 3.22Physical and financial status of Public health activities
Material Utilize amount in
2011-12
Expenditure 2011-12
Requirement in year 2012-13
Budget require in
year 2012-
13(in lakh)
Per capita expenditure
for year 2012-13(in Rs)
Insecticide/DDT 0 0 10075 kg 1.87 0.43
Equipments 0 0 56 0.56 0.13
Labour 0 0 2519 3.40 0.78
Total 0 0 0 5.83 1.34
It is a matter of dismay and worry that not a single penny has been spent in
2011-12 on crucially important part of public service i.e. public health activities.
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Need Assessment of U LBs & Panchayati Raj Institutions
However, in wake of need to eradicate epidemics and seasonal diseases the Gram
Panchayats have submitted an estimated budget of Rs.5.83 to concerned authorities.
Public Toilets
Status of Public Toilets
Table 3.23 Status of public toilets
Status of toilets No. of public toilets (2011-12)
Expenditure for public toilets in
(2011-12)
Additional requirement of public
toilets in(2012-13)
Budget for public toilets in(2012-13)
(in lakh)
Public toilets 47 2.5 149 47.243
Sulabh toilets 0 0 1 5.0
Urinals 0 0 0 0
*Toilets for women 12 0 87 20.58
Total 0 52.243
*Expenditure on toilets for women included in public toilets. *Figure of women toilets is also included in public toilets.
Table 3.24Assets of toilets cleaning Assets Expenditure in 2011-12 Estimate budget for 2012-
13
Labour charges 0 3.78
Acid/ toilet cleaner 0 0.588
Material require for cleaning toilets(brush,bucket, jhadu) 0 0.56 Total 0 4.928
Table 3.25Status of cleaning of toilets Present
status of sweepers for
toilets
Additional requirement of sweepers for cleaning
of toilets
Expenditure for
maintenance of toilets in year 11-12(in
lakh)
Per capita expenditure
for maintenance of toilets in year 11-12(in
Rs)
Estimated budget of
maintenance of toilets in year 12-13(in
lakh)
Per capita Estimated budget of
maintenance of toilets in year 12-13(in
Rs) 4 59 0.12 0.03 4.928 1.13
Presently there are 47 public toilets including a few of toilets for
women. Public toilet facility available at gram Panchayat level was found only 25%
GPs. The availability of separate toilet facility was found in merely 7.1 GPs. The
toilets are cleaned regularly in 3 (21.42) Gram Panchayats (out of 14 GPS). A
miniscule number of sweepers i.e. only 4, is of little help to keep toilets clean.
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Need Assessment of U LBs & Panchayati Raj Institutions
Therefore, a need of 59 sweepers in the year 2012-13 and an estimated budget of
maintenance of toilets have been presented.
An additional requirement of 149 more toilets including toilets for women in
2012-13 and estimated budget of Rs.52.243 has been submitted. An amount of
Rs.4.928 has also been estimated to spend on labour charges and toilet cleaning
assets in 2012-13.
Status of Gram Panchayat Buildings
It is a matter of satisfaction that all the gram panchayats except one in Karauli
had their own buildings.
Table 3.26
Dhindora in Hindaun PS does not have its own building. It uses the local post
office for its activities and does not have to pay any rent. It implies that there is no
need in terms of the building requirement for the panchayats.
Activities Being Undertaken by the Gram Panchayats
According to the Rule 33 of the PR Act, the core functions of a panchayat are
sanitation, street lighting, safe drinking water, drainage, public distribution system,
Own Building of the Gram Panchayat Number (Out of 8) %
Karauli 7 87.5
Jaipur 8 100
Ganganagar 8 100
Dungarpur 8 100
Bhilwara 8 100
Barmer 8 100
Kota 8 100
Total 55 98.21
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Need Assessment of U LBs & Panchayati Raj Institutions
maintenance of village roads and birth and death registration. During the study the
Sarpanchas were enquired about the works being undertaken by the Gram
Panchayat responses were multiple. It was found that the focus at the gram
panchayat level was on water and rural housing. About 80 per cent of the gram
panchayats reported that they were mainly busy with providing drinking water and
constructing rural houses under the Indira Awas Yojana and Chief Minister Awas
Yojana. It was found that most of the panchayats do not appreciate the importance
of other core functions like drainage, sanitation, public lighting and other
community facilities.
Table 3.27 Works being done by Gram Panchayats
Functions Number of Responses (N=56)
(%)
Providing Drinking Water Facility 29 51.78
Indira Awaas Yojana for BPL Families 27 48.21
Construction and Cleaning of the Drains 26 46.43
CM BPL Awaas Yojana 16 28.57
Tanka Nirman/ Johad Khudai 16 28.57
Rajeev Gandhi IT Centre 12 21.43
Kharanja Nirman 7 12.5
Construction of Boundary Walls (BRGF) 7 12.5
Construction of Roads 5 8.93
Organizing Haat Bazaar 3 5.35
Construction of Community Halls 2 3.57
Maintenance of Street lighting 2 3.57
It is obvious from the above responses that construction activities have
overriding priority – for reasons well known and the PRIs do not have their roads
remaining dark at night – something more dangerous for women them men.
Availability of a Drainage System
It was found that about half of the gram panchayats had drainage facilities. It
was pleasant to see that all the PS in the Dungarpur district had drains in all the
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Need Assessment of U LBs & Panchayati Raj Institutions
gram panchayats and they were being maintained regularly. It was found that the
drains were cleaned regularly by the sweepers who were contractual (appointed by
the panchayat) and the community themselves. In Barmer and Ganganagar, people
opined that drains were not required as water was scarce and they even made soak
pits. The people during the Focussed Group Disscussions felt that the drains
available were not sufficient and there was a requirement for drains. It was also
suggested that more budget should be provided to accommodate additional
sweepers for proper cleaning of drainages.
Present Status of Solid Waste Management
A similar proportion as seen in the area of drainage was seen for solid waste
management. Less than 50 per cent of the GPs reported following the solid waste
practices. Dungarpur district was found to be following the waste management in
almost all the sample GPs while the situation was surprisingly unsatisfactory in
Ganganagar where it was reported that in the absence of proper guidelines for
budget utilization and higher market rate than the BSR this was not being done – An
example of poor governance.
Table 3.28 Status of Solid Waste Management in Sample Gram Panchayats
Dungarpur, a tribal district, is an example to be followed by others.
Solid waste management Responses (N=56)
(%)
Karauli 4 50
Jaipur 3 37.5
Ganganagar 0 0
Dungarpur 7 87.5
Bhilwara 5 62.5
Barmer 1 12.5
Kota 7 87.5 Total 27 48.21
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Need Assessment of U LBs & Panchayati Raj Institutions
From the sampled 56 gram panchayats, the system of solid waste
management was working in 27 gram panchayats. Only six out of the total of 56 GPs
reported to have been carrying out monthly cleaning. Solid waste management was
done twice yearly in 29.62 percent of gram panchayats. It has been seen that in
some gram panchayats (22.22 percent) solid waste management is not proper and
done only at the time of festivals or during political gatherings. This is being done
on contractual basis.
As far as the transfer and dumping practices for solid waste management is
concerned the waste is collected at a common place in the gram panchayats and then
dumped out of the village. The panchayats hire tractors for the purpose. 92 percent
people are not satisfied with the solid waste management. It was also found that
there was lack of equipments used for cleaning in one- third of the gram panchayats.
It has also come to our notice that dumping is done but there are no garbage
disposal plants for treatment and commercial utilization. Most of the community
members felt a need for daily cleaning. This shows how people hate garbage but feel
helpless.
Street Lighting
Out of 56 gram panchayats, street lighting was available in only 26.78 percent
gram panchayats. Lighting facilities were seen in Kota and Dungarpur districts
while there was no Panchayat with street lights in Ganganagar. The community
revealed that temporary arrangements were being done by the panchayats during
festivals. A point of ridicule for a prosperous district like Ganganagar. Dungarpur
again shows the path.
Table 3.29 Availability and condition of Street Lighting in the Gram Panchayats
District Availability of street lights (n=56) (%) Lights in Working Condition (%)
Karauli 2 25 100
Jaipur 1 12.5 100
Ganganagar 0 0 0
Dungarpur 4 50 100
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Need Assessment of U LBs & Panchayati Raj Institutions
Out of the 15 gram panchayats where there were street lights, except one GP
in Kota, the street lights were found to be in working condition. They were being
maintained by the gram panchayats themselves in most of the GPs except Pander
(Jahajpur) where a local contractor had been entrusted the responsibility of
maintenance. It was also revealed that there was timely maintenance of the street
lights in all the districts except Karauli. The sarpanch and community, both
expressed a need for covered lights (for protection from theft, breakage and rains)
and a requirement of additional transformers to control fluctuations in the voltage.
Table 3.30 Distance between the Lighting Points (lights) District Distance (in meters)
Karauli 30
Jaipur 85
Ganganagar 100
Dungarpur 110
Bhilwara 90
Barmer 85
Kota 175
Average distance 96
Source:Primary Data(interview with the Gram Secretary, Sarpanch and field observation)
The above table reveals the distance between the street light points. The ideal
distance is 30 meters(BEE, Ministry of Power) which was seen in case of Karauli district
only while the distance was far more than the norms in the other districts. The
average distance was calculated at 96 meters which indicates the need for more
lighting points in these areas.
During the discussions, the sarpanchs and the community members
expressed the need for more resources (both financial and manpower) for improving
the scenario in the rural areas. A need for introducing solar technology for street
Bhilwara 2 25 100
Barmer 1 12.5 100
Kota 5 62.5 80 Total 15 26.78 93.33
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Need Assessment of U LBs & Panchayati Raj Institutions
lighting and using CFL technology for saving power was also emphatically
expressed.
Internal Roads
The people expressed their satisfaction on the condition of the roads in the
rural areas except the desert and canal area. They suggested that the roads, during
construction should have a built-in component of drainage. The sarpanchs felt that
there was lack of sufficient funds for proper maintenance of the roads. Surprisingly,
Ganganagar has shows its indifference to this core function also.
Cremation and Burial Grounds
The incidences of encroachment on the Cremation and Burial Grounds were
found to be all pervasive. About 80% of the community members expressed their
dissatisfaction on the maintenance of the crematoria and burial grounds. A need for
boundaries, drinking water and shade was felt by them. Surprisingly, only 12% of
the sarpanchs and local community members felt the need for more area for
cremation and burials. This implies that there is a need for only taking up the
maintenance of the existing cremation and burial grounds in the rural areas.
Public Parks
There was a provision of public parks in nine out of the 56 GPs. Most of them
were looked after by the gram panchayats and the rest were taken care by the
committees/agencies. The condition of the public parks in Kota was appreciable
while the others lacked maintenance and were in a bad shape. The main reason
stated was a lack of budgetary provision for their upkeep.
Community Centres
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Need Assessment of U LBs & Panchayati Raj Institutions
The community halls in a gram panchayat are for multipurpose use. There
were community halls in Karauli, Ganganagar and Dungarpur districts while Jaipur
and Bhilwara had minimum number of community centres. The basic facilities like
sanitation, electricity, drinking water and toilets are lacking in most of the
community halls and the maintenance is also unsatisfactory. The community halls
are supposed to be self maintaining with the income that they are supposed to
make by hiring them out. The hurdle is that presently they do not have even basic
facilities like electricity and that would make them lucrative for hiring on important
occasions. For lighting purposes, we would like to emphasise on solar power.
Drinking Water
Rajasthan has 1.16% of surface water and 1.70% of ground water of the total
resources in the country. As the surface water is very inadequate, there is a growing
reliance on ground water with not much effort being made to increase the amount of
surface water to provide drinking water to one of the largest growing human and
animal population in the country. Over extraction of water from deep wells without
any serious effort to re-charge them has led to decreasing potability of water
resulting in serious health situation in the State.
Drinking water supply in rural areas is still far below a satisfaction level. We
are still finding that the access to drinking water for SC/ST people is much lesser
than to the general caste people. It is anybody‘s guess as to when the State will be
able to provide 70 litre of water par capita in the desert region and 40 litres the capita
in the plains. The minimum requirement of water per capita,we are meeting only
10% of the demand as per norms at present.
44.65% of Rajasthan villages have the problem of fluorides, 82.4% have saline
water, 28.6% nitrate compared to the total number of villages in the country. Thus
the need of the day is not only to increase the quantity of water to the growing
population of men and animals, but also to make whatever is available potable for
drinking.
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Need Assessment of U LBs & Panchayati Raj Institutions
From the 12th Plan draft document, it is found that the main thrust of the
government is to somehow increase the surface water availability without making
serious efforts for desalinization and de-fluoridization of the existing quantity of
water so that it is also added to the total amount of drinking water. With a large
number of villages/ habitations with salinity – out of a total number of 24522
villages in India with salinity, Rajasthan has 20211, the government finds it easier to
bring surface water from various parts of Rajasthan for local needs by arguing that
the per liter cost of desalinated water is 35 paisa per litre as compared to 30 paisa per
litre from surface sources. It is not known whether the cost of so many projects for
drinking water like Bisalpur, Jawai Pipe Line Project, Barmer Lift Canal, Bisalpur-
Dudu-Phulera Project, Chambal- Sawai-Madhopur-Balar Water Supply Project,
Ajmer-Bisalpur Project have been included or not for finding the per litre cost.
Similar is the case of de-fluoridization. As has been stated above, out of 23107
villages in India with water containing dangerous levels of fluoride, 10319 are in
Rajasthan only. However, the draft 12th Plan does not take it up as a serious matter
and depends totally on surface water. As per the report of the PHED Department,
the State spent Rs.34.67 crores in 12 districts of Rajasthan in 2643
villages/habitations between March, 2005 to February 2008 for de-fluoridization
projects. In the second phase another 5056 villages/habitations were taken up. The
State Government took the financial support from UNICEF and cooperation from 19
NGOs for the projects.
It is also surprising that the 12th Plan has provided only Rs.9191.81 crores for
rural water supply but 5393.37 for urban water supply. This is disproportionate
looking at the rural urban population divide and the presence of large number of
animals in the rural areas, which are not there in urban areas. That more required
funds were given to urban areas is evident from the expenditure in the 11th Plan
where the rural water supply expenditure exceeded the allocation by nearly Rs.1000
crores whereas in the urban areas, the utilization was less than the outlay by Rs.200
crores.
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Need Assessment of U LBs & Panchayati Raj Institutions
It is also strongly suggested that the use of chlorine and bleaching powder
should be reduced and the PHED should be advised to use the latest technique
which is cheaper also like electro-chlorination. Regarding de- fluoridation, the latest
method which is cheaper and can be used by ordinary, illiterate villagers is the
KRASS de-fluroidation process. It may be reiterated that the upper limit of fluorides
in potable water is only 1.5 m.g. per litre whereas in several districts of Rajasthan,
the villagers are forced to drink water with fluoride concentrations upto 44 mg. per
litre.
KRASS is a new method now under serious field trials and should be looked
into by the State. This process is effective for unlimited amount of fluoride
concentration in the input water. It is easy and requires minimal involvement of
technical personal and is harmless and cost effective. It is supposed to be a practical
approach especially for rural population in Rajasthan. The SFC may like to discuss it
further with the Department of PHED and provide necessary funds for it, if there is a
shortage.
We feel that the earlier we get rid of salinity and fluorides in our drinking
water, not only more potable water would be available but also we may not need
to bring so much of surface water from long distances. This is an area where the
State Finance Commission should provide its support.
We, therefore, suggest that more funds should be provided through the
State Plan with augmentation by the State Finance Commission for rural water
supply. If needed the State Finance Commission should also provide necessary
funds for complete de- fluoridization and de-salinization in all the districts
during the 12th Plan particularly in the desert districts viz Barmer, Jaisalmer,
Nagaur, Jodhpur and Bikaner. The cost of a desalination plant is Rs 12 Lakhs/Unit
with a useful life of 10 years for a population of 1000.
The expenditure out of the total funds provided to the PHED for rural water
supply should be closely monitored by the Gram Panchayats. It is also suggested
that the State Finance Commission may provide funds for repairing of pump motors
for drawing water, if there is need for more than one repair.
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Need Assessment of U LBs & Panchayati Raj Institutions
The table 3.7 reveals that the availability of drinking water in the nearest
habitation was inmere 64.10 percent of the sampled panchayats. The water is mostly
provided to the main village only. This needs for some local arrangements for
supplying it to other parts of the Gram Panchayats. At a few gram panchayats in
Ganganagar, there is no potable water source and they use irrigation water for
drinking purposes.In a place like Barmer, habitation is scattered and it becomes
difficult to provide water by conventional ways. This leaves the onus on either the
gram panchayat or the individual to make thier own arrangements (tankers, rain
water harvesting).
The condition of drinking water availability at public places (markets,
schools, bus stands, hospitals, etc) is even more unsatisfactory. Drinking water is
available at only 57.14 percent of public places. In Kota, the facility was decent
because of the high number of taps under the “pach pahad”.The Ramganj Mandi
Pach Pahad Water Supply Project was envisaged to provid drinking water to 220
villages of Ramganj Mandi, Pach Pahad and Bhainsroadgarh, Tehsil and four towns
of Jhalawar and Chittorgarh. Total sanction cost of the project in Rs.196 crore and it
is being funded NABARD under RIDF. The project has been completed and five
towns and 220 villages are being benefits from the project. It was found that the taps
under this project have been placed at community places and has resulted in
continued water supply at the public places.
It was found that PHED provides water in 91.07 percent of gram panchayats
of the sampled districts. This was being done by the ground level reservoirs,
overhead tanks (with taps) and hand pumps. The maintenance and filtration are
being looked after by the PHED. Mostly, the water is supplied to the main village
and not to the remote villages. Even the onus of maintenance of hand pumps and
electricity for boring is being borne by the panchayats. In addition, it also has the
additional responsibility of maintaining the traditional water sources like tanka,
pokhar and johar.
Table 3.31 Availability of Drinking Water in Habitations District (%)
Karauli 75
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Need Assessment of U LBs & Panchayati Raj Institutions
Jaipur 68
Ganganagar 84.11
Dungarpur 71.65
Bhilwara 59
Barmer 13
Kota 78
Total (Average) 64.10
Table 3.32 Source of Drinking Water
Districts PHED Tankers Hand pumps Rain Water Harvesting
Others
Karauli 7 2 4 0 1
Jaipur 6 4 6 0 1
Ganganagar 8 0 0 0 0
Dungarpur 7 0 7 0 2
Bhilwara 7 1 8 0 1
Barmer 8 2 4 6 0
Kota 8 1 7 1 2
Total 51 10 36 7 7
It is obvious that rainwater harvesting has not been popularized in most of
the districts. Barmer is an exception because rainwater harvesting has been a
tradition for centuries.
The analysis shows that there are wide gaps in the availability of drinking
water – an area of utmost priority for the State Finance Commission.
Health and Sanitation
To control epidemic diseases most of the village secretaries admitted that no
activity was undertaken due to lack of coordination among PHED, health and
Panchayati raj departments. There were suggestions that water storage tanks should
be regularly cleaned and chlorinated. Timely and proper fogging would prevent the
case of epidemics which is not being done. Insecticides should be sprayed regularly
before the onset of rains which is presently not being done timely. They also
suggested that there should be proper coordination between health department and
panchayati raj.
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Need Assessment of U LBs & Panchayati Raj Institutions
There were hardly any public toilet facilities at gram panchayats. The
maximum number of public toilets was in Kota and Ganganagar while there were
hardly any in the other districts. The regular maintenance, cleaning and condition of
the public toilets was dismal. The Sarpanchs opined that they do not promote the
idea of public toilets due to lack of maintenance and cleanliness which eventually
makes them non usable. Separate toilet facility for ladies was also not available
calling for an urgent requirement specifically at community places.
Own Sources of Revenue
Four gram panchayats out of 56 reported to have their own source of revenue.
For the prime reason of losing votes and goodwill, the Sarpanchs were reluctant to
levy any kind of local taxes to augment revenue. Out of these four panchayats one
was from Kota, two from Dungarpur and one from Bhilwara. Two of these
panchayats have levied taxes on haat, one as House tax and the fourth on taxes on
Land Deeds. On being asked whether the Sarpanch was willing to introduce a new
tax to be levied by the Gram Panchayats, two third of them expressed reluctance.
This is a trend which needs to be checked with disincentives.
Table 3.33 Opinion about the acceptability of these taxes by People
Table 3.34 New Taxes which may be introduced
S.No. Item Response
1 Taxes on liquor shops 11
2 Small shops,thadi 9
3 Percentage on registries 4
4 Mobile towers 3
District Responses
Karauli 2
Jaipur 3
Ganganagar 3
Dungarpur 0
Bhilwara 2
Barmer 0
Kota 5
Total 15
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Need Assessment of U LBs & Panchayati Raj Institutions
5 Taxes on mining 2
6 Vehicle tax 1
7 Sanitation tax 1
8 Marriage lawns,places 1
9 Road tax 1
10 Grazing lands(charagah) 1
11 Highway restaurants 1
12 Taxes on factories 1
13 Taxes on agriculture production 1
14 Taxes on fairs 1
During the study, an attempt was made to enquire about the willingness of
the Sarpanchas to levy taxes by the Gram Panchayats. In addition they were also
asked to identify the areas where these taxes may be levied. It was found that
majority of them proposed to levy taxes on liquor shops, small shops, thadis and
mobile towers. Other suggestions included percent on registry amount, mining
tax,tax on marriage lawns etc.
Out of 21 gram panchayats who expressed their willingness to levy taxes in
future, people in 15 gram panchayats expressed their readiness for paying the taxes
whereas people from 6 gram panchayats do not favour the idea of any new taxes. In
Barmer and Dungarpur, people are not ready for new taxes as they are financially
not sound.
Details of Works being done by SFC/TFC Grant
Most of the grants received from the finance commissions are spent on
drinking water, emoluments of the elected representatives, drainage and roads.
Some of the GPs mentioned spending on sanitation, street lighting, solid waste
management and public facilities but it seemed that these activities are not on the
priority list of the GPs.
Formation of Development Committees
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Need Assessment of U LBs & Panchayati Raj Institutions
There are development committees proposed under every scheme to plan,
monitor and supervise them. The Gram Panchayat Secretary was asked about the
formation and functioning committees that have been formed under the Gram
Panchayat. That most of these communities still are just created for formality shake
and are not functional.
The Gram Secretary were aware of the Vitt evam Karadhan Samiti, Shiksha
Samiti, Prashashan evam Stapna Samiti, Jal evam Swachata Samiti, Gramin Vikas evam
Samajik Ankeshen Samiti. It is primarily due to the reason that the concern
development project SSA, NRHM, MNREGS, etc. These committees have been
formed as the funds are chanalized through these committees however. All the GPs
reported to be forming their annual plan but it was found that it was just a routine
exercise which does not reflect the local needs or the community voices.
Table 3.35 Gram Panchayat Committees for Rural Development
S.No. Name of Committee Response (n-56) Functional Committees
1 Shiksha samiti 45 3
2 Vitt and karadhan 42 1
3 Prashashan aur Staphna 40 7
4 Jal aur swachata n health samiti 35 1
5 Gramin vikas samiti 23 2
6 Samajik ankekshan 19 12
7 Arthik and samajik 17
8 Satarkta samiti 10 6
9 Sthai nigrani samiti 8
10 NREGA sthai samiti 5 2
11 Nirman samiti 4
12 Goshala a charagah vikas samiti 4 1
13 Sarvjanik vitran pranali nigrani samiti
4
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Need Assessment of U LBs & Panchayati Raj Institutions
14 Mahila and vikas samiti 1
15 Kalyankari yojna samiti 1
16 Lekha avam vitt samiti 1
It was found out that there was transparency in the matter of funds received
from various sources. The community members also expressed their awareness
about the funds received by the GP. It was found that the expenditure and audit
were transparent and available to the community. The work plan and its
implementation are also communicated to the people of the community by various
sources. According to the secretaries the most important source is Gram Sabha.
Table 3.36 Activities for Women Empowerment
S.No. Activities Response (n-56) Percentage
1 Formation of Self Help Groups 48 85.71
2 Skill Trainings 12 21.42
3 Campaigns for awareness 6 10.73
4 Priority in MNREGA 3 5.35
The activities performed by gram panchayats for the empowerment of
women have been shown in the tableabove. SHGs seem to be the most popular
vehicle for women empowerment particularly in Barmer and Dungarpur. It was
found that 48 gram panchayats do not receive any budget for women empowerment.
The rest of the gram panchayats receive budget from SGSY for training and literacy.
Awards/Rewards Received by the Gram Panchayats
It was found that 15 out of the 56 GPs have earned recognition by the central
and state governments in the form of Nirmal Gram Award, Rs 1 lakh were given as
reward to fulfil the targets for female sterilization, fulfilling targets of family
welfare, etc. All the stakeholders were very positive about the reward system as
they felt it promoted the zeal for development and motivated the representatives
for performance.
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Need Assessment of U LBs & Panchayati Raj Institutions
A Review
Recent years have witnessed an increasing interest in and growing
consciousness of the need and importance of local self-government as a provider of
services to the community as well as an instrument of democratic self-government.
Until recently, urban local government was manifested in municipal corporations,
municipal councils, municipalities and notified area committees. However, the 74th
CAA 1992 proposed to form a uniform structure of Municipal Corporations,
Municipal Councils and Municipalities.
Urban local bodies are supposed to be formed as democratic institutions
based on the principles of self-government and should represent people‘s desires
and strengths. Due to massive urban growth during the past two decades, quality of
urban life has deteriorated, creating an urgent need for vibrant and efficient ULBs
that can deliver adequate services and improve living conditions. Lord governments
are in the best position to improve service delivery as they allow for increasing both
allocative efficiency through better matching of public services to local preference as
well as productive efficiency through increased accountability of local governments
to citizens, fewer levels of bureaucracy and better knowledge of local costs.
The 74th CAA 1992 has acted upon the recommendations of the Rural-Urban
Relationship Committee and seeks to provide more power and authority to urban
local bodies. It is the first serious attempt to ensure stabilization of democratic
The Status of
Urban Local Bodies (ULBs)
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Need Assessment of U LBs & Panchayati Raj Institutions
municipal government through constitutional provisions. The 74th CAA seeks to
introduce fundamental changes in urban local bodies. Its salient feature are :
introduction of the Twelfth Schedule which lists the functions of the urban
local bodies, covering planning, regulation and development aspects (Box
4.1);
establishment of District and Metropolitan planning responsible for the
election of representatives for the preparation of development plans at district
and metropolitan levels;
establishment of ward committees in areas having a population of over
300,000;
specification by law of the powers and responsibilities;entrusted to
municipalities and ward committees;
holding of periodic and timely elections.If a municipality is dissolved for any
reason it should be reconstituted within six months.
Specifying by law the sources of municipal finances and their periodic review
by a statutorily constituted SFC and by making it obligatory on the part of the
Central Finance Commission to recommend measures needed to augment
state resources to assist the municipal governments;
Restrictions on the power of state governments to do away with
democratically elected municipal governments;
Reservation of one-third of seats for women and weaker sections in municipal
bodies;
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Need Assessment of U LBs & Panchayati Raj Institutions
Box 4.1
Twelfth Schedule of the Constitution of India
1. Urban planning, including town planning.
2. Regulation of land use and construction of buildings.
3. Planning for economic and social development.
4. Roads and bridges.
5. Water supply for domestic, industrial and commercial purposes.
6. Public health, sanitation, conservancy and solid waste management.
7. Fire services.
8. Urban forestry, protection of environment and promotion of
ecological aspects.
9. Safeguarding the interests of weaker sections of society, including
the disabled and mentally retarded.
10. Slum improvement and upgrading.
11. Urban poverty alleviation.
12. Provision of urban amenities and facilities such as parks, gardens,
playgrounds, etc.
13. Promotion of cultural, educational and aesthetic aspects.
14. Cremation and burial grounds with stress on electric cremation.
15. Cattle pounds; prevention of cruelty to animals.
16. Vital statistics, including registration of births and deaths.
17. Public amenities, including street lighting, parking lots, bus stops,
and public conveniences.
18. Regulation of slaughter houses and tanneries.
(This schedule was added by the Constitution (Seventy-fourth Amendment) Act, 1992, sec.4)
76
Need Assessment of U LBs & Panchayati Raj Institutions
In order to assess the present field situation a focused survey was done of the
various categories of the Urban Local Bodies by our Institution. In each of the ULBs,
interviews of the EO/CEO, two Councilors (Parshads) and twenty community
members were conducted. In addition, one Focus Group Discussion (FGD) was also
conducted to ascertain the public opinion. The first section of this chapter focuses on
the situation on the basis of the secondary data collected from the ULBs, while the
second focuses on the opinion of the CEO/Councilor/Community on the delivery of
the basic services.
MUNICIPAL BOARDS
The following municipal boards were selected according to the prescribed
methodology (see Chapter 2) for the study:
Table 4.1 – Sample ULBs for the Study
S.N District Name of Municipal Board
GRADE II
1 Chittaurgarh Chittaurgarh
2 Sawai Madhopur Sawai Madhopur
3 Tonk Deoli
GRADE III
4 Hanumangarh Peelibanga
5 Nagaur Kuchaman
6 Dausa Bandikui
GRADE IV
7 Tonk Uniara
8 Bundi Kapren
9 Nagaur Nawan
10 Jhunjhunu Surajgarh
11 Jaipur Jobner
Demographic profile
The population of the municipal boards was in consonance with the
prescribed norms for the categorization. The average number of wards was found to
77
Need Assessment of U LBs & Panchayati Raj Institutions
be 18 in G-II, 27 in G-III and 34 in G-IV. The incidence of poverty as reflected in the
number of BPL families at the Grade IV level was found to be high.
Table 4.2 – Population Details of the sample ULBs
Average Population
Census 2011)
Area ULBs (Sq
km)
Average no. of
households
Average Number of BPL
families
Average Number of
wards under ULBs
Municipal Board GRADE II 86496 28.2 21998 3170 34
Municipal Board GRADE III 48160 16.3 8905 1515 27
Municipal Board GRADE IV 18746 7.8 3733 1035 18
Roles and responsibilities of ULBs
An attempt to identify the functions that are being carried out by the ULBs vis
a vis the roles and responsibilities of ULBs given under Schedule-XII by the
Constitution of India. It was found that in Grade IV bodies, only building and of
land use activities, construction of roads, sanitation, solid waste management and
death-birth registration activities were being done. There was a total absence of
investing for social and economic development. Fire management, slum
rehabilitation; regulation of slaughterhouses is completely missing at this level.
Other activities are being carried out only in some of the sample grade IV ULBs. The
same fact were found for Grade III municipalities. In Grade II ULBs, except for the
regulation of slaughter houses, almost all the other activities are being done by the
ULBs. It is found that the focus of the Municipal Boards is on building and
conversion of land use activities and construction of roads. Sanitation, solid waste
management and death-birth registration activities.
78
Need Assessment of U LBs & Panchayati Raj Institutions
Income of the Municipal Boards
Table 4.3 Position of Income from govt. grants /schemes/own resources
SN
Income heads Grade-2 Grade-3 Grade-4
Income year
2011-12(in lakh)
% of Total
income
Income year 2011-
12(in lakh)
% of Total
income
Income year 2011-
12(in lakh)
% of Total
income
1 Govt grants 806.41 16.43 163.75 8.16 221.03 19.95
2 Schemes 855.85 17.44 195.51 9.74 61.55 5.55
3 Own Resource 732.19 14.92 343.29 17.11 148.78 13.43
4 Octroi Reimbursement
1537.18 31.32 552.64 27.54 321.77 29.04
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Need Assessment of U LBs & Panchayati Raj Institutions
5 Sell out Of Properties 816.8 16.64 73.74 3.68 47.26 4.27
6 Income from Security 158.95 3.24 18.95 0.94 65.28 5.89
7 Pension Fund 0 0 0 0 41.7 3.76
8 Opening Balance 0 0 658.57 32.82 200.69 18.11
Total 4907.38 100 2006.45 100 1108.06 100
Govt grants,8%
Schemes, 10%
Own Resource, 17%
Octroi Reimbursement
, 27%
4%1%
0%
Opening Balance, 33%
Position of Income for grade-3
Sell out Of Properties Income from Security Pension Fund
80
Need Assessment of U LBs & Panchayati Raj Institutions
Table 4.4 Position of Expenditure in year 2011-12
S N
Expenditure head Grade-2 Grade-3 Grade-4 Expenditure in
year 2011-12(lakh)
% of Total Expenditure
Expenditure in year 2011-
12(lakh)
% of Total Expenditure
Expenditure in year 2011-
12(lakh)
% of Total Expenditure
1 Establishment 1849.19 39.50 644.32 50.59 425.53 45.74
2 Administration 273.4 5.84 38.04 2.99 39.55 4.25
3 Solid waste 123.73 2.64 105.61 8.29 174.92 18.80
4 Street lighting 141.81 3.03 50.99 4.00 28.32 3.04
5 Election &Programmes 82.5 1.76 10.38 0.81 0.19 0.02
6 Other programmes 135 2.88 15 1.18 13.53 1.45
7 Road & Over bridge 870.77 18.60 222.00 17.43 83.27 8.95
8 Drainage 41.04 0.88 101.97 8.01 50.3 5.41
10 Burials and burial ground
18.5 0.40 3.75 0.29 0 0.00
11 Community hall 56.8 1.21 5.00 0.39 5.45 0.59
12 Garaging land 0 0.00 0 0.00 0.5 0.05
13 Garage 16 0.34 0 0.00 0 0.00
Govt grants, 20%
6%
Own Resource, 13%
Octroi Reimbursement
, 29%
4%
6%
4%
Opening Balance, 18%
Position of Income for grade-4
Schemes Sell out Of Properties Income from Security Pension Fund
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Need Assessment of U LBs & Panchayati Raj Institutions
14 Public Health 5.23 0.11 1.5 0.12 0 0.00
15 Public Toilets 5.59 0.12 5.25 0.41 2.97 0.32
16 Park 35.15 0.75 12.86 1.01 2.46 0.26
17 Water 47.09 1.01 10.3 0.81 0.72 0.08
18 Vehicle 40 0.85 39.07 3.07 23.88 2.57
19 Fire Brigade 79.96 1.71 5.11 0.40 5.68 0.61
20 Sewage 0 0.00 0 0.00 0 0.00
21 Other office expenses 860 18.37 2.5 0.20 0 0.00
22 Other 0 0 0 0 73.04 7.85
Total 4681.76 100.00 1273.65 100.00 930.31 100
Establishment & Administration
45%
Solid waste3%
Street lighting3%
Road & Over bridge19%
Public Health &Public Toilets
0%
Others12%
Other office expenses
18%
0%
Expenditure in year 2011-12 Grade-2
Establishment&Administration
54%
Solid waste
8%Street lighting
4%
Road & Over bridge17%
Public Health &Public Toilets
1%
Others16%
Other office expenses
0%
Expenditure in year 2011-12 Grade-3
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 4.5Estimated budget for the year 2012-13
SN Budget head Estimate budget for
year 2012-13(` in Lakh)
% of Total Expenditure
Per capita Expenditure
(`)
Per Household
Expenditure (`)
1 Establishment 3328.97 39.67 668.87 2988.95
2 Administration 420.48 5.01 84.48 377.53
3 Solid Waste 522.03 6.22 104.89 468.71
4 Street Lighting 274.60 3.27 55.17 246.55
5 Election &Programmes
129.50 1.54 26.02 116.27
6 Other expenses 1602.40 19.09 321.96 1438.73
7 Road &Overbridges
637.07 7.59 128.00 572.00
8 Drainage 462.75 5.51 92.98 415.48
9 Cremation and burial grounds
28.50 0.34 5.73 25.59
10 Community halls 108.90 1.30 21.88 97.78
11 Garages 17.60 0.21 3.54 15.80
12 Public Health 18.73 0.22 3.76 16.82
13 Public Toilets 61.84 0.74 12.43 55.52
14 Parks 76.66 0.91 15.40 68.83
15 Drinking Water 114.10 1.36 22.93 102.45
16 Vehicles 90.18 1.07 18.12 80.97
17 Fire Brigade 204.10 2.43 41.01 183.25
18 Sewage 3.60 0.04 0.72 3.23
19 Others 290.60 3.46 58.39 260.92
Total 8392.61 100.00 1686.28 7535.39
Establishment&Administration
54%
Solid waste
8%Street lighting
4%
Road & Over bridge17%
Public Health &Public Toilets
1%
Others16%
Other office expenses
0%
Expenditure in year 2011-12 Grade-4
83
Need Assessment of U LBs & Panchayati Raj Institutions
SOLID WASTE MANAGEMENT
The amount of solid waste for a day in 147.5 tonnes out of which only 137.2
tonnes is collected everyday and the remaining 10.3 tonnes remains uncollected
raising problems of pollution for inhabitantly. In fact, the per capita output of solid
waste is 0.30 kg. It is necessary to improve the process of collecting solid waste.
Across all the sampled boards, presently there are 872 sweepers, out of whom
34.8% are on contract. The requirement is for 980 more sweepers. It means that at
present the number of sweepers (1 sweeper for 570 persons) is not as per laid down
requirements. With the addition of 980 more sweepers the coverage in terms of
persons covered will be with comes down to 268. Though it is still above the
prescribed average, of one sweeper per 250 populations, there will be a quantum
jump from the present status of sweepers in numbers.
Table 4.6 Requirement ofManpower forSolid Waste Management
Municipal Board
Present Proposed Sweepers Jamadars Population
(Per sweeper) Additional requirement of sweepers
Planned coverage
population per sweeper
Total Regular Contractual
Grade II 500 376 124 13 519 500 259 Grade III 188 123 65 2 768 305 293 Grade IV 184 69 115 3 509 175 261
Above table reveals that as the estimated population across sampled Grade-II
ULBs comes to 259489. Presently there are 500 sweepers, out of whom 367 are
regular and 124 are contractual. The additional requirements of 519 more sweepers
will make the coverage of population per sweeper to 259, which at present is 519,
much higher than the prescribed average i.e. one sweeper per 250 populations.
In III grade Municipal Boards, at present there are 188 sweepers out of whom
123 are regular and 65 are contractual. The average population of such boards is
144481. Thus 768 populations are covered by one sweeper.With the quantum
increase of sweepers by 305, the coverage of population will come to 293 by one
sweepers.
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Need Assessment of U LBs & Panchayati Raj Institutions
Grade-IV municipal Boards has the estimated population as 93731 and 184
sweepers at present, of which 115 are regular and 03 are contractual. With additional
requirement of 175 were sweepers, the coverage of population by one sweeper will
come to 261, which presently is 509.
Interval of Cleaning
Though as per prescribed norms, the clearing of garbage and cleaning of
roads and lanes should be done twice a day, the practice of cleaning once a day is in
vogue. There is no need to change it.
Status of Equipment for cleaning and clearing garbage
Various kinds of equipments are used for cleaning and collection of garbage.
There is need to further augment the capacity of these equipments for which a
budget estimate of Rs.202.82 lakhs has been proposed by the respective Municipal
Board. These estimates in physical and financial terms have been taken from the
Annual Plan of the concerned Municipal Boards.
Table 4.7 Status and needs of Equipments for Solid Waste Management in Sample Municipal Board
SN Assets Present status
Additional requirement in next year
Estimate budget required in next year
` in lakh 1 1cubic m. Dustbins 334 48 2.424 2 3 cubic m. Dustbins 212 65 12.58 3 7.5cubic m. Dustbins 5 20 15 4 Tri cycles 4 0 0 5 Rehedi (with dustbins) 55 25 1.25 6 Tractors 31 16 85.62 7 Mini trucks 10 0 0 8 Trucks 0 1 9.8 9 Tippers 1 3 30
10 Compactors 1 0 0 11 Dumper Placers 4 4 21.61 12 Loaders 7 2 19.8 13 Container lifting devices 3 1 1.74 14 Auto placers 0 0 0 15 Others (JCB) 4 0 0 16 Tempo loaders 4 2 3
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Need Assessment of U LBs & Panchayati Raj Institutions
Total 202.824
Solid Waste Production
On the basis of the data obtained from the EOs of the respective ULBs it was
found that average production of solid waste per capita was 300gm per capita per
day. This has been taken as the norm for solid waste production while calculating
the costs in the later chapters.
Table 4.8 Production of solid waste per day Production
of solid waste per
day (in tonnes)
Solid waste pick up per
day
(in tonnes)
Gap in solid waste
(in tonnes)
Production of solid
waste per capita (in kg)
Production of solid waste per
household
(in kg)
Total 147.5 137.2 10 0.30 1.32
Status of Street Lights
In the year 2011-12, there were 31610 street light points. It is proposed to
increase the number to 34216, thus bringing the per capita light points to 15.52 in the
year 2012-13 from 17.35 in the year 2011-12.
It may be stated that the situation in this regard is better in small towns (with
municipal boards) than in cities.On the other hand, however, the small towns have
only 152 timers for regulating the street lights. In fact, there should be 1 timer for 50
lights. Presently,one timer regulates 208 street light points. This situation is liable to
have adverse impact on the functioning of street lights. Danger of the collapse of
street light system is inherent in such situations.
Table 4.9 Status of street lighting points
Equipment
LED CFL Available
in year 2011-12
Estimated no. for next
year
Estimated budget for next
year (`Lakh)
Available in year 2011-12
Estimated no. for next year
Estimated budget for next year (` Lakh)
Tube lights 18084 1200 12.21 6266 496 4.376
Bulbs 2131 535 1.87 337 70 0.56
Mercurys 200 0 0 0 0 0
Sodium lights 3980 285 9.975 472 4 0
High mask 26 6 10.8 14 0 0
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Need Assessment of U LBs & Panchayati Raj Institutions
lights
Gen. bulbs 0 0 0 0 10 360
Others 0 0 0 100 0 0 Total Points 24421 2026 34.855 7189 580 364.936
Table 4.10 Status of timers
Status of Timer Solar Automatic Manual Coverage points per
timer
Coverage population per
timer
2011-12 0 139 13 207.96 3274.35
Table 4.11 Status of street light points
Number of points in 2011-12
Coverage population per point
Number of points in 2012-13
Coverage population per
point
Grade II 18920 13.71 19619 13.22
Grade III 8142 17.75 9379 15.40
Grade IV 4548 20.60 5218 17.96
FIRE FIGHTING EQUIPMENT
Table 4.12 Status of equipments
Equipments Status in year 2011-12
Estimated Requirement for
2012-13
Estimated budget for 2012-13 (` inLakh)
Snorkel/hydraulic platform 0 0 0
Water blazers 5 3 28.5
Foam tenders 1 3 37
Water tenders 5 4 32
Jeeps 0 0 0
Others 0 0 0
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Need Assessment of U LBs & Panchayati Raj Institutions
The equipment for fire fighting is not adequately available in the small towns.
There is need to augment the capacity of equipment available for fire fighting. Three
more water blazers, three foam tenders and four water tenders are required for
which an estimated expenditure of 243.3 lakhs is needed in addition to the exsisting
setup.
Waste water drainage
There is need to have drainage outfits for 722 kms.. Presently, the drainage
system accounts for 119.2 km which is much less than the requirement. 54 km of
drainage system have been proposed for the year 2012-13. Repair is needed for 17.3
kms. of the existing length of the drainage system.
Table 4.13 Physical Status of drainage (Nalis)
Requirement of nali (km)
Total length of drainage nali (km)
Proposed nali in next year (km)
Proposed maintenance of nali
in next year(km)
Grade II 81.2. 485 27 10
Grade III 12.5 51.5 10.5 2.6
Grade IV 25.5 66.5 16.5 4.7
Total 119.2 603 54 17.3
In Grade-II Municipal Boards across the sample the present length of
drainage is 485 km. and requirement of 81.2 km. of nail is proposed, out of which 27
km. of nail is required to be constructed in 2012-13 and 10 km. nali‘s maintenance is
proposed in 2012-13.
Grade-III sampled Municipal Boards have 51.5 km. of nail, with the proposal
of requirement of 12.5 km. nail, 10.5 km. will be constructed and 2.6 km. will be
maintained in the year 2012-13.
At present 66.5 of drainage is there in Grade-IV sampled Municipal Boards. It
has been proposed that 25.5 km. of nail is required, out of which 16.5 km. nail is
proposed for construction and 4.7 km. for maintenance in the year 2012-13.
Table 4.14 Financial Status of drainage (Nalis)
88
Need Assessment of U LBs & Panchayati Raj Institutions
Expenditure
for nali (2011-12)
Lakh
Expenditure for maintenance of nali (2011-12)
Lakh
Estimate budget for nali(2012-13)
Lakh
Estimate budget for maintenance of nali(2012-13)
Lakh
Grade II 36.82 4.22 86.40 4.6
Grade III 82.97 19.00 184.00 50.0
Grade IV 35.00 15.30 80.00 57.75
Total 154.79 38.52 350.40 112.35
Grade-II sampled Municipal Boards have incurred the expenditure of Rs.36.82
lakh on construction of nail and Rs.4.22 on maintenance of nail in 2011-12. There is a
proposed estimated expenditure of Rs.86.40 lakh for construction of nail and Rs.4.6
lakh for maintenance in the year 2012-13.
In Grade-III sampled Municipal Board the expenditure of Rs.35.00 lakh on
construction of nail and Rs.15.30 lakh on maintenance of the same has been done in
2011-12. Rs. 80.00 lakh for construction of nail and Rs.57.75 lakh for maintenance are
proposed for the year 2012-13.
Across the sampled Municipal Boards of Grade-IV, Rs.182.97 lakh has been
incurred as expenditure on construction of nail and Rs.19.00 lakh on maintenance in
2011-12. The estimated expenditure for 2012-13 of Rs.184.00 lakh on construction and
Rs.50.00 lakh on maintenance is proposed.
Status of Public Toilets
Presently, there are 166 public toilets, eight sulabh toilets and six urinals.
There is need to have 86 public toilets and fivesulabh toilets for which proposal has
been made at appropriate level. An estimated budget of Rs.61.7 lakh has been
proposed and submitted for acceptance to the concerned authorities by the
municipalities.
Cremation and Burial Grounds
Presently there are 57 cremation grounds and 21 grave yards, with 162.5bigha
and 73.5bigha of land respectively. There is need to have 5bigha more for cremation
grounds.
Table 4.15 Physical status
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Need Assessment of U LBs & Panchayati Raj Institutions
No .of cremation and
burial grounds Area of cremation and
burial grounds (in bighas)
Additional area require for cremation
and burial ground (in bighas)
Cremation Burial grounds
Cremation Burial grounds
Cremation Burial ground
Grade II 19 8 21.5 13 .0 0 0 Grade III 9 5 42.5 38.5 0 0 Grade IV 29 8 98.5 25 5 - Total 57 21 162.5 73.5 5 0
Public Parks
There are 86 public parks managed by the ULB‘s, covering 1955 sq. meters
each. 16 more public parks are needed for which proposals have been submitted.
Presently, there are 97 gardeners for the maintenance of these parks, which is
satisfactory.
Table 4.16 Physical status of Public Parks
Status of Public parks
No .of Public parks
Area of Public parks
(sq.meter)
Additional Public parks
require
Additional area require for
Public parks(sq.meter)
Public parks run by ULBs
86 168140 16 37442
Table 4.17
Total no. of workers in public parks
Regular Contractual
97 9 88
Community Halls
There are 56 community halls and 39 more have been proposed for the year
2012-13. Presently, there is one community hall for around 9000 people.
Table 4.18 Physical status of Community halls
Status of Community halls
No. of Community
Area of Community
Additional Community
Additional area required for
90
Need Assessment of U LBs & Panchayati Raj Institutions
halls halls(in Sq.
ft.) halls
required Community halls(in Sq.ft.)
Community halls run by ULBs
56 24865 39 24075
Roads
The total length of roads etc. in the sampled ULBs comes to 713 kms. It is
proposed to construct 21.6 kms. of roads during the year 2012-13.
Table 4.19
Construction Total length of
roads /number
in present
Construction of
Road/pulia/rapat in
year 2011-12 (KM)
construction of
Road/pulia/rapat in year
2012-13 (KM)
Estimate construction
of Road/pulia/
rapat in year 2012-13
(KM)
Estimate budget for Road/pulia/rapat in year 2012-
13 (`in lakh)
Per Km expenditure
12-13(`in lakh)
C.C. Roads 262.8 19.63 21.86 13.8 287.23 20.79
Kachchi Roads
39 0 3 1 2 2.0
Pukki Roads 434.3 3 20.6 6.4 96.8 15.12
Rapats 35 10 16 13 91 7.0
Gravel Roads 16 3 2 1.4 10 7.14 Total 487.03
Repair of Roads
Out of 713.1 km of roads, etc. 36.2 kms. of roads need repairs for which proposals
have been submitted with estimated budgetary requirements.
Table 4.20 Physical and financial status for Repairing of Road/pulia/rapat
Repairing Repairing of
Road/pulia/rapat in year 2011-
12
Repairing of Road/pulia/rapat in year 2012-13(KM)
Estimate Repairing of Road/pulia/rapat in year 2012-13(KM)
Estimate budget for Repairing
Road/pulia/rapat in year 2012-13
in Lakh
Per KM expenditure
2012-13 (`in lakh)
Per capita expenditure
2012-13 (`in Rs)
C.C. Roads 28.4 13 21.2 97.04 4.58 19.50
91
Need Assessment of U LBs & Panchayati Raj Institutions
Kachchi Roads
0 0 0 0 0 0.00
Pukki Roads 2 3.4 0 0 0 0.00
Gravel Roads 25.5 2.3 15 53 3.54 10.65
Rapats 0 0 0 0 0 0.00
Pulias 0 0 0 0 0 0.00
Total 30.15
Public Health System
For material for the maintenance of public health, Rs.9.7 lakhs were spent
during the year 2011-12. It is proposed to spend Rs.18.7 lakhs during the year 2012-13.
Table 4.21 Physical and financial status of Public health activities
Material Utilized amount in
2011-2012(Kg\ltr)
Expenditure 2011-12
(`in lakh)
Requirement in year 2012-2013(Kg\ltr)
Budget require in
year 2012-13
(`in lakh)
Per capita
(`in Rs)
Insecticide/D.D.T. 13800.0 4.2 18600.0 5.4 1.09
Fogging 500.0 0.3 100.0 0.8 0.16
Lime 150.0 0.0 150.0 0.0 0.00
Nuvan 0.0 0.0 0.0 0.0 0.00
Phenyl 7365.0 4.1 18600.0 11.2 2.24
Crude oil 870.0 0.4 1070.0 0.7 0.14
Acid(Salt) 3600.0 0.4 5000.0 0.5 0.10
Equipments 3.0 0.3 1.0 0.1 0.02
Total 9.7 18.7 3.76
MUNICIPAL COUNCILS
The Municipal Councils, two were selected on the basis of the composite
index. They were Churu and Udaipur.
Municipal Councils were enquired about the activities being undertaken to
ascertain their focus. It was reported that almost all the roles and responsibilities of
92
Need Assessment of U LBs & Panchayati Raj Institutions
ULBs given under Schedule-XII of theConstitution of India are being undertaken by
the Municipal Councils.
SOLID WASTE MANAGEMENT
Status of Sweepers
At present the total number of sweepers is 1884 out of whom 55% are on
contract. The average of population per sweeper comes to 319. There is need to
improve the situation in this regard. It is proposed to have 500 more sweepers in
order to have a better average of population per sweeper. In that situation the
average will be 252 persons per sweeper.
There are 26 Jamadars to supervise the work of 1884 sweepers. It is indeed a
tall order as presently there are 72 sweepers working under one Jamadar. With the
increase in the number of Sweepers, the number of Jamadar should also be
increased. Hence it is proposed to have 69 more Jamadars in order to have 25
sweepers under one Jamadar on an average. This will also be in accordance with
prescribed norms.
Table 4.22 Status of sweepers
Present Proposed
Sweepers Sweepers
Total Regular Contractual Jamadars Coverage population
(Per sweeper)
Additional requirement
Planned coverage
population
(per sweeper)
1884 849 1035 26 319 500 252
As per rules, the cleaning of roads and removal of garbage should be done
twice in a day. But presently this is being done only once in a day. There is need to
adhere to the norm and it may be possible with the addition of 500 more sweepers as
proposed above.
Status of Equipments
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Need Assessment of U LBs & Panchayati Raj Institutions
There are 13 kinds of equipment for cleaning and removal of garbage etc.
There is need to augment the equipments with additional inputs. An estimated
budget for this purpose has been prepared amounting to 272.8 lakhs.
Table 4.23 Status of assets
S N Assets Present status
Additional requirement in next year
Estimate budget require in next
year(Lakh)
1 1cubic m. 80 10 0.35450
2 3 cubic m. 35 20 3.0
3 7.5cubic m. 6 - -
4 Tri cycle - - -
5 Rehedi(with dustbins) - - -
6 Tractor 16 4 20.14
7 Mini truck 1 1 10.0
8 Truck 1 3 58.00
9 Tippers 11 1 3.9
10 Compactors 1 3 12.35
11 DumperPlacer macro/mini 10 3 79.9
12 Loader 8 3 35.25
13 Container lifting device 3 1 5.00
14 Auto placer 2 0 0
15 Other (JCB) 2 1 45.00
16 Tempo loader 0 0 0
94
Need Assessment of U LBs & Panchayati Raj Institutions
Total 272.8945
Daily output of Solid waste
270 tonnes of garbage (solid waste) in the daily output in the two towns of
Churu and Udaipur. But only 207 tonnes of solid waste is collected everyday. This
leaving streets and lanes littered with garbage. It is stated that the per capita output
of solid waste is 449 grams. It is proposed that there should be improved mechanism
of the management of solid waste. The additional force of sweepers may contribute
in improving the situation.
Table 4.24 Solid Waste
Production of solid waste per day (Tones)
Pick up solid waste per day (Tones)
Gap in solid waste (Tones)
Production of solid waste per capita
Production of solid waste per household
270 207 63 0.449 kg 2.55kg
Table 4.25 Budget for solid waste
Expenditure for solid waste in year 2011-12
Per capita expenditure for solid waste in year 2011-12
Per HH expenditure for solid waste in year 2011-12
Budget for solid waste in year 2012-13
Per capita Budget for solid waste in year 2012-13
Per HH expenditure for solid waste in year 2012-13
2872.36lakh `478 ` 2719.56 ` 3415.09 lakh
` 568 ` 3233
*722.67 with recurring cost ,new purchase+ 2126.68 salary allowances + GPF 23.00 ** 748.00 with recurring cost+
STREET LIGHTING
Table 4.26 Status of street lighting points
95
Need Assessment of U LBs & Panchayati Raj Institutions
Equipment
LED CFL
Available in year 2011-12
Estimated no. for
next year
Estimated budget for next year(in lakh)
Available in year 2011-12
Estimated no. for
next year
Estimated budget for next year(in lakh)
Tube light 55 150 1.65 21789 1200 13.20
Bulb 0 0 0 1985 0 0
Mercury 0 0 0 0 0 0
Sodium light
5155 0 0 400 0 0
High mask light
12 5 25.0 0 0 0
Gen. bulb 0 0 0 0 0 0
Other 1 10 3.40 0 0 0
Total 5223 165 30.05 24174 1200 13.20
Table 4.27 Status of maintenance and expansion of points
Particulars Year 2011-12(in lakh)
Estimated for next year(in lakh)
Expenditure for expansion of points 82.75 55.50
Expenditure for transformers 0 0
Expansion of new points 4970 1365
80 % equipments in dead situation in 2011-12
Avg. distance between street lights – 20 mtr.
Table 4.28 Status of timers
Timer Solar Automatic Manual Coverage point per
timer
Coverage population per timer
Status in year 2011-12 22 13 0 848 17171
Status of Street Light Points
Presently the total points of street lights are 29697 covering 20.33 persons per
point. IT is proposed to have 31062 more points in order to bring the coverage to
19.35 persons per point.
96
Need Assessment of U LBs & Panchayati Raj Institutions
Table 4.29 Status of street light points
Number of points in 2011-12
Coverage population per point
Number of points in 2012-13
Coverage population per
point
29697 20.23 31062 19.35
Fire Extinguishers : Status of Equipments
There is only one fire station in each of the sampled towns viz. Churu and
Udaipur. The equipment for extinguishing the fire is inadequate as only 4 Water
Blazers. 2 Foam lenders and 7 water lenders are available for firefighting situations.
The fire stations have only a few trained persons. In fact contract labour is mostly
used and most of contract labours are untrained. It is proposed by the councils to
have 2 hydraulic platforms and 2 more water blazers, for which budget estimates
have been submitted.
Table 4.30 Status of equipments
Equipments Status in year 2011-12
Estimated for next year
Estimated budget for next year
(in lakh)
Snorkel/hydraulic platform 0 2 22
Water blazer 4 2 28
Foam tender 2 0 0
Water tender 7 0 0
Jeep 1 0 0
Fire station 2 2 27.00
Other 0 1 8.95
Physical status of Drainage system
Drainage outfits of 1255.5 kms length are available in the two towns. It is
proposed that drainage outfits of 710 kms. more should be constructed. Out of this,
the councils propose to construct 56 kms. of length drainage in the year 2012-13. 13
kms. of existing drainage outfits will also be repaired.
Status of Public Toilets
97
Need Assessment of U LBs & Panchayati Raj Institutions
Presently there are 331 public toilets and 35 sulabh toilets in the two towns. 17
more public toilets are needed for which budget estimates have also been submitted.
Table 4.31 Status of public toilets
Status of toilets
No. of public toilets
(2011-12)
Expenditure for public
toilets in(2011-12)
Additional requirement
of public toilets
in(2012-13)
Budget for maintenance
of public toilets
in(2012-13)
Per capita Budget for
public toilets
Public toilets 331 19.05 17 13.8 2.29
Sulabh toilets 35 16.63 - 65.0 10.81
Urinals - - - -
Total 35.68 lakh 78.8 lakh 13.11
Cremation and Burial Grounds
There are 30 cremation grounds and 14 grave yards and there is no need to
have more of them. It is, however, necessary to maintain them, and to make them
more suitable to meet the necessary needs of concerned people.
Public Parks
There are 165 public parks managed by Municipal councils and 28 parks
under the supervision of public committees. There is need to have 15 more public
parks under the ULP system. It is however, necessary to have proper maintenance of
these parks. Presently the staff for this purpose is extremely inadequate. There are
only 67 persons to maintain 193 parks, which indeed is a tall order.
Table 4.32 Physical status of Public parks
Status of Public parks No .of Public parks
Area of Public parks
(in sq.m)
Additional Public parks
require
Additional area require for
Public parks (in sq.m)
Public parks run by ULBs 165 161400 15 11500 Public parks run by 28 22000 0 0
98
Need Assessment of U LBs & Panchayati Raj Institutions
Agency/committee. Public parks run by Trust/community
0 0 0 0
Community Halls
67 Community Halls exist in two cities under the sample. Some of them need
repairs. It is proposed to have 15 more community halls to meet the needs and
requirements of growing population.
Table 4.33 Physical status of Community halls
Status of Community halls
No .of Community
halls
Area of Community
halls
Additional Community halls equire
Additional area require for
Community halls Community halls run by ULBs
67 36200 sq.yard.
15 6000 sq.yard.
Public parks run by Trust/community
0 0 0 0
Physical Status of Roads
The road and lane system in the cities has coverage of 1863 kms. in terms of
length. It is proposed to have 37.2 kms. of additional coverage under roads and
lanes. A budget estimate of Rs.604/- lakhs has been proposed.
Table 4.34 Physical and Financial status of Roads
Construction Total length of
roads /number
in present
Km
Construction of
Road/pulia/rapat in year
2011-12
Km
Construction of Road/pulia/rapat
in year 2012-13
Km
Estimate construction of
Road/pulia/rapat in year 2012-13
Km
Estimate budget for
Road/pulia/rapat in year
2012-13
Lakh
C.C. Road 1235 11 9.5 16.2 397.0
Kachchi road 0 0 0 0 0
Puckki road 608 20 14 13 187
Gravel road 20 1.5 1 8 20
Total 604
99
Need Assessment of U LBs & Panchayati Raj Institutions
Maintenance of Roads
It is proposed to repair 36.5 kms. of roads during the year 2012-13. Rs.395
lakhs have been sanctioned for this purpose.
Table 4.35 Physical and financial status for Repairing of Road/pulia/rapat
Repairing Repairing of Road/pulia/
rapat in year 2011-12
Km
Repairing of Road/pulia/rapat
in year 2012-13
Km
Estimate Repairing of
Road/pulia/rapat in year 2012-13
Km
Estimate budget for Repairing
Road/pulia/rapat in year 2012-13
Lakh
C.C. Road 12 15.5 23.5 289
Kachchi road 0 0 0 0
Gravel road 0 0 0 0
Pukki road 16.5 11 13 106
Total 395
Public Health Activities
Different kinds of material are used for maintaining the health of the people.
The Department of Public Health is supposed to use insecticides, DDT, Phenyle,
limeetc for keeping the environment conducive for good health. In the year 2011-12,
4.29 lakhs were spent on public health. It is now proposed to spend Rs.4.79 lakhs on
the maintenance and further improvement of public health system.
Table 4.36 Physical and financial status of public health activities
Material
Utilize amount in
2011-12
Expenditure 2011-12(in
Rs)
Requirement in year 2012-13
Budget require in
year 2012-13(in
Rs)
Per capita expenditure(i
n Rs.)
Insecticide/D.D.T. 750 kg 28125 1050kg 39375 0.066
Pyrathine 215 ltr 186921 250 Lt. 217500 0.362
Fogging - - - - 0.000
Lime 2800 105000 3000kg 112500 0.187
Nuvan 0 0 0 0 0.000
Phenyl 1400 Lt 91104 1400 Lt. 91000 0.151
Crude oil 100 3450 110 lt 3800 0.006
100
Need Assessment of U LBs & Panchayati Raj Institutions
Acid(Salt) 2000 lt. 15000 2000 lt. 15000 0.025
Equipments 0 0 0 0 0.000 Total 429600 479175 0.797
INCOME AND EXPENDITURE
Table 4.37 Position of Income from govt. grants /schemes/own resources/taxes
Table 4.38 Position of Expenditure in year 2011-12
S. No. Expenditure head Expenditure in year 2011-12(lakh)
% of Total Expenditure
Per capita(Rs)
Govt grants10.53
Own Resource19.35
Octroi37.45
Income For Security0.2
Opening Balance28.57
Position of Income from govt. grants /schemes /own resources/taxes in councils
S.No. Income heads Counsil Income year 2011-12(lakh) % of Total income
1 Govt grants 1558.96 10.53
2 Schemes 219.02 1.48
3 Own Resource 2865.55 19.35
4 Octroi/ 5547.23 37.45
5 Sell out Of Properties 358.94 2.42
6 Income For Security 30.05 0.20
7 Pension Fund 0 0
8 Opening Balance 4232.18 28.57
Total 14811.93 100
101
Need Assessment of U LBs & Panchayati Raj Institutions
1 Establishment 4245.47 54.62 706.40
2 Administration 347.10 4.47 57.75
3 Solid waste 722.67 9.30 120.24
4 street lighting 349.33 4.49 58.12
5 Election &Programmes 4.50 0.06 0.75
6 Other programmes 86.39 1.11 14.37
7 Road & Over bridge 705.95 9.08 117.46
8 Drainage 227.44 2.93 37.84
9 Other Development work 303.38 3.90 50.48
10 Burials and burial ground 15.25 0.20 2.54
11 Community hall 9.21 0.12 1.53
12 Garaging land 30.74 0.40 5.11
13 Garage 43.71 0.56 7.27
14 Public Health 4.29 0.06 0.71
15 Public Toilets 35.68 0.46 5.94
16 Park 194.58 2.50 32.38
17 Water 0 0.00 0.00
18 Vehicle 237.33 3.05 39.49
19 Fire Brigade 195.24 2.51 32.49
20 Sewage 11.92 0.15 1.98
21 Other office expenses 3.19 0.04 0.53
Total 7773.37 100.00 1293.40
Table 4.39 Position of Estimate budget for year 2012-13 S. No.
Budget head Estimate budget for year 2012-
% of Total Expenditure
Per capita Expenditure
(Rs)
Per Household Expenditure(Rs)
706.40
57
.75 12
0.2
4
58
.12
0.7
5
14
.37
11
7.4
6
37
.84
50
.48
2.5
4
1.5
3
5.1
1
7.2
7
0.7
1
5.9
4
32
.38
0.0
0 39
.49
32
.49
1.9
8
0.5
3
Position of Per Capita Expenditure in year 2011-12 - Municipal Council
102
Need Assessment of U LBs & Panchayati Raj Institutions
13(lakh)
1 Establishment 5293.18 50.97 880.73 5011.627
2 Administration 580.30 5.59 96.56 549.4329
3 Solid waste 748.00 7.20 124.46 708.2126
4 street lighting 422.50 4.07 70.30 400.0265
5 Election & Programmes 4.5 0.04 0.75 4.260637
6 Other programme 120.00 1.16 19.97 113.617
7 Road & Over bridge 999.00 9.62 166.22 945.8615
8 Drainage 570.00 5.49 94.84 539.6807
9 Other development work 450.0 4.33 74.88 426.0637
10 Burials and burial ground 52.00 0.50 8.65 49.23403
11 Community hall 27.00 0.26 4.49 25.56382
12 Garaging land 40.00 0.39 6.66 37.87233
13 Garage 53.00 0.51 8.82 50.18084
14 Public Health 4.79 0.05 0.80 4.535212
15 Public Toilets 78.8 0.76 13.11 74.60849
16 Park 226.17 2.18 37.63 214.1396
17 Water 0 0.00 0.00 0
18 Vehicle 317.5 3.06 52.83 300.6116
19 Fire Brigade 357.24 3.44 59.44 338.2378
20 Sewage 30.00 0.29 4.99 28.40425
21 Other office expenses 11.00 0.11 1.83 10.41489
Total 10384.98 100.00 1727.95 9832.585
MUNICIPAL CORPORATIONS
Two municipal corporations, Jaipur and Ajmer were chosen on the composite
index basis for in-depth analysis. It was found that, on an average, the area covered
under a Municipal Corporation was 66 sq km. with 66 wards. The number of BPL
families was 20660.
Table 4.40 Demographic profile
Population Census 2011
Area ULBs
Total no.of households
No. of BPL families
Number of wards under ULBs
1807965 66 Sq.km. 279400 20660 66
Financial Position of a Municipal Corporation - INCOME AND EXPENDITURE
The following Table reveals that the own revenue is very little.
103
Need Assessment of U LBs & Panchayati Raj Institutions
Table 4.41 Position of Income from govt. grants /schemes/own resources/taxes
Table 4.42 Position of Expenditure in year 2011-12
S. No.
Expenditure head Corporation
Expenditure in year 2011-12(lakh)
% of Total Expenditure
Per Capita (Rs)
1 Establishment 24258.44 51.58 672.28
2 Administration expanses 3126.47 6.65 86.64
3 Sanitization/Solid waste 2463.49 5.24 68.27
4 Election &Programmes 86.85 0.18 2.40
5 Road & Over bridge 2832.98 6.02 78.51
6 Drainage 526 1.12 14.57
7 Electricity 810.39 1.72 22.48
8 Gerage 1015.92 2.16 28.15
9 Seewrage 686.98 1.46 19.03
10 Public Health 83.68 0.18 2.31
11 Public Toilet 57.45 0.12 1.59
12 Park 418.38 0.89 11.59
13 Water Facility/Tanker 70.28 0.15 1.94
14 Shamsan/Kabristan 68.65 0.15 1.90
Own Resource21%
Octroi42%
Sell out Of Properties17%
Income For Security2%
Financial Position of a Municipal Corporation
S.No Income heads Corporation
Income year 2011-12 (lakh) % of Total income
1 Govt grants 4327.46 8.66
2 Schemes 4656.38 9.31
3 Own Resource 10491.84 20.99
4 Octroi 21155.58 42.31
5 Sell out Of Properties 8446.22 16.89
6 Income from Security 918.37 1.84
Total 49995.85 100
104
Need Assessment of U LBs & Panchayati Raj Institutions
16 Community hall 380 0.81 10.53
17 Vehicle 689.49 1.47 19.10
18 Fire brigade 384.41 0.82 10.65
19 Other Programme 2290.2 4.87 63.46
20 Other office expenses 3789.76 8.06 105.02
21 Other Dovelopment Work 2986.63 6.35 82.76
Total 47026.45 100 1303.26
SOLID WASTE MANAGEMENT
Status of Sweepers
At present 9750 sweepers have been working under the two Municipal
Corporations (Jaipur and Ajmer). Taking the population as per Census 2011 into
account, there is need for an additional 1550 sweepers in order to bring per capita
use of sweepers at 319 from the present number of 370.86.
As per the prescribed norms there should be one Jamadar over 25 sweepers.
But presently there are only 320 Jamadars, though there should be at least 390
Jamadars to meet the prescribed norm. It may be stated that 45% people in different
localities are not satisfied with the present state of solid waste-management. If the
number of sweepers is increased as suggested above, the level of satisfaction among
672.29
86
.65
68
.27
2.4
1 78
.51
14
.58
22
.46
28
.15
19
.04
2.3
2
1.5
9
11
.59
1.9
5
1.9
0
10
.53
19
.11
10
.65
63
.47
10
5.0
3
82
.77
Position of Per Capita Expenditure in year 2011-12 Corporation
105
Need Assessment of U LBs & Panchayati Raj Institutions
the people may rise. As per the mode of removing solid waste, both the manual and
mechanical methods are in vogue. What however, is more important is the
commitment on the part of sweepers engaged for the job and making supervision
effective in order to maintain regularity in the removal of solid-waste. The SFC
may like to provide funds for motivational training for the cleaning staff
specifically.
Table 4.43 Status of Sweepers
Present
Sweepers Total Regular Contractual Jamadars Additional
requirement Coverage population (Per sweeper)
Planned coverage population per sweeper
9750 6550 3200 320 1550 370. 86 320
State of Equipments
There are different types of equipments used for the removal of solid waste.
Their maintenance is, however, not adequate and hence quite a few of them remain
out of order. There is need to increase the equipments both in quantitative and
qualitative terms. The functionaries associated with the management of solid-waste,
have estimated an additional budget of Rs.1907.6 lakhs for this purpose.
Table 4.44 State of Equipments
SN Assets Present status
Additional requirement in
next year
Estimate budget require in next year
(`in Lakh)
1 1 cubic m. Bins 991 600 100
2 3 cubic m. Bins 436 340 76.60
3 7.5cubic m. Bins 95 30 24
4 Tri cycles - - -
5 Rehedis(with dustbins) 450 1300 82
6 Tractors 103 13 68
7 Mini trucks 12 2 15
8 Trucks 4 2 20
9 Tippers 15 30 75
10 Compactors 23 6 120
11 Dumper Placers 46 10 85
12 Loaders 25 10 120
13 JCBs 16 6 129
14 Dumper Plasers (Macro) 41 25 250
15 Buldozers 2 2 160
106
Need Assessment of U LBs & Panchayati Raj Institutions
16 Jeting Machines 11 - -
17 Suction Machines 2 - -
18 Cranes 1 - -
19 Huck Holders 3 - -
20 Mobile Toilets 8 6 18
21 Cattle Catchers 15 - -
22 Road Sweepers 4 - -
23 AutoJets 12 - -
24 Mudpumps 1 - -
25 Hoiests 3 - -
26 Jypsies 1 - -
27 Jeeps 4 - -
28 Cars 7 - -
29 Motorcycles 10 - -
Total 1342.6
Table 4.45 Other Demands for Jaipur Municipal Corporation
S.No. Assets Numbers ` Cost 1 Front End Loaders 10 120 lacs 2 Refuge Compactors 6 120 lacs 3 Electric Hoiests 8 80 lacs 4 Nala Cleaning machines 2 100 lacs 5 Super Sucker Machines 2 120 lacs 6 Hanging Dustbins 500 25 lacs
Total 565
Solid Waste
On an average 1385 a tonne per day solid-waste is produced in the two cities
under the sample. Out of this 1335 tonnes waste is collected everyday leaving 50
tonnes of solid waste uncollected. Needless to say that this huge amount of
uncollected garbage creates unhygienic conditions and becomes a source for
polluting the entire environment. Hence there is need to create the necessary
werewithal both in human as well as physical terms to keep the localities neat and
clean by collecting all the solid-waste generate every day.
Table 4.46 Solid Waste Production
Production of solid waste per
day (Tonnes)
Pick up solid waste per day
(Tonnes)
Gap in solid waste (Tonnes)
Production of solid waste per capita
Production of solid waste per
household
107
Need Assessment of U LBs & Panchayati Raj Institutions
1385 1335 50 .40 kg 2.5kg
Street Lighting
At present there is one light point for 18 persons. Owing to expansion of
colonies and construction of new streets, more light points are needed to cover more
people. It is estimated that there should be one light point for 17 persons. Budgetary
provisions have been made for this purpose in the year 2012-2013.
Table 4.47 Status of street lighting points
Equipment LED CFL Available
in year 2011-12
Estimated no. for
next year
Estimated budget for next year
Available in year 2011-12
Estimated no. for
next year
Estimated budget for next year
Tube lights 20829 0 0 100000 10000 110 lacs Bulbs 0 0 0 10000 1000 3.6 lacs Mercury lamps
0 0 0 0 0 0
Sodium lights
66881 6000 210 Lacs 0 0 0
High mask lights
103 10 50 lacs 0 0 0
Gen. bulbs 0 0 0 0 0 0 Others 0 0 0 0 0 0 Total 87823 6010 260 Lacs 110000 11000 113.6 Lacs
Table 4.48 Status of timers
Timer Solar Automatic Manual Coverage population per
timer
Status inyear 2011-12 _ 427 _ 8450.46
Table 4.49 Status of street lights
Number of points in 2011-12
Coverage population per point
Number of points in 2012-13
Coverage population per point
197823 18.27 214833 16.83
Expenditure on street lighting
108
Need Assessment of U LBs & Panchayati Raj Institutions
As per expenditure and estimates given in the Table, presently the
expenditure per capita for street lights were 45.5 in the year 2011-12. Now it is
estimated that during the year 2012-13 the expenditure per capita would be Rs.60.73.
This will improve the status of street lights in the cities of Ajmer and Jaipur.
It may be stated that 35% citizens of the two cities continue to be dissatisfied
with the status of street lights, though a majority has expressed satisfaction. The
stress, however, should be on providing street lights on all the roads in new colonies,
as demanded by the inhabitables of new colonies.
FireFighting Equipments
Table 4.50 Status of equipments
Equipments Status in year 2011-12
Estimated for next year
Estimated budget for next year (`)
Snorkel/hydraulic platforms
_ _ _
Water blazers 8 3 5000000
Foam tenders 3 4 8140000
Water tenders 43 7 12600000
Jeeps 3 1 1900000
Other/Fire station 6 2 3000000
Table 4.51 Expenditure on Fire Fighting
Head Exp. In 2011-12
(`)
Per capita expenditure
In year 2011-12
(`)
Estimated budget for next year
(`)
Per capita expenditure
In year 2012-13
(`)
Expenditure on establishment 26342000 7.28 30000000 8.29
Expenditure on maintenance of vehicles and equipments
6068000 1.68 10000000 2.76
Expenditure on new purchases 3031000 0.84 30640000 8.47
Expenditure on maintenance of fire stations
2200000 0.61 2960000 0.81
Other 800000 0.221 1400000 0.387
109
Need Assessment of U LBs & Panchayati Raj Institutions
Total 38441000 10.631 75000000 20.74
Waste water drainage
Physical status of drainage
Drainage constitutes an important component of city life. Presently, 57.8%
need of drainage has been met. Still a long way remains to be covered. Drainage
facilities of 3750 km are still required. The corporations have, however,provided
budgetary provisions for new construction of drainage of 72.1 kms. This is too little.
However, efforts are on to repair 171 kms. of existing drainage during the current
financial year.
Table 4.52 Physical status of drainage nalis
Requirement of nalis (km)
Total length of drainage nalis
(km)
Proposed nalis next year (km)
Proposed maintenance of nalis next year
3730 Km 5110.65 Km 72.1Km 171 Km
Status of Public Toilets
Public toilets are a dire necessity in order to avoid the use of walls as urinals.
Presently, 374 public toilets and 54 Sulabh toilets are functional in the two cities.
Obviously, these are not enough to meet the requirements of a growing population
in the cities. Provisions for the year 2012-13 have been made to construct 70 public
toilets and 13 more Sulabh systems in addition to the existing ones. Even this may
not be enough to meet the growing need.
Table 4.53 Status of public toilets
Status of toilets
No. of public toilets
(2011-12)
Expenditure for public toilets
in(2011-12) (`)
Per capita expenditure
in year 2011-12
(`)
Additional requirement
of public toilets
in(2012-13) (`)
Budget for maintenance
of public toilets
in(2012-13) (`)
Per capita expenditure
in year 2011-12
(`)
Public toilets
347 1603000 0.4433 70 3850000 1.06473
110
Need Assessment of U LBs & Panchayati Raj Institutions
Sulabh toilets
54 1974000 0.5459 13 13000000 3.5952
Urinals _ _ _ _ _ _
Total 401 3577000 0.9892 83 16850000 4.659935
Cremation and Burial grounds
There are 56 cremation grounds and 35 grave yards in the two cities. They are
not sufficient to meet the requirement in growing cities like Ajmer and Jaipur. The
corporations have taken steps to create more facilities for this purpose. Presently, 10
hectares of land has been given for cremation grounds while the grave yards have
16.5 hectares each for extending the areas for cremation and burials.
Table 4.54 Cremation and burial grounds
No.of Cremation and burial grounds
Area of Cremation and burial grounds
Additional area required for Cremation and burial
grounds
Cremation Burial grounds
Cremation Burial grounds
Cremation Burial grounds
56 35 41 beeghas 67 beeghas 20 beeghas 20 beeghas
Status of Public parks
The two cities at present have 762 public parks covering an area of 261400 sq.
meters. In view of growing population, more parks are needed. Hence it is required
to have 112 new public parks covering 364400 sq. meters. Evidently the new public
parks will be bigger in size. What however, is more important to note is that for the
maintenance of the existing public parks, there are only 53 regular employees.
Contract labour is mostly used for their maintenance. This is not a healthy practice
resulting in deteriorating conditions of quite a few public parks.
Table 4.55 Status of Public Parks
111
Need Assessment of U LBs & Panchayati Raj Institutions
Status of Public parks
No .of Public parks
Area of Public parks
Additional Public parks
required
Additional area required for Public parks
Public parks run by ULBs
762 261400 Sqm 112 364400 Sqm
Table 4.56 Status of Workers in Public Parks
Total no. of workers in public parks
Regular Contractual
53 53 _
Physical status of Community Halls
There are 48 community halls which are used for public and private
functions. In view of growing population, 74 more community halls are required, for
which 2200 sq. meters of land is needed. The corporations are expected to provide
financial support for this purpose.
Table 4.57 Physical status of Community Halls
Status of Community halls
No .of Community
halls
Area of Community
halls
Additional Community
halls required
Additional area required for
Community halls
Community halls run by ULBs
48 6000 Sqm 74 22000 Sqm
Physical status and financial requirements for Roads/Pulia and Rapats
The table gives details about the type of roads and the material used for their
respective construction. Evidently there is need to expand the network of roads in
the cities. The corporations have proposed to spend Rs. 1359.4 lakhs for this purpose.
Table 4.58 Physical and financial status of roads/pulias/rapats
Construction Total length of
roads Km
Construction of
Roads/pulias/rapats in year
2011-12
Construction of Roads/pulias/rapats in year 2012-
13
Estimate construction of
Roads/pulias/rapats in year 2012-
13
Estimate budget for
Roads/pulias/rapats in
year 2012-13 ` in Lakh
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Need Assessment of U LBs & Panchayati Raj Institutions
Km Km Km
C.C. roads 986.92 10.38 29.11 37.23 761
WBMroads 50 1.8 1.6 2 55
Bitumin roads
2823.73 12.87 18.61 27 543.4
Kachchi roads
212 - - - -
Total 1359.4
Table 4.59 Physical and financial status for repairing of roads/pulias/rapats
Repairing Repairing of Road/pulia/r
apat in year2011-12
Km
Repairing of Road/pulia/rapat
in year 2012-13
Km
Estimate Repairing of
Road/pulia/rapat in year 2012-13
Km
Estimate budget for Repairing
Road/pulia/rapat in year 2012-13
` in Lakh
C.C. roads 40 236 258 1166.46
WBMroads - - - -
Bitumin roads 69.3 426 466 1009.7
Total 2176.16
Physical and financial requirements for public health activities
The table below gives details about the material required for carrying out
public health activities. The total quantity of material of different kinds was 1350
kgrs. During the year 2012-13 Insecticides, Phenyl, Acid, DDT etc. were used for
maintaining a disease free environment in the cities. Expenditure on these activities
during the year 2011-12 amounted to Rs.51.31 lakhs. Now it is proposed to spend
115.42 lakhs during the year 2012-13 on material required for the security of public
health.
Table 4.60 Physical and financial requirements for public health activities
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Need Assessment of U LBs & Panchayati Raj Institutions
Material Utilize amount in 2011-12
Expenditure 2011-12
Requirement in year 2012-13
Budget require in
year 2012-13
Insecticide 33210 4691000 34210 10982000
Lime 8000 300000 10667 400000
Phenyl 770 50000 920 60000
Acid 3600 40000 4500 50000
D.D.T. 90 50000 90 50000
Total 5131000 11542000
RESULTS OF OPINION SURVEY
Cleanliness
The table below reveals that out of 15 ULBs visited, 10 ULBs are regularly
cleaned and in the remaining 5 ULBs cleanliness is not proper. Grade III ULBs are
facing the biggest problem regarding regular cleaning. Chittorgarh and Surajgarh
have been found to be satisfactory in terms cleanliness and maintenance. The rest
opined that only some portions are cleaned and the far-off wards are not being
cleaned. 58% people in Jaipur City were not satisfied with the cleanliness as the
cleaning staff is on contractual basis and there is lack of supervision. 50% Parshads
stated that there was lack of resources in their management.
Table 4.61 Opinion about Regular Cleanliness
All the Wards are Regularly Cleaned? YES Number (%)
Municipal Corporation (1) 1 100
Municipal Council (2) 2 100
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Need Assessment of U LBs & Panchayati Raj Institutions
(Jaipur not included)
System of garbage collection
The door to door collection was not found in any of the places. When asked
about the system of garbage collection, it was found that in eight ULBs garbage is
being collected by loaders and push carts. In the rest of the ULBs people throw the
garbage at a common place and then the sweepers collect from the designated place.
Out of 15 ULBs properly covered garbage dumping grounds were found only in
nine ULBs. Land has been allotted and boundaries have been made. In the
remaining six, Deoli (Grade II), Nawa, Jobner, Uniara, Suratgarh, Pilibanga (Grade
IV) there is no proper place for garbage disposal. Parshads suggested that garbage
dumping grounds should be covered and developed .35% people felt the need for
door to door garbage collection, while 17% people opined that there was a
requirement of the administration staff‘s high commitment levels.
Table 4.62 Helpline for Sanitation
Helpline for Sanitation YES (Number) (%)
Municipal Council 1 50
Grade –II 3 100
Grade-III 3 100
Grade-IV 4 80
Total 13 87
Complaint Cell or Helpline for sanitation has been set up in only 13 ULBs
whereas in the remaining two no complaint -cell has been set up. The helpline has
been performing very well in Udaipur and Chittorgarh. Parshads expressed that
Grade –II (3) 3 100
Grade-III (3) 1 33
Grade-IV (5) 3 60
Total (15) 11
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Need Assessment of U LBs & Panchayati Raj Institutions
there were complaint registers in which complaints were registered but they were
not timely redressed. 40% of the people opined that no action was taken in spite of
repetitive complaints.
For solid waste management committees have been set up in only seven
ULBs, while in the remaining eight ULBs no such committees are there. Most of the
committees that have been set up are only for the name sake and do not perform
any role. 75% Parshads expressed the need for separate budget and rights regarding
the committees. Most of people viewed that the committees were not working and
there was a lot of political interference which should be reduced.
Solid Waste Management
Solid waste management is one of the most important responsibility of ULBs.
In order to properly manage this core function, a lot of problems were reported by
the ULBs, like inappropriate budget, requirement of funds for equipments and
additional staff. Most of the EOs suggested that there was an urgent requirement for
equipments and additional staff. 35% felt that garbage disposal plants were a must
for effective solid waste management. Parshads viewed that the contractual basis for
cleaning should be monitored carefully or changed to permanent staff. People
viewed that door to door collection was a must and regular cleaning was required
with an honest commitment.
Sewerage system is a very good facility for drains management and the basic
requirement for sewerage is that there should be a minimum flow of 165 litres of
water per day. At various ULBs - Churu, Sawai Madhopur and Chittorgarh - it was
observed that this was being constructed by RUIDP. The EOs opined that as RUIDP
work was slow, it should be under the control of ULBs while the 53% EOs suggested
proper planning according to the norms.
Street Lighting
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Need Assessment of U LBs & Panchayati Raj Institutions
Street lighting was available in all the ULBs. 80% ULBs managed it through
agencies while in the remaining it was managed by the municipalities themselves. In
grade IV new areas have been merged in the existing ULBs.Proposals for new lights
have been sent to RSEB and the sanction is awaited. Parshads viewed that proper
maintenance of street lights was required. Contractors need to change the damaged
lights on time. CFL/LED lights should be used in place of sodium lights so that the
tax on consumer is reduced. 70% of the people were found to be satisfied with the
lights & their maintenance but frequent power cuts were annoying. Regarding the
committees for lighting, we found than 73% of ULBs had committees for complaints
of lights & maintenance. In the remaining 27%, the committees have not been set up
due to local politics.
Keeping in mind the safety of the public, fire brigades are very essential but
these were found in only 7 ULBs. In these ULBs the condition of fire vehicles
&equipments was not satisfactory and even lacked trained fire staff. According to
the Eos, there is a requirement for new vehicles & regular trained staff. It was
suggested that a separate control unit (directorate) for their working &
management should be created. Majority of the parshads mentioned the requirement
of new well developed fire stations.
Drinking Water
In the under developed areas of the ULBs requirement for hand pumps, PSP,
tubewells and over head tankers was reported as available drinking water was not
sufficient. The water reservoirs needed to be regularly cleaned. Water is provided
by PHED at most of the ULBs while at some it was observed that people had
maintained their own resources like PSP, hand pumps, etc. At some of the ULBs
handpumps and PSP and tubewells are also used as a major source for providing
water to the public and even tankers are used to meet the additional requirement of
water. 47% parshads suggested that water reservoirs need to be timely cleaned and
the supply should be proper. People suggested that water should be supplied to the
newly merged areas as well and the quality of water should be improved. It was
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Need Assessment of U LBs & Panchayati Raj Institutions
praiseworthy that the public places had adequate drinking water facilities. It was
suggested that it could be made even more efficient by connecting them to drinking
water schemes. Committees for drinking water were found in only six ULBs, while
in the remaining nine committees were not there, as drinking water is supplied by
PHED and people were not concerned. The existing committees were also not
active and were just on paper. There was a lack of coordination between the
committees & PHED.
Drainage
Drains were found to be cleaned in 13 ULBs but it was during rains or any
festival. The condition is not satisfactory at some places. In the remaining two
ULBs drains have become unusable due to lack of cleaning staff and equipments.
Parshads suggested construction of new drainsand proper maintenance of the
existing ones. People felt the need for proper monitoring during the construction
of drains and new patterns/techniques should be followed.
Public Toilets
It was found that public toilets in the urban areas were insufficient in number
and there was a requirement for more public toilets at public areas like railway
stations, bus stands, hospitals, main markets etc. The existing public toilets were in a
miserable condition due to lack of maintenance & basic requirements like water
supply. Out of the existing ones, separate toilets for women were found to be only
67%. Parshads suggested requirement of new toilets and their regular maintenance.
According to Eos, public toilets were not cleaned regularly due to water scarcity.
Cremation and Burial Grounds
Cremation and burial grounds were found in all the ULBs but they seemed to
be lacking in the basic requirements. Boundaries are necessary to stop encroachment
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Need Assessment of U LBs & Panchayati Raj Institutions
70% parshads recommended boundaries and tin shades. Water & lighting facility for
cremation and burial grounds was suggested by the people.
Public Parks
Out of the fourteen ULBs public parks were available in twelve ULBs. In the
remaining two ULBs, the land allotted has been encroached and the ULBs seemed
not taking any action. The parks available were not properly maintained & required
water for plants as well as staff which was not there. 20% of the parks are on contract
for maintenance but the contractor doesn‘t take the pain to even look after
occasionally. In Udaipur, parks were found in very good condition as they have
been adopted by various public committees.
It should be recommended for the ULBs of all sizes. We feel that the
additional staff and water facility for parks is an urgent requirement.People
suggested that new parks should be developed and the public needs to be aware
about the maintenance of public property. Parshads opined that watchmen should be
there for safety from stray animals and dustbins were also required. Committees for
Public Parks were found in 29% ULBs for the maintenance of the parks. However,
their commitment and work plan were found to be missing.
Community Halls
Community halls were found in all the ULBs. The halls were not in good
condition as their maintenance was done by the public only.Basic facilities like
electricity, water, sanitation were missing in most of the ULBs.Community halls
are used by the public for various occasions and due to lack of awareness they get
spoilt. 60% parshads suggested that sufficient budget is not available. 40% people
suggested that if the halls were maintained properly with basic facilities, they would
pay some nominal rent and this could even be a source of income. 20% people stated
the need for new community halls as they could be very useful for the people.
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Need Assessment of U LBs & Panchayati Raj Institutions
Internal Roads
Internal roads have been constructed in all the ULBs but the lack of their
maintenance was disheartening.According to the Eos, drains should be constructed
along with the roads for proper upkeep. We observed that no proper planning is
done before the construction of new roads and the tenders are not issued
transparently. Almost all parshads informed that the contractors compromised on
qualityand supervision was also not very honest. 50% people found the drainage
system unsatisfactory due to improper maintenance of roads. They opined that if the
maintenance was done regularly, longevity of the roads could be maintained. It was
suggested that CC roads should have a built-in component of drains for better
results.
Public Health
It was seen that no steps were being taken to control epidemics by the ULBs.
Health department gets insecticide is not regular in spraying. Lack of coordination
between ULBs & Health Department is also a problem. There should be proper and
regular cleaning of water storage tanks in order to avoid water borne diseases. It was
suggested by the EOs that awareness camps should be organized from time to time
to make public understand the need for controlling epidemics. Parshads opined that
nothing was being done presently for public health.
Most of the funds given by the SFC & TFC used for salaries and allowances
and got hardly any share for street lighting, solid waste management, drinking
water etc.People suggested transparency while spending such grants. They spoke
about the various barriers in the implementation of development works like
inappropriate budget, lack of staff, encroachment problems and excessive political
interference.
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Need Assessment of U LBs & Panchayati Raj Institutions
Summing Up
Due to massive urban growth during the past two decades, quality of urban
life has deteriorated creating an urgent need for vibrant and efficient ULBs that can
deliver adequate services and improve living conditions. Despite decrease rates of
population growth, India‘s urban population will expand rapidly in the years to
come.Urban services need to keep pace with it.
Local governments could be in the best position to improve service delivery
as they can match the level of requirement of public services with local needs and
available funds. Therefore, they are directly accountable to citizens. Unfortunately,
this is not happening.
Elected local governments are not particularly accountable to their
communities for their in action they blame limited financial powers and indifference
of the State. It is true that state still remains powerful, both in law and in the number
of agencies they control at local level. The State continues to grab all decision making
powers. The net result is that urban areas continue to be governed by a plethora of
State departments and there is weak coordination and very little accountability.
Coupled with this, a variety of implementation issues have led to fragmentation of
service delivery institutions at the state and local level.
Traditionally, the provision of urban infrastructure and services has been
among the primary functions of the government where the funding of complete
service delivery is sourced out of tax revenues. These basic services have generally
been considered social goods to be provided by the government for free or at
nominal prices to users. Essential services such as roads, street lighting, water
supply and sewerage are difficult to deliver without adequate cash flow from tax
revenues or other charges. It has been assumed that for the majority of urban
residents, direct user charges would be neither affordable nor desirable.Central
and state governments continue to see themselves as guardian of the ULBs,
making the ULBs feel as puppets on a string.
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Need Assessment of U LBs & Panchayati Raj Institutions
Ensuring high quality public services for all is an end in itself, but also
facilitates exploitation of full economic potential of the area covered. One of the key
features of a developing state is to ensure that all the citizens have access to basic
services. The Constitution places the responsibility on government to ensure that
such services are progressively expanded to all, within the limits of available
resources. It is well known that the basic functions like water and sanitation,
refuse and waste removal, street lighting etc are not fully available in the rural areas.
Even if they are available, they are not upto the desired level of satisfaction. These
services are not only important in providing a basic level of healthy living to the
rural people but would also prevent people‘s desire from migrating to urban centers.
This study is a result of Fourth State Finnace Commission desire to introduce
a system of dedicated allocation of budget to the local bodies perfoming the core
functions. The Commission asked our Institute to work out physical and financial
norms for the purpose. The functions include – solid waste management, waste
water drainage, street lighting, repairing of roads/ pulias/rapats, driking water,
maintenance of cremation and burial grounds and community centres and health
and sanitation.
For calculating the physical and financial norms, the present status was
ascertained during the primary survey. The present expenditure, condition, need
and the estimated cost were identified and then an average was calculated. These
norms were then framed and discussed with the officials of the concerned
Norms for theCore Functions for the PRIs
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Need Assessment of U LBs & Panchayati Raj Institutions
departments as well as compared with the existing norms that were framed
elsewhere. The estimates were accordingly finalized. It was also ensured that the
norms calculated should be workable and implementable. Separate norms have been
developed for the Urban and rural local bodies.
The present chapter focuses on the physical and financial norms for the rural
local bodies to undertake the core functions in their area.
SOLID WASTE MANAGEMENT
Since the beginning, humankind has been generating waste, be it the bones
and other parts of animals they slaughter for their food or the wood they cut to make
their carts. With the progress of civilization, the waste generated assumed a more
complex nature. At the end of the 19th century the industrial revolution saw the rise
of the world of consumers. Not only did the air get more and more polluted but the
earth itself became more polluted with the generation of non-biodegradable solid
waste. The increase in population and urbanization was also largely responsible for
the increase in solid waste.
Types of Solid Waste
Solid waste can be classified into different types depending on their source:
Household waste is generally classified as municipal waste
Industrial waste as hazardous waste
Biomedical waste or hospital waste as infectious /contagious waste
In the context of rural local bodies, it is found that the solid waste largely
consists of the municipal waste. Which consists of household waste, construction
and demolition debris, sanitation residue, and waste from streets. It is on this
premise, that the calculation for the SWM for the rural bodies has been calculated.
The method that has been suggested for the RLBs has been sweeping of the roads
and public places, collection from common places and dumping at an identified
place provided that the waste is largely non-hazardous and biodegradable. The
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Need Assessment of U LBs & Panchayati Raj Institutions
SWM services in the rural areas are not upto the mark which leaves a lot be desired.
The calculations made for SWM consist of three components:
Manpower
Equipment
Dumping Strategy
Manpower
Total Number of Sweepers
Norms for sweepers (A) Required one sweeper for an average of 175 households (900 Population)
(calculated on the basis of sample survey)
(B) Labour rate – Rs 147 per man day (on the basis of minimum wages rate for
MNREGS)
(C) Interval of Cleaning - Weekly
(D) The manpower would be paid only for the working days
(E) 15% cost be added to the total cost as tender and tax cost.
(F) The cost would include the services for sweeping, collection of the waste and
cleaning of the wasre water drains.
Calculation for sweepers (Calculated for 56 sample GPs)
Total Manpower required per GP
Average Population per GP (X) – 7797 Aveage Population per sweeper (Y) - 780 Number of sweepers per GP (Z) - (X/Y)-10
Labour Rate (L) – Rs 147 per day
Manpower Cost - (Z*L)*52 10 (Sweepers) * 147Rs * 52 Mandays = Rs 76,440 Total Manpower Cost (Premium of 10% of the manpower cost) = Rs 84,084
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Need Assessment of U LBs & Panchayati Raj Institutions
Total Equipment Cost
(A) Tri Cycles/Push Carts for a GP – Six (One per revenue village and one
for HQ)
(B) Bins (1 m3) – 20 per GP on the basis of number of wards with one for
each ward
(C) Tools – A set of Six (Broom, Spade, Parat, kudali,collector) per GP - One
per GP and one for HQ
Table 5.1 Budget for Equipment
Unit Cost1 (in `)
Unit Total Cost per GP (in `)
Push Cart With Bins 3000 6 18000
Bins 3700 20 74000
Other Tools 600 6 3600 Total 95600
1 Cost calculated on the basis of the tender rates for the ULBs
Solid Waste Transfer by Trolleys
Solid Waste Production (per household) = 400 gm.
Transfer interval = Weekly
(In each revenue villages on rotation basis)
Trolley Costing per trolley (with Labour Charges) = Rs.400
Budget Estimation
Total Budget for trolley per GP = 12 times * 12 months * 400 Rs = 57,600
Labour Cost = 84,084
Equipment Cost = 95,600
Trolley Cost = 57,600
Total Cost (in `) = 2,37,284
Total Cost per HH (in `) =
131.90
Per Capita Cost (in `) =
30.43
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Need Assessment of U LBs & Panchayati Raj Institutions
WASTE WATER DRAINAGE
The waste water drainage deals with the ―grey water‖ - wastewater resulting
from the use of water for domestic purposes, but does not include human excreta.
For drainage it is proposed to construct pucca naalis which would be useful in
draining out the wastewater (grey water) and rain water in absence of which the
waste water collects at a low-lying place and becomes a source of disease.
The Naalis being proposed are 6 inch deep and 9 inch in width. These can
either be formed in U Shape or V shape. The cost component is similar for both of
them.
I. Construction of Naali
Aveage Requirement of Naalisper Gram Panchayat = 6017 m
Proposed Naalis for One year = 1251 Mtrs.
(Calculated on the basis of the primary survey as reflected in the discussions and the annual plan)
On an average costing of Nali per m as per (BSR) = Rs.391.73 per m (Details Annexure I)
Total required budget of
naalis for next year (2012-13)(A) = Avearge Rate* Total Size = Rs 490054.23
Total Cost per HH = Rs 272.40
Per Capita Cost for 2012-13 = Rs 62.85
4.5‖ 4.5‖
18”
9‖
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Need Assessment of U LBs & Panchayati Raj Institutions
Maintenance of Naalis
Table 5.2
Maintenance of Naalis (per m) (As per damages of naalis observed and the proposals received from the gram panchayat during interviews with the Sarpanch & gram Secretary)
105/ mtr.
10% Overheads and tender Costing
10.50
Total costing
115.50
Length of Naalis for Maintenance for Next year (2012-13) (As per damages of naalis observed and the proposals received from the gram panchayat during the interviews with the Sarpanch &gram Secretary)
491 Mtr.
Total Estimated costing of maintenance (B) (Rs.115.50/mtr) 491* 115.50
=Rs 56710.50
Total Cost per HH (in Rs) 31.52
Total Per Capita Cost (in Rs) / Operational Cost 07.27
Total Costing for Construction and Maintenance A+B
Total required cost for construction of naalis for next year (2012-13)
Rs 490054.23
Per Capita Capital cost 62.85
Total Estimated costing of Maintenance Rs 56710.50
Total costing with Maintenance Rs 546764.73
Total Cost per HH (in Rs) 303.92
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Need Assessment of U LBs & Panchayati Raj Institutions
Total Per Capita Cost (in Rs) (Capital +Operational)
70.12
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Need Assessment of U LBs & Panchayati Raj Institutions
Annexure
Detailed Estimate for Waste Water Drainage for Gram Panchayats
1. EW in Hard Soil mixed with Kankar for leveling Streets/ Roads and Disposal Up to 1.00 140.4x0.38x0.38 1x50x0.3x0.3 Labour @ Rs.
91.85 + 52.06 @Rs.143.91 Cu.m
20.274 Cu.m 4.5 Cu.m
91.85 x 24.774 Cu.m
Labour Rs. 2275.49
Rs.3565.23
2. Random Rubble stone masonry for foundation and plinth in cement sand mortar 1:8 (1 cement : 8 sand) for above 30 cm. thick walls. 1x50x0.3x0.3 1x50x0.3x0.3 Total Labour
4.50 Cu.m. 4.50 Cu.m. 9.00 Cu.m
@ Rs.402.00 Cu.m.
@ Rs. 1471.55 Cu.m.
Labour 3618.00 Rs.13243.95
3. P/L Cement Concrete 1:6:12 with 40 mm Stone aggregate including curing compaction etc. comp. 1x140.4x0.30x0.05 Labour
2.106 Cu.m
@ Rs.317.55 Cu.m @Rs.1695.54 Cu.m.
Labour 668.76 Rs.3570.81
4. S/F Nimbahera/Chittor rough Stone slabs over 20mm thick CM 1:6 and filling joints with CM 1:3 1x2x140.4x0.30 Labour
84.24 Sq. m. @Rs.63.00 Sq. m. @Rs.334.03 Sq.m
Labour 5307.12 Rs.28138.69
Total Rs.48518.68 Add. 3% Cont. Rs.1455.56
Grand Total Rs.49974.24
@10% Tender Cost Rs.54971.66
Say Rs.55000.00
Labour Rs.8251.00
Material Rs.41749.0
Per mtr.costing Rs.391.73
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Need Assessment of U LBs & Panchayati Raj Institutions
STREET LIGHTING
Lack of electricity infrastructure is one of the main bottlenecks in the
development of rural India. At a very basic level, people do not have a cheap and
safe source of lighting. For fear of snakes, scorpions and antisocial elements, few
venture outside in the evenings because there is no street lighting.
The responsibility of lighting the interior roads, chaurahas, public places and
panchayat building rests with the Gram Panchayat. This includes the maintenance of
the road lights installed by the RVVNL.
The stress during the calculation of street lighting is: a) Gradually public lighting, predominantly solar lighting, would be promoted.
b) The tubelights and bulbs that are still in use need to be replaced with CFL
technology
Norms for Lighting
(A) Ten lighting sources for a village would be provided in a phased manner
(B) Phasing out the bulbs and tubelights
(C) For the first year one revenue village from the gram panchayat may be
considered for solar lighting.
The Total Cost would include
Electricity Consumtion Cost
Installation of New Sources of Lighting
Electricity Consumtion Cost
Energy Expenditure per CFL Bulb 18 Watt
Duration of Lighting 8 HR/day Total Electricity Consumtion per year (X) (18*8*365)/1000
Cost/Unit (Y) Rs 6
Electricity Consumtion Cost (in Rs) (A) X*Y
Rs. 315
Cost per GP 315*50
Rs. 15750
Number of Lighting Points Already available per GP 38
Electricity Consumtion Cost (in Rs) (B) 11970
Total Cost for Electricity Consumtion per GP Rs 27720
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Need Assessment of U LBs & Panchayati Raj Institutions
New Sources
Bulb (CFL) 18 W Set 50
Cost per new Source Rs. 1100
Total Cost of new installations Rs. 55,000
Automatic Timer 5
Cost of Automatic Timer per piece Rs. 250
Total Cost of Automatic Timer Rs. 1250
Total Material Cost of New Instllations Rs. 56,250
Labour Cost of New Installations @ 20% Rs. 11,250
Total Cost of New Instllations Rs. 67, 500
Total cost for Street light Year (2012-13)
Expenditure for Electricity (A) Rs. 27,720
Expenditure for New Points (B) Rs. 67,500
Total of A & B Rs. 95,220
Expenditure for Maintenance @ 20% Rs. 19,044
Total Expenditure for Street light Rs. 1,14,264
Cost per Household Rs. 63.52
Cost per Capita Rs. 14.65
Per Capita Capital Cost Rs.8.65
Per Capita Operational Cost Rs. 5.99 Solar Steet Lighting
Lighting common area and streets through solar photovoltaic power system
It is proposed to install photovoltaic power system to light common area and
streets. For the first year one ward/revenue village may be chosen out of the Gram
Panchayat. This may be chosen on the basis of the development indicator like village
without electric connectivity, high SC/ST population, lowest enrolment rate etc.
Solar photovoltaic can be utilized for illuminating community places and
streets in the villages or the areas, where conventional electricity is not available.
Although stand alone SPV street lighting systems with CFL and LED fixtures are
also available for this requirement but looking to the safety, security and
maintenance problem of these systems, Ministry of New and Renewable Energy
(MNRE), GoI is also emphasizing to arrange such installation with SPV power plants
so that all main components such as SPV Modules, Battery bank and control
electronics should be placed at one place in safe custody and energy should be used
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Need Assessment of U LBs & Panchayati Raj Institutions
to illuminate the common area. Different models of such power plants can be
designed as suggested by the sample model under:
1 No. of Street Lights : 10
2 Each fixture of street light of : 18 W CFL
3 Operation hours /Day : 12 hours
4 Battery storage : for 2 days autonomy
5 Wire length estimated : 600 Meters (in total)
Power plant configuration / bill of material proposed for above model are an under:
Table 5.3
SN Material details Quantity
1 SPV Modules 800W
2 Battery bank 24 V 400Amp
3 Inverter 1 no. of 1KW
4 Hybrid controller 24V/40 Amp
5 G.I Poles (6.5m. height) Net height from ground - 5 meters
10 Nos.
6 Fixture of street light of 18 W CFL each 10 nos.
7 Wire length Estimated 600 Meters
8 BOS (Like Bend pipe etc.) As per requirement
Estimated cost of one Power Plant 240000
Subsidy provided by the MNRE, GoI 64000
Total Cost 176000
Per Household Estimate Budget 97.83
Per Capita Estimate Capital Cost 22.57
CREMATION AND BURIAL GROUNDS
Given our cultural, religious and other social sensitivity cremation and burial
grounds attain social importance.
But, if we see the conditions of cremation or burial grounds in most of the
Indian rural villages, it is very disheartening. People are scared to go to these places
even in day time let alone at night. Further, many burial grounds are prone to land
grabbing by the adjacent land owners since they are unfenced. These burial grounds
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Need Assessment of U LBs & Panchayati Raj Institutions
are unhygienic with no cleanliness, no electricity, no water and covered fully with
wild plants. If not secured properly, the burial place will be used for burying the
other dead body in the same place due to non-availability of land.
Keeping this in mind it is peoposed to provide Tin Shades and Boundary Wall
through the provisions of the SFC.
Table 5.4 Cost for Tin Shades and Boundary Wall at the Cremation and Burial Ground
Tin Shades
Cost for Tin shade Rs. 2,50,000
Number of Cremation Grounds per GP 5
Total Cost per GP Rs.12,50,000
Available Financial Support under the Gramin Janbhagidhaari Yojana (90%)
Rs. 11,25,000
Remaining Amount to be borne by SFC (A) Rs. 1,25,000
Per House hold Estimate Budget Rs. 69.48
Per Capita Estimated Budget Rs. 16.03 Boundary Wall
Number of Cremation/Burial Grounds per GP 6
Average Size of the Cremation/Burial Grounds (Running Feet) 3300
Cost of Construction per running feet (in Rs) 712
Average costing of per running feet of boundary wall Rs. 23,49,600
Available Financial Support under the Gramin Janbhagidhaari Yojana (90%)
Rs. 21,14,640
Remaining Amount to be borne by SFC (B) Rs. 2,34,960
Per House hold Estimated Budget Rs. 130.60
Per Capita Estimated Budget Rs. 30.13
Total Cost for Tin Shades and Boundary Wall (A+B) Rs. 3,59,960
Per House Hold Estimated Budget Rs. 200.08
Per Capita Estimated Budget (Capital Cost ) Rs. 46.16
COMMUNITY HALLS
Each village has a community hall which may be used for community
services, meetings or any community function. These places were found to be in a
miserable condition due to lack of maintenance and wherewithal. This is also
coupled with the lack of ownership resulting in the community halls becoming
133
Need Assessment of U LBs & Panchayati Raj Institutions
centres of antisocial activities. Prsently there are 188 community halls in the sample
panchyats out of which two (one in Kota and one in Karauli) are being run by the
community.
Cost Estimates Number of Community Centres per GP 3.35
The Cost of Constrction per Community Centres (in Rs)(See Annexure)
3,00,000
Average Cost of Maintenance @ 15% (In Rs) 45,000
Cost per GP (In Rs) 1,50,750
Cost per Capita (In Rs) (Operational Cost) 19.33
134
Need Assessment of U LBs & Panchayati Raj Institutions
Annexure
Community hall measurement
Average Plinth Height
0.60 No. L m H m
Room height Inside 3.20 Door 2 1.00 2.00
Varandah Pillar Height
2.30 Window 2 0.90 1.20
Varandah Beam Thickness
0.30 Vent 4 0.60 0.30
Wall Thickness 0.38 Almirah 2 0.90 1.20
Foundation Depth 0.90
Community hall Cost
S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount
1. uhao] [kkbZ rFkk ukyk vkfn ds fy, 1-5 eh- xgjkbZ rd
feV~Vh dh [kqnkbZ djuk] ry dks dqVuk] ikuh Mkyuk cxy
dks lokajuk] [kqnh feV~Vh dks ckgj fudkyuk uhao Hkjus ds
ckn [kkyh LFkkuksa dks iqu% feV~Vh ls Hkjuk rFkk cph gqbZ
feV~Vh dks 50 ehVj dh nwjh rd fuLrkj.k djuk l[r
feV~Vh esa
Labour total Labour total
Long wall 3 7.53 0.75 0.90 15.25
Short wall 2 4.08 0.75 0.90 5.51
Short wall 2 1.48 0.75 0.90 2.00
Total 22.75 qm 82.00 82.00 1865.85 1865.85
2
lhesaV dadzhV uhao ;k Q’kZ esa 40 eheh ukeh; eki dh iRFkj
fxV~Vh] lhesaV jsr elkyk esa 1 lhesaV% 4 jsr % 8 fxV~Vh
vuqikr esa feykdj Mkyuk rFkk dqVkbZ djuk] rjkbZ lesrA
Long wall 3 7.53 0.75 0.15 2.54
Short wall 2 4.08 0.75 0.15 0.92
Short wall 2 1.48 0.75 0.15 0.33
Total 3.79 qm 245.05 1934.00 929.32 7334.45
3 uhoa o dqlhZ esa lhesaV elkyk 1%6 esa iRFkj dh fpukbZ dk
dk;Z
Foundation 3 7.38 0.75 0.75 12.45
2 4.23 0.75 0.75 4.76
2 1.63 0.75 0.75 1.83
Chair 3 7.23 0.45 0.60 5.86
2 4.38 0.45 0.60 2.37
2 1.78 0.45 0.60 0.96
Total 28.23 Qm 366.50 1647.00 10345.91 46493.08
4 lh-lh- 1%2%4 esa 50 feeh eksVh Mh-ih-lh- dk dk;Z
3 7.23 0.45 9.76
2 4.38 0.45 3.94
2 1.78 0.45 1.60
15.30 Sq. 69.00 202.00 1056.01 3091.51
135
Need Assessment of U LBs & Panchayati Raj Institutions
S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount
5 vf/kjpuk esa lhesaV elkyk 1%6 esa bZV dh fpukbZ dk dk;Z
2 7.01 0.38 3.20 17.05
Community hall
2 4.60 0.38 3.20 11.19
1 7.01 0.38 0.60 1.60
2 7.01 0.38 0.23 1.23
2 6.98 0.38 0.23 1.22
Total 32.28
2 1.00 0.38 2.00 1.52
2 1.50 0.38 1.20 1.37
4 0.60 0.38 0.30 0.27
2 0.90 0.38 1.20 0.82
6 1.50 0.38 0.15 0.51
(-) 4.50
27.78 qm 385.00 2787.00 10696.78 77433.60
6 izFke Js.kh bZV ds oxkZdkj ;k vk;rkdkj [kEcksa dks lhesaV
elkys 1%6 esa vf/kjpuk esa
Community hall
3 0.38 0.38 2.30 1.00 Qm 510.00 2912.00 508.14 2901.40
7
¼v½ lsUVfjax] ‘’kVfjax] izpfyr dadzhV ¼vkj-lh-lh½ dh
Nr] che] NTtks] fyUVu vkfn esa yxkuk] 4-5 ehVj ÅpkbZ
rd rFkk gVkuk vkfn
2 1 4.60 0.40 3.68
1 6.25 4.60 28.75
2 7.01 0.30 4.21
1 7.01 2.38 16.68
1 7.01 0.50 3.51
Total 56.82 Sq. 25.25 83.00 1434.83 4716.46 ¼c½ izpfyr lhesaV dadzhV ds fy, yksgs dk dkVuk eksMuk
rFkk LFkku ij yxkuk rFkk cka/kus dk dk;Z e; vkiwfrZ ds
¼l½ lhesaV dadzhV 1%1%5%3 vkj lh-lh che dejs esa 1 5.36 0.30 0.40 0.64 che cjkens esa 1 7.01 0.38 0.30 0.80 NTtk 1 7.01 0.50 0.075 0.26 iwjh Nr 1 7.01 7.74 0.125 6.78 Total 8.49 sm. 575.00 3614.00 4880.25 30673.43
8 iRFkj ds fljny ¼fyaVu½ dh vkiwfrZ dj] fpukbZ esa mi;ksx
dh xbZ elkys esa mls yxkuk
njoktk f[kM~dh 6 1.50 0.38 3.42
osUV 4 1.00 0.38 1.52
Total 4.94 Qm 128.00 409.00 632.32 2020.46
9 22 xst dh lknk ,e-,l- pn~nj ds 1 eh- x 2 eh- nks iYys
okys njokts] ftlesa yksgs dh 40 x 40 x3 feeh ds dksfu;k
yksgs dh pkS[kV rFkk iYyksa esa 25x25x3 feeh ds dksfu;k
yksgs (Angle Iron) ds fdukjs fn, x, uD’ks ds vuqlkj
e; vxZy fpVduh rFkk idM~ ifVV~;ksa ds vkiwfrZ o yxkuk
2 1.00 2.00 4.00 Qm 99.00 1404.00 396.00 5616.00
136
Need Assessment of U LBs & Panchayati Raj Institutions
S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount
10 22 xst dh lknk ,e-,l pn~nj dh cuh 0-9 eh- pkSM+h rFkk
1-2 eh- Åaph f[kM+dh ftlesa pkS[kV Qsze 25x25x3 feeh ds
dksfu;k yksgs 10 feeh fxzy e; vxZy] fpVdfu;ka 2 ux
rFkk ifV~V;k 4 ux uD’kk u% 14 v ds vuqlkj vkiwfrZ
djukA
2 1.50 1.20 3.60 Qm 99.00 15.06.00 356.40 5421.60
11 osUVhysVj gsrq fxzy@xsV vkfn esa yksgs dk dk;Z ftlesa
likV] dksfu;k] Vh rFkk ukyhnkj ¼psuy½] dks dkVuk]
p<kuk rFkk yxkuk vkfn
4 5.00 20.00 KL 7.70 62.20 154.00 1244.00
12 lhesaV IykLVj nhokj ij 1%4 vuqikr esa lhesaV &ctjh
feykdj tksMks+ dks dwjsnus rfkk rjkbZ lfgr 20 feeh esa
dejk vanj 2 6.25 3.20 40.00 2 4.60 3.20 29.44 dejk ckgj 2 7.01 3.20 44.86 2 5.36 3.20 34.30 fiyj 3 4 0.38 2.30 10.49 fiyj ds mij 2 1 7.01 0.90 12.62 isjkisV 2 7.01 0.84 11.78 2 6.98 0.84 11.73 dVkSfr;k¡ Total 195.22 njoktk 2 1.00 2.00 4.00 f[kM+dh 2 1.50 1.20 3.60 osUV 4 0.60 0.30 0.72 (-) 8.32 186.90 Qm. 36.60 102.00 6840.44 19063.51
13 lhesaV IykLVj lhfyax ij 1%4 vuqikr esa lhesaV &ctjh
feykdj tksM+ks dks dwjsnus rFkk rjkbZ lfgr 12 feeh esa
dejs dh Nr 1 6.25 4.60 28.75 cjkens dh Nr 1 7.01 2.38 16.68 dejs ds che 1 4.60 0.40 3.68 49.11 59.60 99.00 2927.18 4862.27
14 u, dk;Z ij vk;y ckmUM /kqykbZ ;ksX; fMLVsEcj dk dk;Z
Item no. 12 & 13
236.01 6.10 30.60 1439.67 7221.94
15 u, dk;Z ij ,ukesy is.V dk ysi djuk
njoktk 2 2 1.00 2.00 8.00
f[kM+dh 2 2 1.50 1.20 7.20
osUV 2 4 0.60 0.30 1.44
16.64 20.79 64.00 345.95 1064.96
16 Q’kZ ds uhps lw[ks iRFkjks dk [kjatk yxkuk o vkiqfrZ djuk
dejk 1 6.18 4.53 0.15 4.20 1 6.18 1.93 0.15 1.79 cjkenk 5.99 115.50 613.60 691.66 3674.49
137
Need Assessment of U LBs & Panchayati Raj Institutions
S.N. S. L.M. W.M. H.CM. Amount Unit Rate Amount
17 Q’kZ ds uhps lhesaV dadzhV 1%6%12 feJ.k ftlesa 1 lhesaV 6
ctjh 12 Hkkx 40 feeh ukeh; iRFkj dh fxV~Vh ds lkFk
feykj Mkyuk] dwVdj nckuk] rjkbZ vkfn lesr gkFk ls
feykdj Mkyuk
dejk 1 6.18 4.53 0.10 2.80 cjkenk 1 6.18 1.93 0.10 1.19
3.99 245.00 1640.00 978.11 6547.34
18 20 eh0eh0 1%6 elkys ds mij fuEckgsMk iRFkj Lysc dks
Q’kZ esa yxkuk rFkk tksMks+ dks 1%3 flesaV elkys ls Hkjdj
lery djuk
1 6.25 4.60 28.75
1 7.01 2.38 16.68
45.43 77.00 365.00 3498.40 16583.34
19 30 feeh ls 40 feeh eksVkbZ ds iRFkj ds NTts] nkc iRFkj
ds lkFk] lhesaV elkys esa 1%4 esa yxkuk rFkk vkiwfrZ djuk]
nhokj rFkk NTts ds tksM+ ij lhesaV dadzhV 1%3%6 dk 7%5
lseh dk xksyk cukuk vkfn
f[kM+dh 2 1.80 0.45 1.62 osUV 2 0.90 0.45 0.81
2.43 209.00 450.00 507.87 1093.50
20 izFke Js.kh dks bZVks dh 112 fe-eh- eksVkbZ esa uhoa rFkk
vf/kjpuk esa lhesUV ctjh elkyk 1%4 esa fpukbZ dk dk;Z
djuk e; rjkbZ ds ¼ikVhZ’ku nhokj½
vyehjk 2 0.90 1.20 2.16 63.00 364.00 136.08 786.24
21 e’khu ds dkVsa ls 25&30 feeh- eksVkbZ ds iRFkjks dh rkd
dks 1%3 elkyk esa yxkuk rFkk vkiwfrZ iw.kZ djuk
4 0.90 0.38 1.37 50.05 236.00 68..47 322.85
22 lh/ks [kjats ds Åij ;k vkj-lh-lh- Nr ds mij 25 fe-eh-
eksVkbZ dk lhesaV 1%6 dk IykLVj djkuk vkSj vkiwfrZ djuk
rjkbZ lesr
1 6.25 6.98 43.63
43.63 56.80 132.00 2477.90 5758.50
23 o"kkZrh ukys ds fy, 110 feeh ihohlh ikbZi dh vkiwfrZ e;
fQV djuk
4 Unit 0.00 50.00 0.00 200.00
Total 53167.54 293742.68
2 % 5874.85
Total 53167.54 299617.53
53200.00
246800.00
Grand Total 300000.00
138
Need Assessment of U LBs & Panchayati Raj Institutions
DRINKING WATER
There are three primary sources of drinking water in the rural areas in Rajasthan:-
(a) The traditional water sources like ponds, tanka, etc., which use rain water.
(b) Ground water in the form of hand pumps
(c) Piped water supply which eventually uses the ground water. The ground
water is lifted using a motor. The capacity of the motor varies from place to
place depends on the level of water table, from 5 KW to around 35 KW. The
connection required is also variable ie one phase and three phase depending
on the depth of the groundwater.
Expenditure on Maintenance of Traditional Water Sources
The Gram Panchayats own ponds from 0 to 300 hectare CCA. This is an
important source of drinking water in the rural areas. Presently there are 2094 ponds
under the panchayats and about 2/3rdof them need repair and renovation. The
avearage requirement for this would be Rs 1, 50,000 per resource.
Maintenance of Hand Pumps
(a) In the survey conducted, it was found that around 40 hand pumps per gram
panchayats are available. These hand pumps are maintained every year
through a special drive by the PHED department. The cost is also borne by
the PHED. This drive is for a limited period of the year and if the hand pump
needs repair during any other part of the year, no provision is available which
eventually create a lot of problem for the supply of drinking water.
Hence, it is calculated that Rs.3000/- (the cost of two per pipes @ Rs. 65 Per Ft,
Pump Set, Chain Set and labour is needed by a gram panchayat for
maintenance. The maintenance duing the summer drive is borne by the
PHED.
Requirement per Hand Pump Rs. 3000
Number of Hand Pumps per GP 40
139
Need Assessment of U LBs & Panchayati Raj Institutions
Total Requirement per GP for maintenance of Hand Pumps Rs. 1,20,000
(b) In the last few years as per the direction of the State Government, the
drinking water scheme Janta Jal Yojana has been transferred to the
Panchayats. The PHED has handed over the mechanic and the motor to the
Panchayat. The cost of the repair – mechanic and the electric connection has
not been given by the PHED. This eventually stops the water supply. It is
suggested that this expenditure may be given by the SFC. The details are as
under :-
Table 5.5 Cost for Janta Jal Yojana
Electricity Consumption
Rs.5000 x 12 x 2
(For Three Phase Connection for average two connection)
Rs. 1,20,000
Rs.1500 x 12 x 3
(For Three Phase Connection for average three connection)
Rs. 54,000
Repair
Rs.1000 x 12 x 5 Rs. 60,000
Labour
Rs.500/- x 12 Rs. 6,000
Total Cost for Borewells Rs. 2,40,000
Total Cost for Drinking Water per GP
Expenditure on Maintenance of Traditional Water Sources (A) Rs. 1,50,000
Total Requirement per GP for maintenance of Hand Pumps (B) Rs. 1,20,000
Total Cost for Running Borewells (C) Rs. 2,40,000
Total Cost for providing Drinking Water per GP A+B+C
Rs. 5,10,000
Per Capita Cost for Drinking Water(Operational Cost) Rs. 65.40
Suggestion
In Rajasthan there are places where conventional grid electricity is not
available and also it is not viable to draw a transmission line. The water table has
gone down and hand pump are not in a position to lift the water from the ground.
The most viable solution is Solar Water Pump System. The Solar Water Pumping
140
Need Assessment of U LBs & Panchayati Raj Institutions
System of the capacity of 3 KW and 5 KW will be suitable in Rajasthan as water table
is low. The cost of Solar Water Pump System is Rs.8 lacs and Rs.5 lacs a 5KW and
3KW pump respectively. The good thing is that Solar Pump works without battery
in the day time. If the requirement is good in number, a proposal can be sent to
MNRE for providing 30% subsidy.
HEALTH AND SANITATION
A. Insecticide/DDT
Table 5.6 – Cost for Health and Sanitation in PRIs
Insecticide
Average requairment of insecticides per HH (in gm)
Spray Insecticide/D.D.T. = per H.S. 100 gm for twice an year
*rate as per availability in the district
100
Per gram panchayat Requirment for year 2012-13 (in kg) 360
Average costing of per kg (in Rs) 18.50
Estimated Budget Requirment for year 2012-13 (A) Rs. 6660
Equipment
Average costing per equipment (in Rs) (B) Rs. 1000
Labour
Number of Mandays required @ 40 household per day per person
90
Labour Cost @170 per person (C) Rs. 15,300
Total Cost for Sparaying Insecticide per GP A+B+C
Rs. 22960
Per Household Cost for Sparaying Insecticide per GP Rs. 12.76
Per Capita Cost for Sparaying Insecticide per GP (Operational Cost)
Rs. 2.94
141
Need Assessment of U LBs & Panchayati Raj Institutions
PUBLIC TOILETS
A public toilet is a public facility which may be a standalone water closet, or
part of a bathroom. At a minimum, a public toilet can be a single unit featuring a we
and a hand basin for hand washing. These toilets are important as the lack of
sanitation is probably the world‘s biggest cause in the rise of infectious diseases.
Millions across the country are deprived of proper access to public toilets.
It was found that GPs on an average have only one public toilet facility per
GP. It is proposed to provide a set of three urinal-one laterine set for the rural areas
so that public toilets are available in the villages.
Table 5.7 - Costing for Public Toilets
Average Number of Public Toilets per GP (in numbers) 1
Additional Requirement for year 2012-13 per GP (in numbers)
(on the basis of the annual plan of the GP)
3
Average Costing of Per Toilet Set (in Rs) (See Annexure) Rs. 35000
Total Cost per GP for Construction of Public Toilets (A) Rs. 1,05,000
Per Capita Capital Cost Rs.13.46
Cost for Maintenance of Public Toilets
Required Number Of Sweepers 4
Cost for Sweepers @ Rs500 per unit Rs. 24,000
Cost for Equipments for toilet cleaning (Brush, Basket,Brooms) @ 100
per unit per year
Rs. 4800
Cost for cleaning material for toilets @ 50 per unit per month Rs. 2400
Total Cost for Maintenance of Public Toilets (B) Rs. 31,200
Per Capita Operational Cost Rs.4.00
Total Cost for Public Toilets (A+B) Rs. 1,36,200
Per Capita Cost for Public Toilets Rs. 17.46
142
Need Assessment of U LBs & Panchayati Raj Institutions
Toilet Design
143
Need Assessment of U LBs & Panchayati Raj Institutions
Annexure
njas lkoZtfud fuekZ.k foHkkx t;iqj dh ch-,l-vkj- 2010 ds vk/kkj ij
Øa-
la-
BSR
Item No. dk;Z dk fooj.k bdkbZ Ekk=k nj ¼:-½ jkf'k ¼:-½
lhesUV
¼cSx½
ctjh
¼?k-eh-½
fxêh
¼?k-eh-½
iRFkj@
bZaV
1 B-2/1.8
uhao eas 1-5 eh- xgjkbZ rd l[r] fpduh] dadj
feêh dh [kqnkbZ djuk] ry dks dwVuk] ikuh
Mkyuk] cxy dks laokjuk] [kqnh feêh dks ckgj
fudkyuk] uhao Hkjus ds ckn [kkyh LFkkuksa dks iqu%
feêh ls Hkjuk rFkk cph gqbZ feêh dks 50 ehVj dh
nwjh rd fuLrkj.k djukA vfHk;Urk }kjk fn;s x;s
funZs’kkuqlkjA
?ku- eh- 2.65 84.00 222.24 0.00 0.00 0.00 0.00
2 B-9/3.1.7
lhesUV dadjhV uhao ;k Q’kZ eas 40 fe-eh- eki dh
iRFkj fxêh@bZaV dh fxêh ds lkFk 1%5%10 vuqikr
eas lheasV&jsV&fxêh feykdj Mkyuk rFkk dqVkbZ
djuk] rjkbZ lesrA
?ku- eh- 0.59 1638.00 963.02 1.65 0.29 0.58 0.00
3 B-21/6.1.6 uhao rFkk dqlhZ eas csjn~nk iRFkj dh fpukbZ 1%6
lheasV & elkys eas e; rjkbZ dsA ?ku- eh- 2.61 1420.00 3700.77 4.17 0.913 0.00 2.975
4 B-9/3.1.5
lheasV dadjhV uhao ;k Q’kZ eas 20 eheh eki dh
fxêh ds lkFk 1%3%6 vuqikr eas lheasV&jsr&fxêh
¼M- 10 xzsM½ feykdj Mkyuk rFkk dqVkbZ djuk
rjkbZ lfgrA
?ku- eh- 0.39 2132.00 842.01 1.74 0.19 0.37 0.00
5 B-17/5.2.2
izFke Js.kh dh baZVksa ¼Class 75½ ls vf/kjpuk eas
lheasV&ctjh elkyk 1%6 eas fpukbZ dk dk;Z djuk
e; rjkbZ dsA
?ku- eh- 0.99 2034.00 2009.75 1.19 0.237 0.00 470
5
a B-17/5.41
izFke Js.kh dh baZVksa ¼Class 75½ ls vf/kjpuk eas
oxkZdkj ;k vk;rkdkj [kEcksa ds fy, lheasV& ctjh
elkyk 1%6 eas fpukbZ dk dk;Z djuk e; rjkbZ dsA
?ku- eh- 0.32 2176.00 690.66 0.38 0.08 0.00 151
6 B-18/5.9.3
izFke Js.kh dh baZVksa dh 112 feeh eksVkbZ eas
vf/kjpuk eas lhesaV& ctjh elkyk 1%6 eas fpukbZ
dk dk;Z djuk e; rjkbZ dsA
oxZ eh- 15.95 236.00 3763.02 2.39 0.48 0.00 949
7 B-24/6.18
iRFkj ds floy ¼fyaVy@csM@ IysV½ dh vkiwfrZ
dj] fpukbZ eas mi;ksx dh xbZ lhaesV&ctjh elkyk
1%4 mls yxkukA
?ku- eh- 0.02 4745.00 98.22 0.02 0.01 0.00 iRFkj ds
fyaVy
8 B-43/10.16
vOoy ntsZ dh iRFkj dh ifê;ksa dh Nr Mkyuk]
Åij rFkk uhps ls tksM+ksa eas iRFkj pkSi ds lkFk 1%4
vuqikr eas lhesaV elkys ls HkjukA oxZ ehVj upto
2.0 m span
oxZ eh- 1.74 851.00 1481.42 0.74 0.104 0.00 iRFkj dh
ifV~V;kW
9 B-47/11.3.1
Q’kZ eas lhaesV&dadjhV 20 feeh] eki dh fxêh ds
lkFk 1%2%4 vuqikr esa lhaesV&jsr&fxêh dks feykdj
Mkyuk] dwVuk] nckuk] rjkbZ lfgr ¼40 feeh eksVkbZ
easa½A
oxZ eh- 2.63 154.00 404.25 0.85 0.19 2.47 0.00
10 B-55/12.3.3
12 feeh eksVkbZ eas lheasV IykLVj nhokj ij 1%6
vuqikr eas lheasV&ctjh feykdj tksM+ksa dks dqjsnus
rFkk rjkbZ lesr djukA
oxZ eh- 40.89 58.00 2371.33 2.86 0.94 0.00 0.00
11 B-15/4.17
50 feeh eksVh lheasV dadjhV dh tkyh dks 1%3
lhesaV&jsr elkys ls jks’kunku eas yxkuk rFkk
vkiwfrZ djukA
oxZ eh- 0.18 317.00 57.06 0.03 0.01 0.00 0.00
12 LS
f}rh; Js.kh dh 200 feeh x 300 feeh eki dh
ekud lQsn] xzs vFkok gYds jax dh VkbYl Q’kZ]
lh<h ij 20 feeh lheasV Lyjh ds Åij yxkuk e;
vkiwfrZ rFkk tksM+ksa dks lQsn lhesaV ls Hkuk vkfn
iw.kZ dk;ZA
oxZ eh- 7.98 350.00 2793.00 0.96 0.2 0.00 0.00
13 LS
forh; Js.kh dh 300 feeh x 300 feeh uke
fQlyujks/kh (Mat finish) lQsn] xsz vFkok gYds jax
dh VkbYl Q’kZ] lh<+h rFkk [kEHkkas ij yxkuk e;
vkiwfrZ rFkk tksM+ksa dks lQsn lheasV ls Hkjuk vkfn
iw.kZ dk;ZA
oxZ eh- 2.31 400.00 924.00 0.28 0.06 0.00 0.00
14 B-35/9.5
Vh vk;ju Ýse 15x3 feeh pkSM+kbZ o eksVkbZ dh
pks[kV cukuk o yxkuk ftleas gksYM QkLV
15x10x10 feeh lkbZt ds lheasV@dadjhV ¼1%3%6½
elkys eas yxkuk rFkk Ýse ds lkFk LØw ls fgatst
yxkukA
fd-xzk- 21.00 53.00 1113.00 0.25 0.05 0.00 0.00
144
Need Assessment of U LBs & Panchayati Raj Institutions
Øa-
la-
BSR Item
No. dk;Z dk fooj.k bdkbZ Ekk=k nj ¼:-½ jkf'k ¼:-½
lhesUV
¼cSx½
ctjh
¼?k-eh-½
fxêh
¼?k-eh-½
iRFkj@
bZaV
15 B-37/9.17
ekbYM LVhy pn~nj dks 35x35x5 feeh lkbZt
dh ,axy vk;ju Ýse esa 25x3 feeh ¶ySV vk;ju
ls d.kkZor czsflax dj ,d iYys dk njoktk cukuk
tks bleas yksdjsy 50x5 feeh dk gks leLr fQfVax
lfgr rFkk jsM vkWDlkbZM izkjej ds nks taxjks/kh
isaV ds lkFkA
oxZ eh- 2.21 1544.00 3404.52 0.00 0.00 0.00 0.00
16 LS
Hkkjrh; lQsn dkWp phuh feV~Vh WC 450 feeh
lkbt ds lkFk 100 feeh ih ,l Qank ¼Vªsi½ yxkuk
o O;oLFkk djuk e; ik;nku yxkuk o vkiwfrZ
djukA
Lka[;k 1 500.00 500.00 0.2 0.05 0.00 0.00
17 S-5/1.39.1
Vsjstks ¼ekstsd½ gkFk /kksus dh ok’k csflu vkiwfrZ e;
yxkuk] czsdsV difyax rFkk PVC Mªsu ikbi lfgr
420x280 feeh eki dkA
Lka[;k 1 558.00 558.00 0.1 0.02 0.00 0.00
18 S-17/2.24.2
vkj-lh-lh- ikuh dh Vadh 25 feeh- eksVs doj rFkk
15 feeh ft-vkbZ- vksoj ¶yks ikbi ds lkFk
90x60x60lsUVhehVj uki dh 270 yhVj tyHkj.k
{kerk dk yxkuk] vkiwfrZ e; leLr dusD’ku iw.kZ
dk;Z
Lka[;k 1 504.00 504.00 0.2 0.06 0.00 0.00
19 S-3.22.1
psEcj dk fuekZ.k e; [kqnkbZ 10 lseh CC1%5%10 Q’kZ
eas] 30 lseh dh iRFkj dh fpukbZ] 20 feeh eksVk 1%6
lhesUV elkys eas IykLVj M-15 xzsM 50 feeh dk
Q’kZ e; <+Ddu vUnj dh uke 300x300 feeh-
xgjkbZ 0-5 eh- rdA
Lka[;k 1 405.00 405.00 0.6 0.16 0.00 0.15
20 LS
1&1-5 ehVj xgjs lks[rs xM~<+s dk fuekZ.k ftleas
40 feeh fNnzkdkj fjax Mkyuk vanj dh uki 900
feeh rFkk 80 feeh eksVh iRFkj dk <+Ddu 1%3
lhesaV elkys eas yxkukA
Lka[;k 3 900.00 2700.00 3.2 0.94 0.00 0.00
21 S-27/3.17.2
75 feeh O;kl ds ihohlh ikbZi Mkyuk rFkk
lksYosaV lheasV ls tksM+uk] jcj fjax rFkk Y;qczhdasV
dh dher lfgrA
j- eh- 4.00 100.00 400.00 0.00 0.00 0.00 0.00
22 B-60/12/43.1
nhokjksa ij tyjks/kh vizwOM czakM dh lhesaV isaV
¼leksle½ dk;Z fpduh lrg cukrs gq, ikM+cUnh
lfgrA
oxZ eh- 32.91 30.00 987.15 0.00 0.00 0.00 0.00
23 B-61/12.48 njoktksa&f[kM+fd;ksa ij buesy isUV dk;Z nks vFkok
T;knk dksV ,dlkj jax cukus ds fy,A oxZ eh- 4.41 33.00 145.53 0.00 0.00 0.00 0.00
24 LS jsEi fuekZ.k 75x150 lsehA la[;k 1 500.00 500.00 1.00 0.26 0.00 0.65
25 LS
'kkSpky; eas ty vkiwfrZ ds fy, QkslZ ,.M fy¶V
iEi miyC/k ty L=ksr eas yxkuk e; leLr
duSD’ku dk;Z lkbV bapktZ vfHk;Urk ds
funsZ’kkuqlkjA
3500.0
Total 35037.95 22.80 5.24 3.63 1570
Say Rs.35000.00
23 6
20
mm –
2.0?k-
eh- 40
mm –
0.6?k-
eh-
1600
bZV
3.9?k-
eh-iRFkj
dV~Vs ?ku eh- ?k- eh- la[;k
145
Need Assessment of U LBs & Panchayati Raj Institutions
The Total Cost for a Gram Panchayat may be summarized as below:
Table 5.8 – Cost of Core Functions for PRIs
(in `)
SN Core Area Total Cost
Per Capita
Cost
Per Capita
Capital Cost
Per Capita Operational
Cost
1 Solid Waste Management 237284 30.43 - 30.43
2 Waste Water Management 546765 70.12 62.85 7.27
3 Street Lighting 114264 14.65 8.65 5.99
4 Solar Light 176000 22.57 22.57 -
5 Cremation and Burial
Grounds
359960 46.16 46.16 -
6 Community Halls 150750 19.33 - 19.33
7 Drinking Water 510000 65.40 - 65.40
8 Public Health 22960 2.94 - 2.94
9 Public Toilets 136200 17.46 13.46 4.00
Total Cost for Core Functions per GP 22,54,183 289.10 153.69 135.36
146
Need Assessment of U LBs & Panchayati Raj Institutions
The Twelfth Schedule of Constitution (Article 243 w) provides an illustrative
list of eighteen functions that may be entrusted to the municipalities. Besides the
traditional core functions of municipalities, it also includes development functions
like planning for economic development and social justice, urban poverty alleviation
programmes and promotion of cultural, educational and aesthetic aspects.
However, conformity legislation enacted by the state governments indicates
wide variations in this regard. Rajasthan has included all the functions as enlisted in
the Twelfth Schedule in their amended state municipal laws. Municipal
governments are assisted by parastatal agencies (RUIDP/RUFIDCO) operating
either at the state level or at the city level to carry out various functions including
sanitation (sewerage/drainage) as well as the line departments that continue to cater
to some of the basic services like drinking water. Besides these state level agencies,
City Improvement Trusts and Urban Development Authorities, like Jaipur
Development Authority (JDA/UITs), have been set up in a number of cities. These
agencies undertake land acquisition and development works, and take up
remunerative projects such as markets and commercial complexes, etc. This leaves
the municipal bodies with only with the functions of garbage collection/disposal,
street lighting, maintenance of inner city roads, registration of births and deaths, etc.
In terms of the theory of fiscal federalism, functions whose benefits largely
confine to municipal jurisdictions and which are subject to heterogeneous
preferences are suitable for the Municipalities. These may be termed the ―essentially
municipal‖ functions. Services with large spillover effects, distributional and
Norms for the Core Functions for the Urban Local Bodies
147
Need Assessment of U LBs & Panchayati Raj Institutions
stabilization attributes and services providing uniform benefits need to be entrusted
to the higher levels of government. Similarly, functions that involve substantial
economics of scale or are of national interest may not be assigned to small local
bodies. For valid reasons, certain functions of higher authorities are appropriate for
entrustment to the Municipalities – as if under principal-agent contracts. These may
be called ―agency‖ functions that need to be financed by intergovernmental
revenues. Thus instead of continuing the traditional distinction between obligatory
and `discretionary‘ functions the municipal responsibilities may be grouped into
`essential municipal‘ `joint or shared‘ and `agency‘ functions (Mukesh P. Mathur,
www.developmentfunds.org). The assignment of functions to municipal
corporations, municipalities and Nagar Panchayats as suggested in Mohanty (1995)
is given in table below:
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 6.1 Suggested Assignment of Functions
Essentially Municipal Functions Municipal Corporation
Municipal Council
Nagar Panchayat
Urban planning including town planning (subject to broad `outline‘ or `structural‘ plan prepared by the District and Metropolitan Planning Committee/State Government)
Yes Yes Yes
Regulation of land-use and construction of buildings (subject to broad `outline‖ or structural‘ plan prepared by the District and Metropolitan Planning Committees/State Government)
Yes Yes Yes
Planning for economic and social development (Preparation and implementation of socio-economic development plan)
Yes Yes Yes
Roads and bridges Yes Yes Yes
Water supply domestic, Industrial and commercial purposes Yes Yes Yes
Public health, sanitation, conservancy and solid waste management
Yes Yes Yes
Fire services Yes Yes No
Urban forestry Yes Yes Yes
Preventive Health Care Yes Yes Yes
Provision of urban amenities and facilities such as parks, gardens, playgrounds
Yes Yes Yes
Burials and burial grounds, cremations, cremation ghats/grounds and electric crematoria
Yes Yes Yes
Cattle pounds, prevention of cruelty to animals Yes Yes Yes
Vital statistics including registration of births and deaths Yes Yes Yes
Street lighting Yes Yes Yes
Parking lots, bus stops and public conveniences Yes Yes Yes
Regulation of slaughter houses and tanneries Yes Yes Yes
Slum improvement and up gradation Yes Yes Yes
Agency Functions Protection of the environment and promotion of ecological aspects
Yes Yes Yes
Safeguarding the interests of weaker sections of society, including the handicapped and the mentally retarded
Yes Yes Yes
Urban poverty alleviation Yes Yes Yes
Promotion of cultural, education and aesthetic aspects Yes Yes Yes
Primary Education Yes Yes No
Primary Health Care Yes Yes No
Source: Mohanty (1995), Reforming Municipal Finances : Some suggestions in the Context of India’s
Decentralization Initiative, Urban India, A Journal of National Institute of Urban Affairs, New Delhi,
Vol.XV (No.1), January-June, 1995.
149
Need Assessment of U LBs & Panchayati Raj Institutions
Functional domain of municipalities has direct impact on the volume and
structure of municipal finance. The matching of municipal responsibilities with
finances should be based on the broad principles of assignment of revenues – taxes,
user charges, shared revenues, grants-in-aid, borrowing, etc. Norms and standards
should be taken into consideration while deciding the financial structure of urban
local governments. The present chapter attempts to identify the cost of the core
functions that are being taken care by the municipal bodies in Rajasthan.
For ascertaining the per capita cost three methods have been used here. The
first cost has been calculated on the basis of the norms established according to
various national standards for municipal services which largely depict the ideal
picture. Secondly, on the basis of the statement received for actual expenditure from
the various ULBs, the present per capita expenditure has been calculated. This
would reveal the gap between the normative and actual expenditure. In some of the
core functions, on the basis of the needs ascertained during the discussions with the
municipal bodies and their annual plan, a third cost has been established.
SOLID WASTE MANAGEMENT
Solid waste management is one among the basic essential services provided
by municipal authorities in the country to keep urban centers clean. However, it is
among the most poorly rendered services in the basket-the systems applied are
unscientific, outdated and inefficient; population coverage is low; and the poor are
marginalized. Waste is littered all over leading to insanitary living conditions.
Municipal laws governing the urban local bodies do not have adequate provisions to
de3al effectively with the ever-growing problem of solid waste management. With
rapid urbanization, the situation is becoming critical.
The waste generation rates in India are lower than the low-income countries
in other parts of the world and much lower compared to developed countries.
However, lifestyle changes, especially in the larger per capita waste generation are
increasing by about 1.3 per cent per year. With the urban population growing at 2.7
150
Need Assessment of U LBs & Panchayati Raj Institutions
per cent to 3.5 per cent per annum, the yearly increase in the overall quantity of solid
waste in the cities will be more than 5 per cent
Though a large portion of the municipal budget is allotted for solid waste
management, most of it is spent on the wages of sanitation workers whose
productivity is very low. There are no clear plans to enhance their efficiency or
improve working conditions through the provision of modern equipment and
protective gear. Unionization of the workers, politicization of labour unions and
the consequent indiscipline among the workforce are all results of bad working
conditions and incept handling of labour issues.
Community participation has a direct bearing on efficient SWM. Yet, the
municipal authorities have failed to mobilize the community and educate citizens
on the rudiments of handling waste and proper practices of storing it is their own
bins at the household-, shop- and establishment-level. In the absence of a basic
facility of collection of waste from source, citizens are prone to dumping waste on
the streets, open spaces, drains, and water bodies in the vicinity creating insanitary
conditions. Citizens assume that waste thrown on the streets would be picked up by
the municipality through street sweeping.
The Rajasthan government has issued a policy document for solid waste
management after a cabinet approval in the year 2001. This policy document outlines
the manner in which private entrepreneurs would be selected for setting up waste to
energy or waste to compost plants in the state, the type of facility that would be
extended to them and the responsibilities that would be placed with them. The state
government has set up a state level empowered committee under the chairmanship
of Secretary, Local Self Government to recommend the proposals received for useful
conversion of solid waste.
Out of 183 urban local bodies, 152 local bodies have either been allotted land
or land has been identified for them for construction of landfill site. All district
collectors have been requested to make land available for landfill sites to the ULBs.
Development of landfill sites is in progress under most ULBs providing approach
road, fencing, etc. The landfill sites in six divisional headquarter cities are being
151
Need Assessment of U LBs & Panchayati Raj Institutions
developed centrally by Rajasthan Urban Infrastructure Development Project
(RUIDP).
Standard Norms
Types of Solid Waste
Solid waste can be classified into different types depending on their
source:
Household waste is generally classified as municipal waste
Industrial waste as hazardous waste
Biomedical waste or hospital waste as infectious waste
The calculations here have been made for Household Waste. In the state, Self-
Financing Scheme is there for the Biomedical Waste. For Industrial waste
management RIICO is responsible. For the municipal waste, the cost calculation is
divided into three heads viz Manpower, Instruments and Dumping and Recycling
Strategy. The recycling is done on BOT basis and has not been accounted here.
Component – Manpower - Norms
1. Norms for Sweepers Required one sweeper for average 250 Population (calculated on the basis of guideline of Government of India) Additional sweepers required weekly holidays (1/7 sweeper)
2. Labour Rate Rs 147 per man day as per the minimum rates prescribed rate of the Labour and Welfare Department
3. Interval of Cleaning Twice in a day 4. Instruments One Wheel Barrow for three sweepers
One Auto tipper for 25 WB (to be provided by the Contractor) - Funds to be provided for depreciation cost and diesel cost
5. Functions The cost would include the services for sweeping, door to door collection of municipal waste and cleaning of the waste water drains.
6. Supervision Cost 15% cost is added to total cost as the supervision cost in Corporation Council and Municipal Board Grade-2 while 10% in Grade-3 and Grade-4
Table 6.2 Standard Cost Calculation for Sweepers
152
Need Assessment of U LBs & Panchayati Raj Institutions
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Manpower Cost
Average Population 1804175 300500 86496 48160 18746
Number of Sweepers 7217 1202 346 193 75
Additional Number
1031 172 49 28 11
Total Manpower Required per ULBs (A)
8248 1374 395 220 86
Labour Rate (in Rs) (B) 147 147 147 147 147
Total Working Days (C) 365 365 365 365 365
Manpower Cost A*B*C A*B*C A*B*C A*B*C A*B*C
(in Lakh) 4425.46 737.22 211.94 118.04 46.14
Total Equipment Cost
Wheel Barrows
Number 2749 458 132 73 29
Rate Cost 3700 3700 3700 3700 3700
Total WB Cost (in lakh) 101.71 16.95 4.88 2.70 1.07
Tippers @ 3.9 lakh
Number 110 18 5 3 1
Depreciation @ 15% 64.35 10.53 2.93 1.76 0.59
Diesel for Tippers @ 1 Lt/day
20.07 3.29 0.91 0.54 0.18
Total Cost 186.13 30.77 8.72 5.00 1.84
Transportation Cost
Total Per Capita Production (in gms)
450 375 325 275 250
Production in Tons 296336 41131 10261 4834 1711
No. of trolley 197557 27421 6841 3223 1141
Cost of Trolley @500Rs. Per trolley
987.79 137.10 34.20 16.11 5.70
Total 5599.38 905.09 254.86 139.15 53.68
Supervision charge@15% or in grade-3&g-4 is10%
839.91 135.76 38.23 13.91 5.37
Grand Total 6439.29 1040.85 293.09 153.06 59.05
Per Capita 356.91 346.37 338.85 317.81 315
Table 6.3 Calculation Based on actual expenditure (2011-12)
153
Need Assessment of U LBs & Panchayati Raj Institutions
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Establishment Cost (Includes Salaries of the Health officer, Chief Sanitary inspector, Sanitary inspector (Grade I), Sanitary inspector (Grade II), Jamadar, Sweeper)
(Rs in Lakh)
17965.7
2149.7
733.2
229.8
131.4
Operational Expenses (Including the Equipment, Contract and other costs)
(Rs in Lakh)
2463.5 722.7
123.7
105.6 174.9
Total (Rs in Lakh) 20429.2 2872.4
859.9
335.4
306.3
Sample Population (Census 2011)
3608350 601000 259489 144481 93731
Per Capita Expenditure (2011-12)(in Rs)
566.20 478.0
330.2
232 326.78
Per Capita Establishment Expenditure
497.90 357.8
282.5 158.9 140.18
Per Capita Operational Expense
68.30 120.2
47.7 73.1 186.6
Standard Per Capita (in Rs)
356.91 346.37 338.85 317.81 315
Prevalent Per Capita 2011-12 (in Rs)
566.2 478.0
330.2
232 326.8
STREET LIGHTING
Street lighting is an undeniable aspect of modern civic life. Providing street
lighting is one the most important – and expensive – responsibilities of a city:
Lighting can account for 10–38% of the total energy bill in typical cities worldwide
(NYCGP 2009). Street lighting is a particularly critical concern for public authorities
in developing countries because of its strategic importance for economic and social
stability. Inefficient lighting wastes significant financial resources each year, and
poor lighting creates unsafe conditions. Energy efficient technologies and design can
cut street lighting costs dramatically (often by 25-60%); these savings can eliminate
or reduce the need for new generating plants and provide the capital for alternative
energy solutions for populations in remote areas. These cost savings can also enable
municipalities to expand street lighting to additional areas, increasing access to
154
Need Assessment of U LBs & Panchayati Raj Institutions
lighting in low-income and other underserved areas. In addition, improvements in
lighting quality and expansion in services can improve safety conditions for both
vehicle traffic and pedestrians.
Street Lighting facility was found in almost all the tiers if the urban local
bodies and the calculations have been made keeping in mind the status of the
present availability. The basic scot calculations would include the cost for
Installation of Additional Points for Lighting, Maintenance, Extension and
Supervision.
Norms for Lighting
Twenty people for One Point (Standard Norm)
The Points would be 69.8% for CFL/LED lighting, 30% for a set of four
light points (4 Set)
The Electricity Consumption is to be taken care by the Cess levied by the
State Government for Street Lighting
It has been assumed that 25% points would require maintenance every
year.
There should be an extension of 10% points due to the growth and
extension of the urban areas. (5% for extension in urban area and 5% for
unserved area)
It is proposed to provide a Four Light Set Point instead of the conventional
Sodium Light
155
Need Assessment of U LBs & Panchayati Raj Institutions
Table 6.4 Standard Cost Calculations
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
CFL/LED Lights (in Number)
According to the Norms 62966 10487 3019 1681 654
Total Cost 69262600 11535700 3320900 1849100 719400
4 Set Lights
According to the Norms 27063 4508 1297 722 281
Total Cost 108252000 18032000 5188000 2888000 1124000
High Mask
According to the Norms 180 30 9 5 2
Total Cost 90000000 15000000 4500000 2500000 1000000
Total Instrument Cost (A) 267514600 44567700 13008900 7237100 2843400
Per capita capital cost 148.27 148.31 150.39 150.27 151.68
Labour and Installation Cost (15 % of Instrument Cost) for Installation, Regulation and
Maintenance includes the cost of labour, installation vehicle @ 15% of the Equipment Cost
Labour and Maintenance
Cost (B)
40127190 6685155 1951335 1085565 426510
Sum (C) = (A)+(B) 307641790 51252855 14960235 8322665 3269910
Extension Cost @ 10%
Sum (C) = (D)
30764179 5125285.5 1496023.5 832266.5 326991
Total Sum E = (C) + (D) 338405969 56378140.5 16456258.5 9154931.5 3596901
Supervision Cost (F) Rate 20 15 15 10 10
Supervision Cost (F) 67681193.8 8456721.07 2468438.775 915493.15 359690.1
Total Cost 406087162.8 64834861.5 18924697.28 10070424.65 3956591.1
Per Capita Cost (C+O) 225.08 215.76 218.79 209.10 211.06
Per Capita operational
Cost
76.81 67.45 68.40 58.83 59.35
156
Need Assessment of U LBs & Panchayati Raj Institutions
The following tables reveal a comparison between the present sources of
street lighting with the number calculated on the basis of the existing norms for
street lighting of one point for 20 persons.
Table 6.5
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
CFL/LED Lights (in Number)
Present 65415 11915 5051 2514 1001
According to the Norms 62966 10487 3019 1681 654
Requirement -2449 -1427 -2033 -833 -347
Sodium Lights
Present 33441 2778 1249 131 63
According to the Norms 27063 4508 1297 722 281
Requirement -6378 1730 49 591 219
High Mask
Present 52 6 7 3 2
According to the Norms 180 30 9 5 2
Requirement 129 24 2 2 -1
Population per Point
(Standard Norm 20) 18.2 20.4 13.7 18.2 17.6
The above table reveals that the number of street lighting points is presently
are according to the prescribed norms. Even the distance between the two poles was
in accordance with the norm of 30 meter between the two poles. Accordingly it is
calculated that the cost would be on extension, maintenance and supervision. The
Installation of new points is being calculated on the basis of the requirement as
spelled by the difference between the norms and the present status.
157
Need Assessment of U LBs & Panchayati Raj Institutions
Table 6.6 Cost Calculations based on the Identified Needs
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Installation of New Points
CFL/LED 0 0 0 0 0
4-Set Lights
Requirement 0 1730 49 591 219 Total Cost (in Rs Lakh)
6920000 196000 2364000 876000
High Mask
Present 52 6 7 3 2
According to the Norms 180 30 9 5 2
Requirement 129 24 2 2 0 Total Cost (in Rs Lakh) 64500000 12000000 1000000 1000000 0 Timer Cost 1370850 228000 65550 37050 14250 Total Equipment Cost 65870850 19148000 1261550 3401050 890250 Maintenance Cost for existing and new installations 30858075 4670775 1611615 848010 333765 Sum 96728925 23818775 2873165 4249060 1224015 Extension Cost 9672892.5 2381877.5 287316.5 424906 122401.5 Sum 106401817.5 26200652.5 3160481.5 4673966 1346416.5 Supervision 15960272.63 3930097.87 316048.15 467396.6 134641.65 Sum 122362090.13 30130750.38 3476529.65 5141362.60 1481058.15 Per Capita Additional Need 67.82 100.26 40.19 106.75 79.00
Table 6.7 Actual Present Cost
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Establishment Cost 44215000 10929000 2300000 123000 444000
Operational 120116000 24004000 11881000 4502000 2074000
Total 164331000 34933000 14181000 4625000 2518000
Population (Census 2011) 3608350 601000 259489 144481 93731 Per Capita Establishment Expenditure 12.25 18.18 8.86 0.85 4.74 Per Capita Operational Expenditure 33.29 39.94 45.79 31.16 22.12
Per Capita Total Expenditure 45.54 58.12 54.65 32.01 26.86
Table 6.8 Cost Comparisons
Per Capita Cost Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Standard Norms 225.08 215.76 218.79 209.10 211.06
Identified Needs 67.82 100.00 40.19 106.00 79.00
Actual Expenditure 45.54 58.12 54.65 32.01 26.86
158
Need Assessment of U LBs & Panchayati Raj Institutions
Maintenance of Public toilets
The cost component for toilets consists of construction and maintenance of
public toilets. As per the mandate given to the Institute, the cost here has been
calculated for maintenance of public toilets only.
The maintenance of the public toilets would include the cost of effective and
efficient cleaning of choked underground drainage and sewer lines. For this it is
proposed to hire a High Pressure Nano Jet- Mini Sewer Jetting which would clean
the public toilets at least once a day. It is proposed to provide one jetting machine for
25 public toilets.
Table 6.9 Standard Norms Cost Calculations
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Average Population 1804175 300500 86496 48160 18746
Number of Public Toilets 209 174 41 23 25
No .of sewer jetting machine need (One Machine for every 25 public toilets )
9 7 2 1 1
Running Cost of machine
Depreciation cost of Machine @15% of the machine cost of Rs 7,00,000 (A)
945000 735000 210000 105000 105000
Diesel for jetting machine & Pick Up Vehicle
Diesel -2Ltr./machine/per day (B)
328500 255500 73000 36500 36500
(2Ltr./per day/per pick-up 328500 255500 73000 36500 36500
Total Diesel Cost 657000 511000 146000 73000 73000 Total Running Cost (A+B) 1602000 1246000 356000 178000 178000
Labour cost Driver @167 per day 548595 426685 121910 60955 60955
Operator @157 per day 515745 401135 114610 57305 57305
Total 1064340 827820 236520 118260 118260
Cleaner Cost Total cleaner @ Rs 2500/machine per month (Phenyl, Acid, Deodorant, Naphthalene)
270000 210000 60000 30000 30000
Total costing 2936340 2283820 652520 326260 326260
Per capita 1.63 7.60 7.54 6.77 17.40
159
Need Assessment of U LBs & Panchayati Raj Institutions
Table 6.10 Actual Present Cost and Standard Norms Year 2011-12
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Standard Norms
Construction &
Maintenance Cost
35.77 35.68 5.59 5.25 2.46
Population (Census
2011)
3608350 601000 259489 144481 93731
Total Maintenance
Cost
32.22 25.06 7.16 3.58 3.58
Per Capita 0.99 5.94 2.15 3.63 2.62
Table 6.11 Cost Comparisons
Per Capita Cost Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Standard Norms 1.63 7.60 7.54 6.77 17.40
Actual Expenditure 1.0 6.0 2.15 3.63 2.62
PUBLIC HEALTH
The activities undertaken for public health include:
Works for Anti Larvae
Fogging Works
Spray Works
Spray of Phenyl, DDVP,Propoxur on the dumping stations
The costs for these works have been calculated and are categorized as follows:
Cost of Insecticides
Labour Cost
Equipment Cost
Fogging Cost
Table 6.12
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Need Assessment of U LBs & Panchayati Raj Institutions
Municipal
Corporation Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Cost of Insecticide(values in Rupees)
Phenyle @ 7 ml per
Capita (57.5 Rs liter) 726225 120922 34815 19385 7545
Pyrathrum @ 0.2 ml per
capita (1300 rs liter) 468000 78000 22490 12520 4875
Temophos @ 0.4 ml per
capita (950 Rs liter) 685900 114000 32870 18300 7125
Propoxer @ 1.6 gram per
capita ( 220 Rs kg) 635140 105600 30445 16950 6600
Bleaching powder/
Deodorant cum
disinfectant Powder @ 5
gram per capita (42 Rs/
kg)
378840 63084 18164 10115 3937
Total Cost of
Insecticides (A)
2894105 481606 138784 77270 30082
Labour Cost
One Sprayer for 40
households @ 147 per
day (B)
*Two times in one year
2053590 388080 161700 130536 54684
Equipments
One Knapsack/Ganesh
Pump for 3000
population
601 100 29 16 6
Cost @ Rs 750 450750 75000 21750 12000 4500
Total Equipment Cost
(in Rs) (C)
450750 75000 21750 12000 4500
Municipal Municipal Municipal Municipal Municipal
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Need Assessment of U LBs & Panchayati Raj Institutions
Corporation Council Board II Board III Board IV
FOGGING
One fogging machine is
required per 50,000
population
(In MB III &MB IV
fogging not Applicable
36 6 2 NA NA
Cost of Depreciation 15%
@ 7,00,000
3780000 630000 210000 NA NA
Fogging Material /Petrol
@8350 Rs/Lit for each
machine twice an year
601200 100200 33400 NA NA
Helpers 2 @ Rs 147 for 20
rounds per year
211680 35280 11760 NA NA
Cost of Pick Up Vehicle
@ Rs 1200 per round
with diesel
864000 144000 48000 NA NA
Total Fogging Cost (D) 5456880 909480 303160 0 0
Total Sum (A+B+C+D) 10855325 1854166 625394 219806 89266
Supervision Cost @ 15% 1628298.75 278124.90 93809.10 32970.90 13389.90
TOTAL COST 12483623.75 2132290.9 719203.1 252776.9 102655.9
Per Capita Cost 6.92 7.10 8.31 5.25 5.48
Present Cost 2011-12
Expenditure on Public
Health
2565500.00 214500.00 174333.33 50000.00 59400.00
Cost Per Capita 1.42 0.71 2.02 1.04 3.17
Cost Comparison (in Rs)
Norms Per Capita Cost 6.92 7.10 8.31 5.25 5.48
Present Cost Per Capita 1.42 0.71 2.02 1.04 3.17
Gap 5.50 6.38 6.30 4.21 2.31
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SEWERAGE
Sewerage is the core element of physical infrastructure that determines the
environmental status of any settlement and as such requires minute planning,
development and management. Development of appropriate sewage carriage system
with efficient treatment is the key element, which acts as a prerequisite for
facilitating balanced and harmonized development. Augmentation of existing
inadequate systems/treatment facilities as well as adoption of new technologies of
waste treatment presents a gigantic task demanding special efforts.
It has been notices that the responsibility of maintenance of sewerage has
been entrusted to different agencies at various places. In Jaipur the maintenance has
been entrusted to the Jaipur Municipal Corporation while in Ajmer this
responsibility has been given to the UIT, Ajmer. In Jodhpur & Udaipur the PHED is
taking care of the O&M of the sewerage.
In order to meet out the expenditure done for operation & maintenance
(O&M) of sewerage system, state Government levied sewerage charge @ 20 percent
of the water charges Since than PHED is regularly collecting sewerage charge and
supposed to reimburse the O&M expenditure to the municipal corporation up to the
limit of sewer charges collected. This tariff is expected to meet the O&M costs of the
sewerage in the identified ULBs and thus the detailed calculations for the sewerage
costs have not been made. The maintenance costs would be around Rs 450 per capita
both for the Municipal Corporation and Councils.
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Need Assessment of U LBs & Panchayati Raj Institutions
Maintenance of Community Parks
Table 6.13 Standard Norms Calculations
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Number of Gardens maintained By ULBs
381 83 23 3 1
Staff Cost(values in Rupees)
Horticulturist(1)1000/Day Only for Municipal Corporation
360000 0 0 0 0
Horticulture Supervisor @Rs 217/Day one for 40 garden
792050 158410 0 0 0
Assistant Choudhary @217/Day one for 20 garden
1584100 316820 158410 0 0
Gardner @ 167/Day one for two gardens
11642405 2499155 731460 121910 60955
Chokidar @Rs 147/Day one for each garden
20442555 4426537.5 1251950 160965 75117
Sweeper@ Rs 147/Day one for 2 garden
10221277.50 2213268.75 625975.00 80482.50 37558.50
Maintenance of equipments and water sources @ 15 per cent
6756358.13 1442128.69 415169.25 54503.63 26044.58
Total Staff Cost (A) 51798745.63 11056320 3182964.3 417861.1 199675.1
Additional Costs
Seed, Plants and Pots @Rs 5000 per garden
1905000 415000 115000 15000 5000
Toys and Benches @ Rs 20000 7620000 1660000 460000 60000 20000
Solar Lights @Rs 17,500 for per light, two Lights for each garden
13335000 2905000 805000 105000 35000
Electricity Charges for Tubewells @Rs 1500 per month
6858000 1494000 414000 54000 18000
Per Capita Capital Cost 12.67 16.57 15.95 3.73 3.20
Total Additional Cost(B) 29718000 6474000 1794000 234000 78000
Total Cost (C) 81516745.6 17530320 4976964 651861.1 277675.1
Per Capita Cost (C+O) 45.18 58.34 57.54 13.54 14.81
Per Capita Operational Cost 32.51 41.77 41.59 9.81 11.61
Table 6.14 Actual Expenditure 2011-12
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Actual Expenditure 2011-12 (values in Rupees)
Total Expenditure on Public Park (Does not include the salary component)
41838000 19458000 3515000 1286000 72000
Total Population 3608350 601000 259489 144481 93731
Per Capita Expenditure 11.59 32.38 13.55 8.90 0.77
Cost Comparison
Normative Per Capita Cost 45.18 58.34 57.54 13.54 14.81
Actual Per Capita Expenditure 11.59 32.38 13.55 8.90 0.77
Gap 33.59 25.96 43.99 4.64 14.04
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Need Assessment of U LBs & Panchayati Raj Institutions
Maintenance of Community Halls
Table 6.15 (Cost In Rs.)
Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Calculation as per the Standard
Total Community Halls Maintained by the ULBs
24 34 9 7 2
TotalConstruction Cost for Community Hall as per the BSR, JMC @1000000
24000000 34000000 9000000 7000000 2000000
Maintenance Cost of Community Hall (10% Of Construction Cost) Based on the cost of needs identified for the community halls in the ULBs
2400000 3400000 900000 700000 200000
Total Cost 2400000 3400000 900000 700000 200000
Per Capita Cost 1.33 11.31 10.41 14.53 10.67
Actual Expenditure 2011-12
Actual Expenditure 2011-12 (Includes the Cost of Construction)
38000000 921000 5680000 500000 50000
Per Capita Expenditure 2011-12
10.53 1.53 21.89 3.46 0.53
Per Capita Expenditure on maintenance (Based on the assumption that the maintenance expenditure is average 10%)
1.05 0.15 2.19 0.35 0.05
Gap 0.28 11.16 8.22 14.19 10.62
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Need Assessment of U LBs & Panchayati Raj Institutions
Per Capita Cost for Core Functions for ULBs
Table 6.16
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Solid Waste Management (values in Rupees)
As Per Standard Norms 356.91 346.37 338.85 317.81 315 As per Actual Revenue Expenditure
68.30 120.2 47.7 73.1 186.6
Gap 288.61 226.17 291.15 244.71 128.4
Street Light
As Per Standard Norms 225.08 215.76 218.79 209.10 211.03 As per Actual Revenue Expenditure
33.29 39.94 45.79 31.16 22.13
Gap 191.79 175.82 173 177.94 188.9
Public Toilet
As Per Standard Norms 1.63 7.60 7.54 6.77 17.40 As per Actual Revenue Expenditure
1.0 6.0 2.15 3.63 2.62
Gap .63 1.60 5.39 3.14 14.78
Public Health
As Per Standard Norms 6.92 7.10 8.31 5.25 5.48 As per Actual Revenue Expenditure
1.42 0.71 2.02 1.04 3.17
Gap 5.50 6.38 6.30 4.21 2.31
Public Park
As Per Standard Norms 45.18 58.34 57.54 13.54 14.81 As per Actual Revenue Expenditure
11.59 32.38 13.55 8.90 0.77
Gap 33.59 25.96 43.99 4.64 14.04
Community Halls
As Per Standard Norms 1.33 11.31 10.41 14.53 10.67 As per Actual Revenue Expenditure
1.05 0.15 2.19 0.35 0.05
Gap 0.28 11.16 8.22 14.19 10.62
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Need Assessment of U LBs & Panchayati Raj Institutions
Per Capita Cost for Core Functions for ULBs (Capital and Operational)
Table 6.17
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Solid Waste Management (values in Rupees)
As Per Standard Norms 356.91 346.37 338.85 317.81 315
Capital - - - - -
operational 356.91 346.37 338.85 317.81 315
Street Light
As Per Standard Norms 225.08 215.76 218.79 209.10 211.03
Capital 148.27 148.31 150.39 150.27 151.68
operational 76.81 67.45 68.40 58.83 59.35
Public Toilet
As Per Standard Norms 1.63 7.60 7.54 6.77 17.40
Capital - - - - -
operational 1.63 7.60 7.54 6.77 17.40
Public Health
As Per Standard Norms 6.92 7.10 8.31 5.25 5.48
Capital - - - - -
operational 6.92 7.10 8.31 5.25 5.48
Public Park
As Per Standard Norms 45.18 58.34 57.54 13.54 14.81
Capital 12.67 16.57 15.95 3.73 3.20
operational 32.51 41.77 41.59 9.81 11.61
Community Halls
As Per Standard Norms 1.33 11.31 10.41 14.53 10.67
Capital - - - - -
operational 1.33 11.31 10.41 14.53 10.67
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Need Assessment of U LBs & Panchayati Raj Institutions
As a part of this study a review the staffing pattern of the Urban Local Bodies
in view of their role. This review has been done keeping in mind that urbanization is
growing phenomenon and is rapidly engulfing not only land but also those gifts of
nature which sustain life.
When we look at the history of Urban Local Bodies since their inception in the
19th Century British India, one stark fact looms large at us. The present structure
makes us feel that we are still living in the colonial days with our Urban Local
Bodies filled up with staff some of which is totally redundant today. In the days
when satellites are looking at every inch of land and mapping it out, we still employ
a large number of Revenue Inspectors and property tax assessors who are not only
inefficient but also use manual methods of assessment of area and tax.
We have also seen that these bodies, since their inception, have never shown
any enthusiasm for levying local taxes. The British had also complained that the
elected representatives were not interested in increasing their own income and,
therefore, the State had always to impose direct and indirect taxes on their behalf to
meet their financial needs. Things have become far worse today. Taxes like house
tax, which were mandatory, were sacrificed at the altar of politics. Octroi which was
a big contributor to internal revenue was also abolished without batting an eye lid
by the State Government. A further obstacle in the way of municipal bodies is the
setting up of bodies like the Jaipur Development Authority, Housing Boards and
Human Resource and Staffing in Urban Local Bodies
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Need Assessment of U LBs & Panchayati Raj Institutions
UITs. These bodies have taken over all those revenue generating activities which
were with municipal bodies, especially selling of land. The JDA is headed by the
Minister himself. There are possibilities of biased decisions by the State Government
if there is a point of dispute between the JDA, Housing Board and municipal bodies
like the Jaipur Municipal Corporation. Municipal bodies are Constitutional bodies
whereas the developmental bodies are not. The State should provide a higher status
to Municipal bodies than to developmental agencies.
There are many other such obstacles which come in the way of strengthening
of internal resources. More and more dependence is now on grants by the State
Government and the Central Government through various schemes to sustain these
bodies. The studies made by our Institute have clearly shown that unlike the 73rd
amendment to the Constitution, the 74th amendment has failed miserably in all its
objectives, especially the stranglehold of the State.
The way the administrative and financial powers of the Urban Local Bodies
are being centralized by the State Government is the crassest example of
―Centralized Decentralization‖ and a snub to the 74th amendment of the
Constitution of India. The second tier of governance, i.e., the State government, has
not given the respect due to the third tier of governance, i.e., the panchayats and
urban local bodies set up under the Constitution of India. Duly elected Municipal
bodies are almost an appendage of the government appointed developmental
agencies like the JDA, the Housing Board and UITs. This has crippled these bodies.
We would like to request the State Finance Commission to link its grants to the
vesting of total fiscal powers to the urban local bodies.
It is proposed that in cases of dispute, a body under a retired High Court
Judge should be set up to adjudicate between the Municipal Bodies and urban
development agencies and not the State Government.
As good governance is the backbone of rapid development, we must put our
energy together to improve the governance in the Urban Local Bodies. Staffing
pattern is a major component of good governance. The last attempt at looking at the
staffing pattern of urban local bodies was made in 1965 in Rajasthan. In many other
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Need Assessment of U LBs & Panchayati Raj Institutions
States also we find that no fresh attempts were made for changing the staffing
pattern for several years. As it is not possible for us to look at detailed changes in the
staff pattern from the top to the bottom level, within the means and time available
with us, we have selected some broad areas for improving the staffing pattern and
strengthening the system to meet the present day needs.
Need for a Separate State and Subordinate Services Cadre :
At the outset, we would like to prioritize on creating a separate State and
Subordinate Services cadre for the Urban Local Bodies on the pattern of the
recently created Rajasthan Rural Development Services with similar rules for
appointment, promotions etc. It is of extreme importance that we create a group of
highly trained administrative and technical officers to administer the Urban Local
Bodies from the lowest grade Municipalities to Municipal Corporations.
Unfortunately, urban local governance has never been put on a priority by the
governments. For example, even in Jaipur Municipal Corporation, we find that a
large number of Municipal Commissioners have risen from the ranks without any
specialized knowledge of the changing administrative and technical requirements of
urban governance. This should be set right at the earliest.
Need for Capacity Building at the Third Tier: Creation of a State Level Institute
for Urban Development
There is no direct recruitment at any level. We also feel that along with the
creation of State and Subordinate level Service, an institution on the lines of the
Indira Gandhi Panchayati Raj Sansthan (IGPRS) should be set up by the
Government, which can take up training needs of officers for the urban local bodies,
right from the foundational level to the senior most level.
Unless and until these two basic requirements of modern day urban local
governance are met, it will not be possible to achieve our goals by only changing the
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Need Assessment of U LBs & Panchayati Raj Institutions
staffing pattern. The State Finance Commission may like to provide initial funds
for this purpose.
Some other areas of concern are as follows:
Need for a separate department of Solid Waste Management in the State
The work of this department should be limited to dealing with Solid Waste
Management Planning and Execution throughout the State. It should provide all the
technical knowledge and the functions regarding cleaning the cities, including
purchase of equipment should be dealt with by it.
Suggested Pattern of Cleaning Staff in ULBs
Regarding sanitation, including Solid Waste Management, we would like to
propose that throughout the State, in different municipal bodies, we would like to
emphasizes that there should be one sweeper for every 250 residents. There should
be one Jamadar over 25 sweepers and a Sanitary Inspector for a population of 20000
residents and in each zone, having a population of 2 lakhs, there should be one Solid
Waste Management Officer. We would suggest that his designation should be
changed from Health Officer to Solid Waste Manager because the word ‗health‘ is
very ambiguous.
Chief Executive Officer
We propose that in all those Municipal bodies where there is a Mayor, the
CEO should be from the IAS. Looking to the experience of IAS officers as CEO in
Jaipur, we propose that he should be from the super time scale of the IAS. The others
can be from the selection grade of the IAS. We also propose that the Government
should send a panel of names to the Mayor who should be authorized to select
one.
Zonal Officers : - Making A More Rational Division of Jurisdiction
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Need Assessment of U LBs & Panchayati Raj Institutions
The rising population of urban areas needs a continuous look at the number
of Zonal Officers required in various urban local bodies. There should be a Zonal
Officer for each zone. There should be a Zonal officer for two lakh population across
the State. We suggest that there should be a delimitation of the jurisdiction of zones
looking to the present and future needs of next 5 years. The number of Zonal
Officers should be raised accordingly.
At least 1/3rd of the Zonal Officers in towns with more than 10 lakh
population should be from the Rajasthan Administrative Service and the rest from
Municipal Services. In Municipal bodies other than corporations, Zonal Officers
should be for general purpose administration but should not be involved in
collecting taxes which should be dealt with by another wing.
Executive Officers in smaller municipal bodies should be from junior scale,
senior scale and selection scale of the Municipal Services and should be posted in
smaller to bigger municipalities in that order. These officers should be recruited
directly from the market.
Municipal Commissioners at Headquarters
There are Municipal Commissioners at the headquarters for various works.
We shall take up only those posts which need either abolition or strengthening.
Commissioner - Solid Waste Management
It is recommended that Health and Sanitation is divided into two divisions -
Public Health and Solid Waste Management. There is a difference in the needs
between Health and Public Health. We should also understand that sanitation has
become such a major issue with solid waste management as an important
component. There must have a separate Municipal Commissioner who is trained in
trained in Solid Waste Management for it. He should be in-charge of management
of solid waste of all types. He should be a technical officer specially selected for the
job.
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Need Assessment of U LBs & Panchayati Raj Institutions
The work of cleaning the towns needs much more technical and
administrative focus. It should be insisted that under the Commissioner, there
should be Solid waste Engineers and not Civil Engineers. Each member of the staff
needs to be trained for solid waste management techniques. He should be assisted
by Zonal Officers. Officers supervising Sanitary Inspectors may be called Solid
Waste Management Officers instead of Health Officers.
Commissioner – Public Health
His primarily duty would be dealing with preventive health issues. We also
propose that he should be a professional person with a specialized degree in Public
Health. He should be held responsible for the spread of any disease originating from
sewerage, impotable water, adulterated food, insects, animals etc. He should have
direct control on all the necessary staff and equipments as well as funds and should
have delegated administrative and financial powers for emergency use. He should
be of CMHO level, who can coordinate with District CMHOs. He should be assisted
by Zonal officers.
Municipal Commissioner (Revenue)
A weak area in the Municipal set up is revenue collection although it should
be a very important part of administration. The Commissioner who should be from
the Rajasthan Accounts Service should be supported by Revenue Officers in every
zone and there should be one Revenue Inspector for four assessors. There should be
one assessor for 3000 assesses depending on the demand raised from the Zone.
There should be at least 2-4 Assessors to help the Municipal Commissioner
(Revenue) at the headquarters. Each field Revenue Officer should have at least three
Revenue Inspectors and five Assistant Revenue Inspectors in each zone. The
Municipal Commissioner (Revenue) should be supported with modern day
techniques of assessing property and other taxes through GIS, satellite mapping and
other necessary equipments. The revenue officials should not be only to assess the
taxes at the ground level but timely collection of local taxes also should be their
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Need Assessment of U LBs & Panchayati Raj Institutions
responsibility. We also suggest that the revenue assessment and collection should be
directly under the Municipal Commissioner (Revenue). He should be from Rajasthan
Accounts Service. Zonal Commissioners should be kept out as they are busy with
general administrative duties in their zones. Those people who want the bills
through internet and also want to pay by internet should be allowed the facility as
has been allowed in several other services.
Municipal Commissioner – (Garage)
We feel that the vehicles in an Urban Local Body along with the drivers
should be totally outsourced except for a few vehicles for emergency use for the
Chief Elected official, the Chief Executive Officer and those Commissioners who
need to go to the field frequently. We feel that the garage can be under the
Commissioner (Establishment) with one technical person to look after maintenance,
etc. The post of Municipal Commissioner (Garage) should be abolished.
Municipal Commissioner (Gardens)
Another work which needs to be totally outsourced is the development and
maintenance of gardens. Serious efforts need to be made to get the public sector
undertakings, the corporate sector or charitable clubs like the Rotary and Lions
involved. The Zonal officer can be asked to supervise the work. The post of
Municipal Commissioner (Gardens) may be abolished.
Public Relation Officer
This post should be created in all those ULBs where the population is above
three lakhs. His main job should be to launch public awareness programmes such as
cleaning of the town and citizen‘s responsibility, pollution, techniques of Solid Waste
Management, public health, revenue recoveries etc. He could be on deputation from
the Department of Public Relations.
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Need Assessment of U LBs & Panchayati Raj Institutions
Chief Fire Officer
The fire division is a major weakness of Urban Local Bodies. There is
shortage of skilled manpower, equipment and fire extinguishing chemicals. The
entire work is technical in nature and should be under the Chief Fire Officer. The
CFO should be directly under the CEO and the post of Municipal Commissioner
(Fire) should be abolished. He should be assisted by all Zonal Commissioners, each
with a team of officers who should be responsible to ensure that fire safety norms are
fully implemented in their jurisdiction in all the buildings which need their
certification and who should be held personally responsible in case of a default.. All
the towns above a population of five lakhs should have a Chief Fire Officer. Towns
below a population of five lakhs should have Fire Officers suitably trained in
firefighting of all types.
Civil Engineering Wing in ULBs
As per the Director, LSG, as on 1.4.2010, the following was the staff position
for the engineering wing in various ULBs and the additional demand raised by the
Local Self Government in 2010 for new positions given below:-
Table 7.1
Post Present Additional Requirement
Total
Chief Engineer Nil Nil 0
Additional Chief Engineers Nil 1 1
Superintendent Engineers 3 Nil 3
Executive Engineers (Civil) 13 5 18
Executive Engineers (Electrical) 4 1 5
Executive Engineers (Mechanical) 2 Nil 2
Assistant Engineers (Civil) 32 6 38
Assistant Engineers (Mechanical) 4 1 5
Assistant Engineers (Electrical) 4 5 9
Junior Engineers (Civil) 146 13 159
Junior Engineers (Mechanical) 6 6 12
Junior Engineers (Electrical) 8 13 21
On 18th February, 2011, the demand went up suddenly to –
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 7.2
Chief Engineer 1
Additional Chief Engineers (Civil) 2
Superintendent Engineers (Civil) 7
Executive Engineers (Civil) 24
Assistant Engineers (Civil) 110
Junior Engineers (Civil) 427
No reasons have been mentioned in the order of Finance Department
for this sudden rise in demand. These positions are also not linked with any central
or state schemes.
The Government also sanctioned one post of Additional Chief
Engineer (Civil) for the headquarters. How was the number of posts raised so
suddenly and sanctioned by the FD even while the report of the State Finance
Commission is under preparation is strange, especially when the staffing pattern
in ULBs is under scrutiny by the Commission needs an explanation. There was no
need for this additional financial burden on the municipalities when they have no
funds to bear the burden of salaries even for the existing staff. We strongly
recommend that any staff reduction or augmentation has to be done in
consultation with the municipalities as they are independent Constitutional
bodies and not an adjunct of the State Government’s department of Urban
Development.
In the PWD, the post of an Additional Chief Engineer is at the Zonal
Headquarters only and there is one Superintendent Engineer in one district. An
XEN is allowed for works of Rs.15 crores as per the government orders. With every
XEN, there are three AENs and with every AEN there are three JENs. We strongly
propose that for each municipal body whether it is a corporation or a municipality
of 3rd Grade, the staff should be totally based on the funds sanctioned for civil
work and the PWD norms. It is also seen that posts which have been sanctioned for
the Directorate of Local Bodies cannot be and should not be paid for under the State
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Need Assessment of U LBs & Panchayati Raj Institutions
Finance Commission grants. Another drawback with the positions existing or asked
for is that not a single post has been suggested for Environmental Engineers, which
is the need of the hour especially in bigger cities where the rate of urbanization is
very rapid and where pollution levels are sky rocketing.
We also propose that promotions from Junior Engineers to Superintendent
Engineers and above should be strictly on the pattern followed in the PWD.
We also propose that as the urban local bodies are no longer involved in
electrical or mechanical work, posts of all mechanical and electrical engineers
should be abolished. Instead, posts of environmental engineers, wherever
required, created.
Legal Division
Another weak area of administration in the Urban Local Bodies is the legal
cell. Let us take the example of the Jaipur Municipal Corporation. There are 22000
cases pending in the Municipal Courts in Jaipur, 8000 at the District and Sessions
Judge‘s court, 2000 in the High Court and 50 in the Supreme Court. For this the staff
is as follows –
Table 7.3
(i) Director Law in the rank of the Joint Legal Remembrancer 1
(ii) Deputy Legal Remembrancer 1
(iii) Assistant Legal Remembrancer 2
At present there is Director Law and one Law Officer, who is of the rank of
Assistant Public Prosecutor. Looking to the need of quicker disposal of the cases,
posts of one DLR, two ALRs and eight HLAs are absolutely needed. In the
Municipal Councils at least one ALR is necessary. In smaller Municipalities if
required, there could be at least one parokar. The present Joint LR in JMC is also the
Director of Law in the Local Self Department, which should not be permitted.
Revenue Collection
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Need Assessment of U LBs & Panchayati Raj Institutions
The situation of revenue collection is simply pathetic in all the municipalities.
The reasons are obvious, there is no desire politically or administratively to collect
taxes. The untied grants of the State Finance Commission to the Urban Local Bodies
is one of the biggest reasons for this lack of enthusiasm, politically and
administratively to improve the financial position of the municipalities. We feel that
the present Finance Commission should put a stop to that. How long will it keep on
compensating inefficiency of the Urban Local Bodies? It is absolutely essential that
any grants to urban local bodies should be based on the collection of taxes from their
own sources. Compensating for establishment costs leads to rising administrative
costs and is against any administrative and economic logic.
We must look at the qualifications of the assessors who are simple graduates
at present and have no specialized skill for assessing the demand. It is also important
to introduce the latest technology to find the exact size of a plot and the built up area
of houses and commercial complexes for computing the correct demand. There is
also need to lower the exemption limits and raise the rates for vertical expansions.
Information Technology
Urban local bodies have failed to recognize the need of using
information technology in their day to day administrative and financial work. Today
the need is to establish systems which can improve the overall functioning of a
municipal body. We suggest creation of the posts of system managers and data entry
operators in all the urban local bodies.
Staff positions in ULBs which need to be abolished
We find that there are several positions, which should be abolished and put in
a dying Cadre or made surplus for absorption elsewhere like those of Tehsildar,
Patwari, Jaldhar, Watchman, Peon, Chowkidar, Parcha Vitrak, Assistant Parcha
Vitrak, Sab Nakedar, Gangman, Scavangar, Painter, Data Computer, Bhisti, Time
Keeper, Mechanical Grade-I & II, Electrician, Pump Driver, Carpenters, Job Officers,
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Skandhpal, Pump Driver, Cleaner, Fitter, Helper Fitter, Luhar, Helper Lauhar,
Weldar, Job Operator, Draftsman, Surveyor, Tracer, Gajdhar, Mistri Construction
Gang, Kaarigar, Mate, Beldar, Pipe Fitter, Teacher, Naka Guard, Statistical, Machine
Man etc.
Proposed Staffing Pattern for Various ULBs
The following are our suggestions for major staffing in different types of
ULBs.
Depending on the size of the urban local body and the required capability of
the CEO, he could be from the super time scale of the IAS to lower scales in the IAS
or RAS.
1. For ULBs for population above 10 lakhs
Commissioner CEO 1
Addl. Commissioner Commissioner ( Estab.) 1
Commissioner GAD RAS (selection scale) 1
Asst. Commissioner Rajasthan Municipal Services 1
System Manager 1
Computer Asst. /Data Entry Operators
5
Commissioner (Revenue) R. Acct. Service 1
Revenue Officer One for each zone.
Revenue Inspector One for 4 assessors
Assessors One for 3000 assesses
Accounts
Chief Accounts Officer R. Acct. Service 1
Accounts Officer 2
Jr. Accounts Officer 2
Sr. Accountants 6
Jr. Accountants 8
Public Health
CMHO Health Public health specialist 1
Asst. Public Health Officers 1 for each zone
Solid Waste Management
Birth and death Officer One for each zone
Engineering Norms should be strictly according to PWD guidelines
Zonal Officers One Officer for every zone having a population of two lakhs. One-third should from the RAS.
CEO RAS 1
Commissioner (Est.) RAS 1
Asst. Commissioner Municipal Services (Grade-1)
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Computer System Manager 1
Data Entry Operators 2
Revenue
Commissioner (Revenue) 1
Revenue Officer 1 for each zone
Revenue Inspectors 1 for 4 assessors
Assessors 1 for 3000 Assessors
Accounts
Sr. Accounts Officer 1
Accounts Officer 1
Junior Accounts Officer 1
Sr. Accountant 4
Jr. Accountant 6
Public Health
CMHO Health 1
Asst. Public Health Officer 1 for each Zone
Birth & Death Registrar 1 for each zone
Solid Waste Management Norms suggested earlier
Engineering
Norms strictly in accordance with PWD guidelines.
Public Relations Officer 1
ZONAL OFFICERS There will be one zonal Officer For a population of two lakhs. He will be dealing with all municipal matters in his jurisdiction except taxes.
1
ULBs with Population between 3-5 lakhs
Estb.
CEO RAS 1
Comm. (Estb.) 1
Asstt. Comm.(Adm.) 1
Systems Manager 2
Data Entry Operators 2
Revenue
Dy. Comm. 1
Revenue Officer 1
Revenue Inspectors 1 for 4 assessors
Assessors 1 for 3000 assessees
Accounts
Accounts Officer 1
Junior Accounts Officer 1
Sr. Accountant 3
Jr. Accountant 5
Public Relation Officer 1
Zonal Officers
There will be a Zonal Officer for every 2 lakh population who will be in-charge of all the activities of the ULB in his jurisdiction other than revenue collection.
Public Health and Solid Waste
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Management
Public Health Officer 1
Solid Waste Manager 1
Cleaning teams as per norms suggested earlier
Birth & Death Registrar 1 for each zone
Engineering Should be strictly as per the norms of the PWD
ULBs with a Population Between 1 lakh and 3 lakhs
Estb.
E.O. 1
Asstt. E.O. 1
Systems Manager 1
Data Entry Operator 1
Revenue
Dy. Commissioner Raj. Acct. Service 1
Revenue Officer 1
Revenue Inspectors 1 for 4 assessors
Assessor 1 for 3000 assesses
Accounts
Jr. Accounts Officer 1
Sr. Accountant 3
Jr. Accountant 3
Public Health
Public Health Officer 1
Birth and Death Registrar 1
Solid Waste Management Cleaning team
Solid Waste Manager 1
Cleaning team will be on the pattern suggested earlier. The staff for sanitation shall help the Public Health Officer in the discharge of his duties.
Engineering Strictly as per the norms of PWD
ULBs with Population Between 40000 and 1 lakh
Estb.
EO 1
Systems Manager 1
Data Entry Operator 1
Revenue
Dy. Commissioner 1
Revenue Officer 1
Revenue Inspector 1 for three assessors
Assessors 1 for 3000 assessees
Accounts
Sr. Accountant 1
Jr. Accountant 2
Engineering Strictly as per PWD norms
ULBs with Population Below 40000
Estb.
E.O. 1
Systems Manager 1
System Data Entry 1
Revenue
Revenue Inspector 1 for 4 assessors
Assessors 1 for 3000 assessees
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Accounts
Jr. Accountant 1
Public Health and Sanitation Norms for Cleaning Staff will be the same as suggested earlier.
Some Glaring Examples of Local Governance
1. Municipal Corporation, Surat
The rapid urbanisation and rise in population in Surat led to the growth of slums,
increase in garbage and overflowing drains. In 1994, Surat was struck by an outbreak
of a virulent disease somewhat like the plague. The disease caused panic
countrywide and while the citizens blamed the municipality, the civic authorities in
turn blamed the citizens for their lack of civic sense. It was a harsh reminder of what
negligence in the area of solid waste management can lead to. But what was most
amazing was that within a span of 18 months the city made a complete reversal from
a dirty, garbage-strewn city to become one of the cleanest cities in the country.
This transformation was possible by efforts of the Surat Municipal
Corporation and the Community. Subsequent to the disaster, the attitudes of the
citizens changed and they diligently tried to improve its living conditions.
Institutional changes were the first thing to happen. The city was divided into six
zones to decentralize the responsibilities for all civic functions. A commissioner was
appointed for each zone with additional powers. The officials responsible for solid
waste management were made accountable for their work; and field visits were
made mandatory for them each day. The solid waste management department and
other related departments were made to work and cooperate with one another.
Grievance redressal cards were issued to people so that complaints could be
registered. The complaint was attended to within 24 hours and the card returned to
Success Stories
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the citizen. In addition to the administrative changes, the changed laws had an
important role to play in improving the conditions by also making the citizens aware
of and responsible for certain preventive actions. Indeed, these are some of the very
basic changes that needed to be introduced in the functioning of all urban local
bodies. Initially, the Gujarat Government‘s Municipal Act did not have any
provision to penalize littering. However, after the plague, the government realized
that it was important to impose such a penalty in order to make people aware of
their responsibility in maintaining their city‘s cleanliness. Thereafter, a fine of Rs 50
was imposed for every offence of littering and it was doubled for every
subsequent offence. The city roads were swept twice a day and the corporation, in
an appreciable attempt, has engaged private sweepers to cover different inner
areas of the town. Private contractors are also actively involved in the transport.
The private sector has been involved in solid waste collection and transportation,
maintenance of street lighting, construction of a roads, tree planting and operation of
water treatment plants. As a result of collection of and transportation of garbage,
the collection efficiency increased from 30 percent in 1995 to above 90 percent
now.Another example, by contracting out the street lights maintenance to private
company, the level of service has improved and about 95 percent of street lights
are now in working conditions.
(Source: .TERI, Municipal Finance and Municipal Services in India Present Status
and Future Prospects, Dr. Mukesh P. Mathur, Professor, National Institute of Urban
Affairs (NIUA), 1995)
2. Rajkot Municipal Corporation, Rajkot
Rajkot Municipal Corporation undertook its first
initiative of privatization in 1998 with the privatization of transportation and
collection of solid waste. Encouraged by the results achieved in the first attempt,
RMC undertook privatization of telephone, EPABX system, public toilets
maintenance, employment of security guards, drainage complaints management etc.
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The initiative has demonstrated that privatization of small works helps an urban
local body to achieve efficiency in administration and good governance.
Rajkot Municipal Corporation (RMC) has contracted out maintenance of
street lights, solid waste removal and transportation, cleaning of public toilets,
maintenance of gardens, a forestation etc. RMC has also undertaken various
entertainment projects with the help of private entrepreneurs. By using the services
of the private sector, RMC has been able to save a significant amount of money and
has been able to close the gap between demand and supply by improving service
provision. Huge investments that are needed for acquiring capital equipments such
as tractors, trollies, etc. have now been given over to private contractors. However,
RMC has not retrenched any of its staff but has stopped new recruitment. RMC
continues to use its present manpower as well as equipment in certain areas in the
city. This also serves as contingency plan in case of service disruption due to
problems with the private contractors. Some initiatives are as follows:
Privatisation of The Maintenance of Street Lights by RMC
Most of the street lights in the city were damaged
and un-repaired. This invited a number of accidents as well as antisocial
activities. The Rajkot Municipal Corporation failed to answer the complaint of
public satisfactorily. From September 1991 private sector was involved for
maintaining the streetlights. Initially four wards were privatised followed by the
others. 33 percent out of the total streetlights (20,000) have been contracted out
till now. There is a saving of Rs. 3.73 lakhs to the corporation per year after the
initiation of privatisation Opinion poll conducted by the corporation suggests
that the public is appreciating the change.
Privatisation Of Maintenance Of Pipelines And Drainage Pumping Station By
RMC
Water is supplied only for 30 minutes everyday. In scarcity period water is
supplied on alternate days. Every summer,RMC used to recruit daily wager
persons to maintain special service of water supply and incurred huge
expenditure. Private contractors were asked to make arrangements for
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maintenance and repair of pipelines round-the-clock during the scarcity period.
The contractor was to arrange 10 labour and one truck and he was paid Rs.
1000/- per day and 2 fitters were provided by the RMC. This scheme saved lakhs
of rupees. Problems regarding payment of daily wages and regularisation on the
permanent jobs were done away with.
Privatisation of Parks And Entertainment Facilities by RMC
Parks were ill-maintained by the municipality department. It was decided to
hand over maintenance of two parks namely Race Course (12000 Sq. Meters) and
Sorathiawadi Chowk garden (5500 Sq. meters.) on contract. 17.5% of the total
park areas in the Rajkot is privatised (i.e.17, 50 sq.meters out of the 1,00,000
sq.m). Privatisation brought better management and efficiency in the system
apart from the financial advantages. Net financial advantage of Rs 6,30,000 was
achieved.
Entertainment Projects & Schemes by RMC
Besides providing basic amenities to the citizens, RMC has taken up various
entertainment projects and schemes with active participation of entrepreneur
experts in respective fields. In some cases lands and buildings are provided to the
entrepreneur for running the scheme on lease while in other cases only land is
provided on lease. The private entrepreneurs are allowed to charge stipulated
fees from the user. The general rules and regulations of running such facilities are
decided by RMC an agreement has been made with private entrepreneurs for
smooth running of the scheme.
Privatisation of The Health and Other Services by RMC
The health facilities for the poor and the slum dwellers were unsatisfactory and
were available to a negligible part. A mobile clinic was introduced. Financial
Advantage of Rs. 4,000/- pm or Rs. 48,000 / per annum was achieved. The most
important benefit of the scheme is the involvement of NGOs who have social
motive and thus rendering good work.
Innovations In Revenue Collection
Property tax is the second major source of revenue in Rajkot. In order to simplify
the procedure and to increase the base of this tax the corporation has recently
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introduced the self-assessment forms. Revenue of the RMC has increased after
the introduction of these forms. Many of the informal housing societies and
unnoticed co-operative societies who were not in the list of the Corporation
earlier have come forward for filling the forms.
Recruitment of Professionals in RMC
To initiate corporate culture in the Corporation recently a few professionals were
recruited in the RMC. These professionals work at the level of assistant managers
in the corporation. The corporation has recruited professionals MBAs and
Charted Accountants at the level of Assistant managers in the key branches like
Octroi, Tax, SWM, and Streetlights. Now, the services are better managed and
tackled more efficiently. (Source-The time of India July 24, 2012)
(Source: Urban Management Center(UMC), http://umcasia.org/)
3. CIDCO, New Mumbai
The City and Industrial
Development Corporation (CIDCO), a public sector institution at New Mumbai has
had a very successful experience with privatization efforts. The privatization
experience includes maintenance of sewerage pumps and water pumps, meter
reading and billing, maintenance of parks and gardens, collection of CIDCO's service
charges and so on. CIDCO has given the collection of its service charges to the
Senior Citizens Club (as association of retired persons) whom it pays one percent as
commission. If CIDCO was to collect the charges on its own it would cost it three
times.
For Road sweeping garbage collection, disposal, maintenance of drains,
spraying of insecticides etc. the CIDCO allotted the work to different
contractors for a group of sectors on yearly basis. The work done by the
contractor was supervised by the Sanitary Inspectors of CIDCO. There are
15 contracts in all the 7 town-ships. This system has been functioning for
over 8 years. Now, the streets are well maintained as well as the system is
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Need Assessment of U LBs & Panchayati Raj Institutions
economical. The total cost of all contracts in 7 town-ships is Rs. 58.0 lakh per year. If
this work is done by CIDCO, there would be at least 400-500 sweepers + 20 trucks.
The all inclusive maintenance cost including salary etc. would be around Rs. 100.0
lakh. As against this, the work is done quite satisfactorily through private contracts
at half the cost and with no performance liability of maintenance department.
(Source : Municipal Finance and Municipal Services in India Present Status and
Future Prospects, Dr. Mukesh P. Mathur, Professor, National Institute of Urban
Affairs (NIUA), 1995)
4. Pune Municipal Corporation (PMC)
Pune, the second-largest city in Maharashtra after Mumbai, offers a shining
example of what a city can do to manage the growing menace of garbage as it
urbanises at a rapid pace. The city has always been an important commercial
centre of Maharashtra, but the rapid growth of industry in the Pune district,
particularly the concentration of IT companies and of automotives and auto-
components, has added a modern flavour to its development. Growing numbers
and rising prosperity has meant that not only is the quantity of solid waste
growing—Pune generates 1,400 metric tonnes of solid waste per day—but its
composition is also changing with more plastics and non-biodegradable elements
to reflect the changing patterns of consumption of the growing middle classes.
The Pune Municipal Corporation (PMC) has been trying a range of solutions
from the most traditional and informal to the most modern and scientific,
converting waste to energy with state-of-the-art environment-friendly technology
and developing scientific landfills for depositing the much reduced garbage that
cannot be reused. Rag-pickers‘ cooperatives are participating in the clean-up as
much as the corporate sector with the latest technology.
Pune was no different from other Indian cities in having piles of waste on street
corners and overflowing community bins which were rummaged by rag-pickers
to seek out a living from selling the recyclable bits. Garbage used to slowly find
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Need Assessment of U LBs & Panchayati Raj Institutions
its way from the bins to transfer stations and was finally transported to the
dumpsite 22 km away at Urali to rot.
Things began to change in the 1990s much before the government of India
notified the Municipal Solid Waste (Management and Handling) Rules in 2000
for all Indian cities. The inspiration for change came from Poornima Chikarmane
and Laxmi Narayan, two lecturers at the SNDT University in Pune who urged
city residents to segregate wet and dry waste so that the scavengers did not have
to sift through the garbage looking for what they could sell. Their efforts led to
the setting up of the Kach Patra Kashtakari Panchayat (KKPKP) in 1993, a trade
union of waste-pickers. The municipal corporations of Pune and Pimpri-
Chinchwad started issuing photo ID cards to rag-pickers, which allowed them to
scavenge, reducing the scope for police brutality.
When the PMC set out to develop an integrated strategy to comply with the
SWM Rules of 2000, they found the arrangement with the rag-pickers as well as
the habit of segregating dry waste from wet waste on the part of households very
handy. In 2007, the PMC and the KKPKP jointly promoted the creation of
SWaCH, a cooperative of waste-pickers and other urban poor, using their
members to provide door-to-door collection services for households, shops,
offices, etc. Those not covered by door-to-door collection, were required to use
containers and compactor buckets as prescribed by the PMC.
SWACH members are authorised to collect service-based user fee. They work in
pairs covering 250-300 households for segregated waste collection, further
segregating the recyclables and dropping the non-recyclable waste at feeder
points. From there, the waste is collected by Ghanta trucks. Altogether, they
collect more than 600 tonnes of solid waste per day; in addition, about 10 tonnes
is composted and 150 tonnes is recycled by them in spaces provided by the
housing societies themselves.
The PMC has agreed to pay Rs 8.6 crore for the administrative and management
cost of operations if the collection coverage is 100%, under a five-year MoU. So
far, 35% of the households have door-to-door coverage, and the PMC has paid Rs
3 crore towards administration costs and Rs 70 lakh for uniforms, gloves, badges,
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wheelbarrows, buckets and sorting sheds, to improve the working conditions of
the rag-pickers. On the other hand, the PMC saves on handling cost (estimated at
R12 crore per annum) and the cost of transportation of the waste to the landfill.
Another very important initiative of the PMC is the Zero Garbage project in
Katraj, the largest ward in Pune. Launched in February 2011, this was a collective
effort of Janwani, an NGO, Cummins India, and SWaCH, who came together to
provide the model, the financing and manpower. The result is that only two
tonnes of waste is sent per day to the landfill site, compared with 10 tonnes per
day earlier. The PMC is determined to scale up this initiative.
A pioneering initiative of the PMC has been to set up 14 biomethanation-cum-
power generation (BCPG) plants, mostly of 5 tpd capacity. The technologies were
selected on the basis of competitive bidding and O&M contracts for five years
were granted to the different parties which brought in the technology.
Transporting wet waste to them is the responsibility of the PMC. These plants
treat organic waste in a decentralised and environment-friendly manner. Given
the collection efficiency of 80-90%, of which 45% is segregated waste, the PMC
has allotted separate vehicles for the collection of wet waste, which comes to
about 300-350 tonnes per day. For each BCPG plant, the PMC provides 600 sq
metres of land, 5,000 litres of water and electricity connection at site (both water
and electricity free of cost).
The waste is treated in two-stage biomethanation process by using closed vessels
where, in the absence of oxygen, micro-organisms break down the organic matter
into a stable residue, and generate a methane-rich biogas in the process. This gas
can then be used as a source of renewable energy to produce electricity (net
surplus after own requirement) of 400 kWh per day, which is being used for
street lights in the surrounding area. The solid residue is used as manure, and the
aqueous liquor is a nutrient-rich fertiliser which can be used to recycle nutrients
back to agricultural land.
As Mahesh Pathak, municipal commissioner of Pune, put it, ―Besides the income
of 1 crore resulting from savings in electricity and from the sale of manure from
the 11 plants, the saving on the cost of transportation and dumping is 80 lakh.
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The environmental saving because of the reduced transportation of the waste, is
an added bonus.‖
From June 1, 2010, the PMC has stopped open dumping, and the total waste
generated is processed scientifically.
At the high end of the technology spectrum is the ―non-incineration based
thermal waste to energy‖ plant set up in a PPP model in the Ramtekdi Industrial
Area. The investment of R140 crore was made by the private company, Rochem
Separation Systems India Pvt Ltd, based on the patented Concord Blue
gasification technology on the 2.5 acre land provided by the PMC on a lease-
rental basis. This state-of-the-art technology, for which the patent is held by
Prayas Goel, Managing Director of Concord Blue, processes unsegregated waste
to produce energy, fulfilling the requirements of the EPA and European
standards with regard to emissions. The syngas (synthesised gas) is produced
from unsegregated waste, which is a combination of biodegradable and non-
biodegradable components by a thermal process of heating in complete absence
of oxygen followed by reformation of the produced gas, which leads to a clean
hydrogen rich gas that can be utilised for power generation (currently
operational in the said facility). Unlike biogas which is produced from a
biological activity of bacteria breaking down only the biodegradable component
of the waste, syngas is produced from a thermal process and hence is a solution
for the complete spectrum of solid waste sans inerts. Also, syngas is rich in
hydrogen, making it one of the cleanest fuels, unlike biogas which constitutes
about 50% methane.
With the increment in the quantum of plastics in our lifestyle, we need an
environmentally friendly solution for its disposal. Owing to its non-
biodegradable nature, plastics cannot be landfilled. Incinerating plastics without
expensive control equipment gives rise to dioxins and furans from the PVC
component of plastics which are carcinogenic in nature and hence extremely
harmful to all living beings. The Concord Blue technology, owing to its non-
incineration platform, converts solid waste into gas without production of dioxin
and furans over the permissible limit.
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The PMC is committed to transporting 700 tonnes of unsegregated waste for 30
years, and the company has to process the waste on the same day. The PMC has
to pay a processing fee of R300 per tonne of waste, and the company is free to sell
the power to appropriate third-party buyers. The carbon credits when realised
will be shared equally by the two.
With 28 surrounding villages added to its jurisdiction only last week, Pune‘s
population has increased from 39 lakh to 50 lakh and the area under the
jurisdiction of the PMC has expanded from 244 sq km to 430 sq km. The
challenge of solid waste management and disposal is that much greater. The
vision shown by the PMC in garnering the support of important stakeholders
from among city residents is the key to preparing for the future.
Pune‘s range of solutions for managing waste range from the most traditional to
the most modern and scientific, and are already resulting in saving money for the
municipality—and that‘s without even accounting for the carbon credits
(SOURCE: High-Powered Expert Committee on Urban Infrastructure
Services,Isher Judge Ahluwalia,Oct 31, 2012)
GRAM PANCHAYAT
Solid and Liquid Resource (Waste) Management
Sikkim has become the first state to achieve 100 per cent rural
sanitation coverage, becoming the first ‗nirmal rajya‘ in the country. The challenge
ahead is that of the sustainability of the campaign, with prime focus on solid and
liquid waste management (SLWM) in the villages. The Rural Management and
Development Department adopted the ‗zero waste management‘ concept developed
by Exnora Green Cross, Vellore, with a pilot project in Yangang Rangang gram
panchayat unit, GPU, South Sikkim. A detailed survey was first made of the village
to study the existing practice of waste disposal, and other details. A suitable spot for
a shed, for collection of waste using tricycles, was also identified.
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Sixty young people and self-help groups from the village and surrounding
areas were trained for one week, after which 19 volunteers were selected as master
trainers of the SLRM project. An eco-friendly, cost-effective SLRM compost shed was
constructed as a rigorous information and education campaigns – awareness
campaigns in schools, market places and residential areas – were carried out
simultaneously by volunteers in the village. Calendars containing information on
organic and inorganic waste, and general instructions on waste disposal, were
distributed at all these places. Residents and shop-owners were distributed at all
these places. Residents and shop-owners were given two buckets (green for
biodegradable and red for non-biodegradable waste) and asked to dump all old and
mixed waste in the truck as per the existing practice. They were then asked to follow
segregation method by dumping their household waste in the respective red and
green bins from that moment onwards. A tricycle has been engaged for the door-to-
door collection of waste. In fact, this tricycle is custom-made and fabricated
according to the requirements of the hilly terrain. It has two compartments, red and
green, for the collection of inorganic and organic waste, respectively. Currently,
there are six workers in the project, including a chief coordinator and one night
chowkidar (guard). Collection is done twice daily: every morning from 6 am to 8 am
and from 4 pm to 6 pm in the evening.
The organic and inorganic waste collected is then transported to the shed
where it is goes through a secondary segregation process. All the cattle eatables are
segregated, washed and given to the cattle; the rest of the cattle non-eatable organic
waste is soaked in cow dung-mixed water, filtered and used for the compost beds.
Inorganic resources are similarly segregated category-wise. For instance, paper, tin,
bottles, plastics, etc, are packed, stored and sold to a scrap dealer in East Sikkim. The
compost beds are currently getting ready for harvest. As much as this project has
encouraged everyone, the challenge of difficult terrain remains. Due to the
unavoidable slopes, the tricycle needs constant maintenance and repair. The lack of a
competitive market for the non-recyclable waste is another challenge.
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(SOURCE:From Dreams to Reality Compendium of Best Practices in Rural Sanitation
in India, Water and Sanitation Program,MoRD,GoI,2010)
Community Surveillance of Water Sources and Sanitation Practices
Sunderkhal gram panchayat (GP) in Uttarakhand is an excellent example of
community ownership in water quality monitoring and surveillance, as also
sanitation behaviour change. The following practices in Sunderkhal deserve
mention:
All the 21 water sources in the GP are tested by the community for
bacteriological contamination using H2S vials three times in a year and
necessary remedial measures are undertaken as per requirement using
bleaching powder/chlorine tablets, etc.
The community also fills sanitary survey formats once a year to assess the risk
associated with their water sources and the related reasons. Based on the
findings of the survey, protection measures are undertaken by the community
members themselves. These include repair, white wash, cleaning or protection
of various structures of water sources. The community contributes Rs
10/month/household for the purpose. At times, community members also
contribute voluntary labour.
To ensure protection from illnesses, there is a practice of consuming boiled and
filtered water in almost all households. Domestic water filters exist in 60
percent households.
Ladles are used for taking out water from pitchers.
Proper drainage has been constructed for disposing wastewater, particularly
from water sources and houses.
Nobody defecates in the open in Sunderkhal. The GP imposes a Rs 50 fine on
defaulters.
All the schools1, anganwadi centre and other community buildings (Panchayat
Bhawan, sub-centre of health department) have toilets that are properly
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maintained. To solve the problem of water shortage (for use in toilets) in the
inter college, a rule has been formed, with the consent of students/parents, that
every student would bring half-a-litre extra water which would be poured in a
big container put near the toilets in the school.
Handwashing with soap/ash and water after defecation and before meals is
being practiced by students and community members.
Four garbage bins have been installed by the GP at main locations.
There are about 75 compost or vermi-compost pits in the village for safe
disposal of cow-dung and other biodegradable waste. Non-biodegradable
waste is either sold to rag pickers or buried in pits.
A user water supply and sanitation committee (UWSSC), which is responsible
for overseeing water and sanitation in the village, has been formed in the
village.
This was initiated on January 24, 2009. A training workshop was
organised in Dhari block of district Nainital by District Project Management Unit,
Bhimtal, and conducted by Knowledge Links as part of IDM 2007 project number
245, ‗Institutionalising community-led action for sanitary surveillance (CLASS)
through development and launch of a reward scheme‘,with the support of the World
Bank. Key Resource Centre (KRC), Centre for Good Governance (CGG),Uttarakhand
Academy of Administration (UKAA),Nainital, and the Project Management Unit
(PMU), Swajal Project, Uttarakhand, Dehradun, provided their consent for this IDM
pilot project.The gram pradhan of Sunderkhal, Ms Leela Bisht, wasone of the
participants in this workshop. Impressed by the CLASS approach, she requested
resource persons from Knowledge Links to trigger CLASS in her own village during
the course of training. Thus, triggering was done and post-triggering follow-up
support was also provided by Knowledge Links professionals and a few DPMU
staff. During the triggering exercise, the community members present were engaged
in self-analysis of water and sanitation profile of the village using a number
ofparticipatory exercises, such as disease transmission routes, calculation of medical
expenses, calculation of amount of faeces left in the open, demonstration of sanitary
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survey of nala and dhara (traditional water sources), visits to defecation areas, water
testing through H2S vials, etc. The exercise revealed that 50 per cent households
were suffering from jaundice; one person had died of jaundice just a month ago.
Most of the households were practicing open defecation; one school toilet was
choked and defunct. Many people in the community had the perception that
jaundice is occurring due to bad air. For the first time, they now realised the
connection between their consumption of bad water and occurrence of jaundice.
They also realised that open defecation was polluting the water sources. The risks
associated with their water sources and related reasons that emerged during sanitary
survey demonstrations gave them ideas as to what they could possibly do on their
own to improve the situation. They immediately agreed to undertake a sanitary
survey of all the water sources in the GP, cleaning of all the nalas, repair of tank in
dhara and disinfection of all the water sources using bleaching powder. The natural
leaders visited the schools and mobilized students and teachers. Students organised
processions in the village, shouting slogans to end open defecation.Women were
mobilised to form teams and convince community members in their neighbourhood
regarding cleaning and protecting sources, water testing and ending open
defecation. Similarly, men in teams mobilized the males. Community contribution
was started and deposited in the UWSSC account. For the first time mengot
associated with protection of water sources; earlier only women were responsible for
this.Drainage was constructed to safely dispose wastewater from one naula. A water
tank was repaired with community contribution and GP fund. A system of weekly
cleaning of water sources was introduced. Self-help groups of women and Yuvak
Mangal Dal contributed to this process by doing vigilance in the morning to check
open defecation. The committee decided to purchase H2S vials, bleaching powder,
etc,from the contribution. Seven ward members also took the responsibility of
monitoring. All the water sources were tested initially in January and February 2009,
then in July 2009 and then in October 2009. Now, these tests are done during the
monsoon, after monsoon and in the winters. Thus the village became open
defecation free (ODF) in 13 days, and all the water sources had been tested and
sanitary surveys undertaken. The sanitary surveys revealed that most of the water
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sources were a ‗high risk‘ category. Therefore, remedial and protection measures
were undertaken. Within six months, the community members upgraded their
toilets. All sections of the community have participated including men, women and
children. Community institutions such as Yuvak Mangal Dal, GP, women self-help
groups, anganwadi and schools contributed in the process. School teachers,
Accredited Social Health Activist (ASHA) and anganwadi workers mobilised the
people in their work places. The initial indications are encouraging. The practice has
been operational for more than a year-and-a-half. Thispractice is sustainable –
women and village committees ensures water quality monitoring and surveillance
and cleanliness in the village. Many persons who earlier built temporary pit toilets
have now proper pucca (permanent) toilets. As mentioned above, there is a regular
community contribution in cash; labour is also being contributed by community
members to ensure proper upkeep of water sources and water testing.While before
the initiation of the project in Sunderkhal, 50 per cent people were suffering from
jaundice and one person had died of the disease, there are hardly any occurrences of
jaundice in the GP now. In 2010, the GP Sunderkhal bagged the best GP reward (Rs
70,000) under the IDM project. There is another factor which is contributing to the
sustainability of community processes and outcomes,which is that, often, group
participants of various training programmes that are organised in the KRC, CGG
and UKAA visit to see the best practice. This reinforces community participation and
boosts the morale of the community.This practice of triggering CLASS has been
replicated in many villages across Dhari block of district Nainital in Uttarakhand.
The approach has been successfully pilot tested in this block. It has the potential of
replication at scale under the GoI‘s National Rural Water QualityMonitoring and
Surveillance Programme, provided the implementing agency at the state and district
level decide to use the CLASS approach to achievethe objectives of the national
programme, and also strategically use the information, education and
communication as well as human resource development funds available under the
national programmes of water quality and total sanitation.
(SOURCE: From Dreams to Reality,Compendium of Best Practices in Rural
Sanitation in India, Water and Sanitation Program,MoRD,GoI,2010)
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Need Assessment of U LBs & Panchayati Raj Institutions
Cleanliness - Gram Panchayat Piplantri, Rajasthan
The work was going on under the complete cleanliness program of the
village. Until year 2006-07 none of the gram panchayats of Rajasthan received the
Nirmal Gram Award. With the inspiration of main working officer,sarpanch Shri
Shyam Sunder Paliwal took a resolution to make the gram panchayat into Nirmal
Gram Panchayat in may 2006.
The Total population of Piplantri Panchayat is 5138 and 7 Rajasv gram are
Piplantri, Morwad, Gugleta, Umthi, Aarna and Bhudan. On taking the post of
sarpanch by Shri Shyam Sunder Paliwal on 4 feb 2005, the first work done was sector
reform and Swajaldhara Yojna along with acceptance of 11 drinking water plan due
to which the water scarcity was removed forever.
Generally gram panchayat Piplantri is well known for its marble mining
industry. In this gram panchayat, the famous R.K.Marbles is located whose name is
recorded in Guinness Book of World Record for maximum production of marble.
But the environment got badly affected gradually. Without considering the future,
previous gram panchayats gave 50-60 N.O.C‘s due to which there were many mines
in govt.land.
Gram panchayat ran the program, evening to night, Panchayat at your
door and got in touch with the problems of the villagers and tried to solve it quickly
and rest was on thought.
After drinking water the first problem which they faced were of
lights and cleanliness. For cleaning the village, start was made by the Sarpanch,
Panchayat members and other officers along with other villagers. For solving the
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light problem at night, the suggestion was made that the lights which uses least
voltage is to be used on the streets and roads on expense of gram panchayat &
whose electricity bill will be beared by the person infront of whose house the lights
will be placed and this experiment was remarkably successful. Today aprox.350
lights are working in the village with the contribution of the villagers due to which
whole gram panchayat is lighted.
With the mutual efforts of the villagers, the main roads of the village were
broadened. Along with cement and concrete roads, pakki drains were formed.
For fulfilling the requirement for the dream of Nirmal Gram, 26 toilets were
constructed for the students for 13 schools. For the three anganwadi centres special
sanitation facility were constructed. From the total of 799 families the selected 215
families were provided with Rs.1200 monthly under the plan along with other
support like material, WC etc to the experienced workers.
The 11 ward panch and all 103 workers created sound contact with each
other on sharing their houses which resulted in success of the program.
Cleaning of houses, self cleanliness, proper storage of drinking water, use of
ladles, washing hands before taking meals and after sanitation, child care were given
the importance. The responsibility of vaccination was taken by the workers of
A.N.M. anganwadi which brought surprising changes in the village.
On making all such efforts, the panchayat applied for Nirmal Gram Award on 15
august 2006 on which the inspection committee of central govt. made a survey and
then high inspection committee inspected and made a contact with the villagers.
In the end, on 4 May 2007 h‘ble president A.P.J Kalam awarded Gram
Piplantri with president‘s award.
(Source : piplantri.com)
Fly changes life of people at Bachoda Village of District Indore in Madhya Pradesh:
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Need Assessment of U LBs & Panchayati Raj Institutions
Village Bachoda where agriculture is the only source of economy is in
limelight inentire Madhya Pradesh for receiving Nirmal Gram Pursakar for TSC.
Not far behindjust one year before village Bachoda was like any other village in rural
India, wheredue to open defecation in entire village one would find dirt everywhere.
Mr. Manish Bharadwaj took the initiative to solve the problem of drinking water and
sanitation. He faced lot of resistance by the community members to construct toilets.
Information was disseminated amongst community members through medium of
meetings; pamphlets were also distributed to create awareness. But it was a long
way to to convince the entire village for the same.
But suddenly transformation could be seen, and that was because of a
small
example, which was sited to community members during meetings. The examples of
a small fly how it goes and sits on excreta, and again it fly and come and sitson what
we eat. People were asked to think as to what do they consume now whilethey eat,
the food??? The answer was simple one also consumes excreta along withthe food
which is transferred by the fly, when she sit on food items. The examplewas an eye
opener people realized and agreed to construct toilets so that system ofopen
defecation can be totally abolished in Bachoda Village.
Few individuals were given the responsibility to become policeman for
the cause ofcleanliness; there duty was to not allow a single individual to go for
lavatory in opendefecation. In order to achieve cent percent sanitation target,
individuals not
constructing toilets were penalized, for some time even they were not given grains
from the ration shop and pensions of few pensioners was also stopped for
thisreason.
After construction of toilets was over, the next target was health and hygiene
ofcommunity members. The woman were explained the importance of
hygiene.Individuals, who use to keep them self-dirty, were punished by giving them
bath in
cold water. In order to keep village clean, the roads were broaden, dustbins were
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kept on roadside.
(Source: www.ddws.gov.in)
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Under the 73rd and 74th Amendments of the Constitution the State Finance
Commission has been formed for deciding norms for allocating grants to the PRIs
and ULBs. Most of the earlier grants had been based on population and had not
accounted for the basic needs of villages and the smallest unit of ULBs in the absence
of primary information regarding needs and gaps.
The present Fourth State Finance Commission has taken an innovative
approach by initiating an in-depth study into the present needs, funds available and
the gaps that are necessary to be filled during the next five years. The basic premise
is to evolve formulae for an equitable allocation of the grants to be distributed to the
local bodies. The present Study was entrusted to the Shiv Charan Mathur Social
Policy Research Institute to quantify physical and financial norms, for allocation of
funds especially in the crucial areas of health, sanitation, sewerage, cleanliness of
inner roads in the villages and small urban local bodies, street lighting, etc. by the
State Finance Commission.
Panchyati Raj Institutions
It was a matter of worry to find that the expenditure incurred by the PRIs was
far less than the funds provided. It was also noticed that the panchayats have very
little fiscal autonomy. The locally raised revenues are, therefore, very negligible. The
general environment of not levying any taxes at the State level for fear of losing
elections has pervaded to the 3rd tier which has harmed the third tier the most. The
result is that not only development but establishment requirements are being met,
that also only partly, by the State government. This has led to wide gaps in funds
Summary & Suggestions
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Need Assessment of U LBs & Panchayati Raj Institutions
required and available for even basic infrastructural requirements of panchayats and
urban local bodies. Minimum needs of the people are being put on the back burner.
This implies that the State Government has to provide funds to meet the
larger share of expenditure to these bodies from their own kitty or through the State
Finance Commission grants. This cuts into their own needs for larger infrastructural
and core sector requirements. It is suggested that the local governments should not
only have the power to raise revenues but their own sources of revenues should
constitute a very significant share in the total revenues, as is done in Kerala.
Panchayati Raj Institutions should be strengthened by providing to them
ownership of all rural roads, including their construction and maintenance. They
may also be given some powers to act as a watch dog to keep an eye on the quality
and timely delivery of road works. In several developing countries, the participation
of beneficiary communities has been tried out successfully. In China for example,
the Government provides them material like bitumen, cement and steel and the local
villagers construct the roads. In India they can do it under MNREGA, where the
material may be provided separately and not as a material component under
MNREGA. Through road cooperatives, they can also take up maintenance of rural
roads with assistance from the Government. It is suggested that the Panchayati Raj
Institutions should also be provided funds to directly control road maintenance for
which they may like to have a convergence with MNREGA.
According to the Rule 33 of the PR Act the Core functions of a panchayat are
sanitation, street lighting, safe drinking water, drainage, public distribution system,
maintenance of village roads and birth and death registration. It was found that the
focus at the gram panchayat level was on water and rural housing and most of the
funds received were spent on these areas. This led the other functions like Solid
Waste Management, Rural Sanitation, Drainage, and Public Facilities out of focus.
Solid Waste Management and Drainage facilities were available at some
places but people expressed their dissatisfaction about them. There was hardly any
facility of street lighting in the GPs and temporary arrangements were being done by
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Need Assessment of U LBs & Panchayati Raj Institutions
the panchayat during festivals. The people expressed their satisfaction on the
condition of the roads in the rural areas except the desert and canal area. The
incidences of encroachment on the Cremation and Burial Grounds were found to be
all pervasive.
The condition of the public parks in Kota was appreciable while the others
lacked maintenance and were in a bad shape. The main reason stated was a lack of
budgetary provision for their upkeep. The basic facilities like sanitation, electricity,
drinking water and toilets are lacking in most of the community halls and the
maintenance is also unsatisfactory. The availability of public toilets and their
maintenance and cleanliness was also missing at most of the GPs.
The availability of drinking water in the nearest habitation was in mere 64.10
percent of the sampled panchayats. The water is mostly provided to the main village
only which makes local arrangements for supplying to the smaller revenue villages.
This leaves the onus on either the gram panchayat or the individual to make its own
arrangements (tankers, rain water harvesting). The condition of drinking water
availability at public places (markets, schools, bus stands, hospitals, etc) is even more
unsatisfactory. Drinking water is available at only 57.14 percent of public places.
During the discussions, the sarpanchs and the community members
expressed the need for more resources (both financial and manpower) for improving
the scenario in the rural areas. A need for introducing solar technology for street
lighting and using CFL technology for saving power was also emphatically
expressed.
It is really disheartening to see that most of the members of the GP were not
aware about the various development committees formed at the GP level. All the
GPs reported to be forming their annual plan but it was found that it was just a
routine exercise which did not reflect the local needs or the community voices. All
the stakeholders were very positive about the reward system as they felt it promoted
the zeal for development and motivated the representatives for performance.
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Need Assessment of U LBs & Panchayati Raj Institutions
It may be pointed out that in rural areas the topmost priority may be assigned
to drinking water followed by Solid Waste Management and Drainage along the
inner village roads. Solar Lighting may help in utilizing the enormous solar power
endowed by the nature on the state. In the urban areas the focus may be on solid
waste management and sanitation along with street lights.
Table 8.1 – Cost of Core Functions for PRIs
(in `)
SN Core Area Total Cost
Per Capita
Cost
Per Capita
Capital Cost
Per Capita Operational
Cost
1 Solid Waste Management 237284 30.43 - 30.43
2 Waste Water Management 546765 70.12 62.85 7.27
3 Street Lighting 114264 14.65 8.65 5.99
4 Solar Light 176000 22.57 22.57 -
5 Cremation and Burial
Grounds
359960 46.16 46.16 -
6 Community Halls 150750 19.33 - 19.33
7 Drinking Water 510000 65.40 - 65.40
8 Public Health 22960 2.94 - 2.94
9 Public Toilets 136200 17.46 13.46 4.00
Total Cost for Core Functions per GP 22,54,183 289.10 153.69 135.36
Urban Local Bodies
In the Urban Local Bodies, it was observed that their expenditure
responsibilities are increasing day by day, but their own revenue efforts for revenue
generation have more or less remained stagnant. The 74th amendment widened the
functional domain of ULBs by including additional functions such as Town
Planning, planning for social and economic justice, environment protection and
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Need Assessment of U LBs & Panchayati Raj Institutions
reducing urban poverty etc. But as far as the financial requirements of ULBs are
concerned, it is left to State Finance Commission,which is asked to recommend more
fiscal devolution to complement the State resources. The additional functions given
to local bodies are not accompanied with additional devolution. This further acts as
a constraint on ULB‘s and handicaps them in ensuring quality civic amenities to the
citizens. Rapid growth of cities and towns is not matched by a corresponding
increase in the revenue of ULBs.
The revenue augmentation efforts by ULBs do not match with their ever
increasing resource requirement to render satisfactory service to the citizens. The
reason for this mismatch between revenue generation and expenditure are:-
The Raj Municipality Act under Section 102 provides for levy of six obligatory
taxes, of which the tax on land and building situated in Municipal area by
unit area base, tax on profession, trades and callings, toll on bridges and
ferries, tax on advertisement and hoarding, taxes on roads and bridges owned
by or built from municipal funds are important.On these obligatory taxes on
land and building House tax or Property tax is a very important.
Even those taxes which are mentioned in the Municipal Act are not being
levied.
No action is taken against officials, if the tax targets are not achieved.
Surprisingly, not paying tax on time is being rewarded by discounts for late
payment.
The municipal budgets are not prepared as per the instructions while the
expenditure estimates of the municipalities are unrealistic. The achievement
of revenue targets estimated is hardly 30% thereby leaving huge gaps in
revenue mobilization. The liabilities pending at the end of the close of a
financial year are not accounted for or if accounted for their level is kept quite
low so as hide the realistic picture. There is an urgent need to introduce a
systematic computerized accounting system
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Need Assessment of U LBs & Panchayati Raj Institutions
Thus, there is a glaring mismatch between the expenditure responsibilities of
urban local bodies and their revenue augmentation efforts. Further, the position of
the smaller municipalities is much worse, and at times, they find it difficult to even
meet their establishment costs. The ULBs with inadequate taxation efforts, coupled
with inefficient and corrupt financial and administrative management render the
municipal services far from satisfactory level.The citizen is the ultimate loser.
In the Urban Local Bodies it is found that the focus of the Municipal Boards is
on building and conversion activities.Construction of inner roads, sanitation, solid
waste management and death-birth registration activities are never considered
important.
It was found that the public toilets in the urban areas were insufficient and
there was a requirement for more public toilets at public areas like railway stations,
bus stands, hospitals, main markets etc. The existing public toilets were also in a
miserable condition due to lack of maintenance & basic requirements like water
supply.
Cremation & burial grounds were found in all the ULBs‘ but they seemed to
be lacking the basic requirements. Boundaries which are necessary to stop
encroachment were missing. It was suggested that boundaries & tin shade, Water &
lighting facility should be available at the cremation and burial grounds. The parks
available were not properly maintained & required water for plants as well as staff
which was not there. 20% of the parks are maintained on a contractual basis but the
contractor doesn‘t take the pain to look after them even occasionally. In Udaipur,
parks were found in very good condition as they have been adopted by various
public committees. This needs to be replicated.Providing funds from the SFC will
come in the way of efforts at involving private initiatives.
The equipment for firefighting is not adequately available anywhere. In fact
contract labour is mostly used and most of contract laborers are untrained. There is
need to augment the capacity of equipment available for fire fighting. This should be
a very important core function at present time. Not only equipment but funds
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Need Assessment of U LBs & Panchayati Raj Institutions
should be provided for tubewells or water storage tanks in sensitive location to be
identified by ULBs.
Development committees were not constituted in many ULBs because of local
politics. Even where the committees were found, these were not achieved and were
just on paper.
In the urban areas, infrastructure for water supply, sanitation, sewerage and
solid waste management continues to be woefully inadequate, badly supervised and
of poor quality. The deprived sector is the urban poor, who spent much more to
access drinking water and sanitation facilities than the middle and high income
groups. The level of de-centralization, as envisaged in the 74th Constitutional
Amendment has not reached urban local bodies. There is hardly any desire in the
ULBs to design or modify urban poverty alleviation programmes or levying taxes.
Looking to the fast growing minimum needs of the urban areas in the core sectors
districts where the urban population growth rate is higher than the average may
need special provision from the State Finance Commission.
The State Finance Commission may also like to look at the norms and
guidelines for micro planning and inherent systematic weaknesses in the 3rdtier of
governance to absorb funds allocated to it. In the rural areas, unfortunately, true
spirit of decentralized planning continues to be more of a theoretical idea with
multiple plans being formulated. While the line departments and District Panchayati
Raj System should play a significant role, due to lack of support from the state
government it does not reflect local demands emerging from the block and gram
panchayat level. For this purpose, it is very important that the State Finance
Commission should consider a comprehensive and regular capacity building
programme as one of the core functions and allocates suitable funds for it.
More and more responsibilities are being transferred to the local governments
which require capacity building of the staff to become the fulcrum of development.
The capacity building exercises may be taking place to some level of success in the
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Need Assessment of U LBs & Panchayati Raj Institutions
PRIs but for the ULBs, no such efforts were seen. Good governance is one of the
basic needs of the people of the state.
Table 8.2 - Per Capita Cost for Core Functions for ULBs
(in `)
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Solid Waste Management (values in Rupees)
As Per Standard Norms 356.91 346.37 338.85 317.81 315
Capital - - - - -
operational 356.91 346.37 338.85 317.81 315
Street Light
As Per Standard Norms 225.08 215.76 218.79 209.10 211.03
Capital 148.27 148.31 150.39 150.27 151.68
operational 76.81 67.45 68.40 58.83 59.35
Public Toilet
As Per Standard Norms 1.63 7.60 7.54 6.77 17.40
Capital - - - - -
operational 1.63 7.60 7.54 6.77 17.40
Public Health
As Per Standard Norms 6.92 7.10 8.31 5.25 5.48
Capital - - - - -
operational 6.92 7.10 8.31 5.25 5.48
Public Park
As Per Standard Norms 45.18 58.34 57.54 13.54 14.81
Capital 12.67 16.57 15.95 3.73 3.20
operational 32.51 41.77 41.59 9.81 11.61
Community Halls
As Per Standard Norms 1.33 11.31 10.41 14.53 10.67
Capital - - - - -
operational 1.33 11.31 10.41 14.53 10.67
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Vertical and Horizontal Distribution of Funds
The Institute in this report has calculated the norms for the core functions to
be performed by the PRIs and ULBs. The total per capita cost for the core
functions per Gram Panchayat comes to Rs 289.10 while for Urban Bodies it is
Rs 613.27. For ascertaining the total cost required the per capita cost was
multiplied by the total urban and rural population according to the Census
2011. The ratio of the total cost of rural vis-à-vis urban areas for the identified
core functions roughly comes to 60:40. The prevalent practice of the State
Finance Commissions has been to devolve the funds according to the rural-
urban proportion. The same formula has also been adopted in the second
interim report submitted by the Fourth State Finance Commission. Keeping in
view the needs of the PRIs and ULBs and their present financial situation as
well as the future challenges, it suggested that the ratio of the urban maybe
increased. Thus, the horizontal distribution of devolutions should be 60:40.
Within the ULBs 80 percent of the funds may be devolved among all the ULBs
in proportion to their population and additional 20 percent among all the
municipalities in proportion to their population on the same pattern as
proposed in the interim report.
As far as Vertical distribution of State Finance Commission grants to PRIs is
concerned the present share of 85:12:3 and may be changed to 85:13:2 in
favour of the Panchayat Samitis, which are the fulcrum of panchayati raj
system.
For the distribution of funds to the PRIs the following norms based on the
indicators are suggested:
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 8.2 – Indicators for Distribution of Grants to PRIs
Area Indicator Source Weightage
Basic Fact of the District including Natural resources
Population Census of India 50
Type of Geographical Terrain and distance from district headquarters
Census of India 10
Infrastructure and services for the public (Any Two)
% Houses Electrified or % Houses with Solar energy or % Houses with Water Availability or % Houses with Drainage Availability
Census of India 10
Data on important indicators and assessment of development
Infant Mortality Rate NFHS/SRS 05
Child Sex ratio (0-6 years) Census of India 05
Gender Gap in Enrolment DISE 05
Financial Information
Contribution to the SDP/Tax Revenue
Finance Department
05
Own Revenue Finance Department
05
Number of BPL Families BPL Survey 05
Total 100
Other Suggestions
The distribution between the State,panchayats and municipalities of the net
proceeds of the taxes, duties, tolls and fees leviable by the State, be based on
some yardsticks which would lead to more inclusive growth in the entire
State, especially in the field of quality of life. There can be different yardsticks
for categorization of Panchayati Raj Institutions and Municipalities. One
could be on the basis of geographical zone which Rajasthan has always
followed: Desert districts, tribal districts and others. The second could be the
human development index as reflected in the local level indicators like
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Need Assessment of U LBs & Panchayati Raj Institutions
childsex ratio (0-6 years), number of Institutional deliveries, number of drop-
out students, number of SHGs, etc. A third can be the radial distance of a
panchayat from a town. A fourth could be the financial performance of a
Panchayat or a ULB. There are Panchayat and Municipalities which just
cannot generate resources howsoever they may try. But human beings live
there also and they also need a basic infrastructure to live like others. Another
indicator may be Innovation introduced for socio-economic development.
Such bodies do require extra devolution.
The State Finance Commission may like to link funds with the condition that
the plans are coming from the block or Gram Panchayat level only. It is
advised that a condition which the SFC may like to impose is that the funds
should be released only if there is sufficient staff and infrastructure available
with the gram panchayat.
It is of utmost importance that the local bodies at the third tier start making
efforts of generating resources. To encourage this, it is necessary that the
distributing of funds by the State Finance Commission should also be linked
with the resource generating efforts made by the recipients.
Inequalities were seen in financial and development status of the local bodies.
It is proposed that the State Finance Commission should make an attempt to
bring about some semblance of inclusive growth of different parts of the State,
otherwise some rich Urban Local Bodies and PRIs will become richer and the
poor will become poorer.
It is advised that the State Finance Commission may provide sufficient funds
for good governance especially in the urban areas. There is a need for a
Rajasthan Institute for Urban Development (RIUA). It has been ascertained
that that this would require initially a capital expenditure of about 250 crores
and would gradually become a self sustaining model. It would be an Institute
for research, training and information dissemination in urban development
and management. The Institute in addition to evaluating the social,
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Need Assessment of U LBs & Panchayati Raj Institutions
administrative, financial and other aspects of the implementation of urban
development plans and programmes may be the centre for capacity building
for the elected representatives and municipality staff.
The State Finance Commission may also like to review the recruitment and
deployment policy for the Municipalities. Recently the State Government has
created a dedicated cadre of state administrative officers for rural areas. The
Rajasthan Municipalities Act 2011 entrusts the responsibility of recruitment
and selection of the municipal officers to the Department of Local Bodies
(DLB) which raises a serious question on the quality of the officers recruited.
It needs to be entrusted to RPSC. Urban Governance is gradually gaining
immense importance and it would be advisable if a separate cadre of the
Rajasthan Urban Development Services is created.
It is suggested that the State Finance Commission should stress the idea of
Solar Energy for lighting and water pumps. The first phase may include areas
where conventional sources are not available. It is also suggested that there
should be a gradual transition from conventional to solar power for bore and
surface water pumping also. This renewable source is now being widely used
in the developing countries. Technical Solar Power Pump System consists of a
solar panel array that powers an electric motor, which in turn powers a bore
or surface pump. Photo voltaic power pumping station is a cost effective
alternative for remote area water supply.
There is need to highlight the need for toilet facilities as a priority area for
rural sanitation.
There is a crucial need to provide clean and safe drinking water to the
slipped-back habitations.
The following could be areas where the Panchayati Raj could levy taxes :-
(a) Tax should be levied on the purchase of animals, which are sold in the
Panchayat area.
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Need Assessment of U LBs & Panchayati Raj Institutions
(b) Vehicle tax, as on tractors.
(c) Pilgrim tax, wherever applicable.
(d) There is tax on a limited number of commercial crops- chillies, cotton,
mustered, sugarcane, zeera and groundnut. However, it should be
extended to tobacco, poppy, fruits, orchards, betel, etc.
(e) Tax should be imposed on contractors working in different rural
development schemes. If already taxed, a surcharge could be levied.
(f) Surcharge should be levied on petrol and diesel and related products
like oil and automobile repair shops.
(g) Hotels and Dhabas.
(h) Country liquor
(i) Ensuring that the surcharge on stamp duty on property is passed on to
the concerned Panchayats, which is not happening at present.
(j) Surcharge on Krishi Upaj Mandi fee.
(k) Major and minor minerals in scheduled notified areas. Any approval
by the Government should need the approval of the Gram Sabha. An
approval fee as well as a cess on production should be levied. Any
mining activity directly impacts on the environment of the Panchayat
adversely affecting the health of the people in the area. They must be
compensated.
(l) Cess on fishing contract which is under jurisdiction of a Panchayat.
(m) Minor forest produce
(n) Lighting the streets
(o) Fairs
(p) Sanitation
(q) Slaughter houses
(r) Shops
(s) A cess on the irrigation charges, collected from tanks/ponds of zero to
80 hectares to Panchayats, from 80 to 300 hectares to Panchayat
Samities.
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(t) The octroi compensation is available only to the urban local bodies
whereas these products are used in the rural areas also. The
Government may reconsider the issue.
In order to enhance the revenue augmentation in the context of Urban Local
Bodies in Rajasthan :-
(a) A simplified method for Property tax needs to be introduced which may
encourage self –assessment of Land & Building Tax. The system may
learn from the success of the Surat municipality model.
(b) Vacant land tax should be charged.
(c) Powers for periodic revision of taxes should be delegated to ULBs.
(d) Transfer of additional functions to ULBs should be accompanied with
corresponding financial devolution.
(e) Parking fee for motor vehicles should be mandatory.
(f) There should be periodic and regular revision of fees, fines and user
charges (if levied).
(g) ThePer capita grant to local bodies, if abolished must be restored
immediately.
(h) The devolution from the State should be so designed as to encourage
own revenue augmentation by the Local bodies and must not be used to
defray their establishment expenditure.
(i) The State Finance Commission recommendations should promote the
ULB‘s to be more capable of generating their own resources and less
dependent on the State Government. State Government‘s devolution of
funds should be in accordance and should act as an incentive for
generation of own resources by the ULBs. More autonomy to local
governments would enable them to generate additional resources
according to their expenditure responsibility.
Presently, the government is collecting cess for street lighting alongwith the
electricity bill in the urban areas. It is found that the actual expenditure is far
less than the amount being collected. The SFC should suggest that this
amount should be dedicatedly used for promoting the Urban Energy Saving
Programme.
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The part of the share of the Surcharge on the Stamp duty was scheduled to be
transferred to the Local bodies but is not being done presently.
We would like to stress on some requests, even at the cost of repetition.
They are –
(1) Specific needs of rural and urban women should be met otherwise the
purpose of their reservation is lost.
(2) The growth rate of urban population should be a major criterion. The faster
growing towns need special provision.
(3) Greater stress should be put on those core functions which directly impact on
human development indices.
(4) The State should take the lead in suggesting areas which can be taxed by the
rural and urban local bodies. It may be asked to suggest areas where indirect
taxes can be imposed as they are easier to collect.
(5) Governance at the third tier continues to be a sore factor in service delivery
systems. The less said the better for urban governance which has reached its
rock bottom.
(6) The State is under constitutional obligation to link the grants to a certain level
of satisfactory work done by the recipients.
(7) Full stress needs to be laid on solar power not only for public lighting but also
for drinking water from bore wells. The latter use is widely prevalent in many
developing countries.
The funds from the State Finance Commission should not only fill the gaps in
the required and available levels of funds for infrastructural development and
meeting their core functions but also should work as a catalyst to improve their
capacity and motivate them to generate their own resources to fulfill their unmet
needs. If the Grant is sufficiently utilized it can bring about substantial
mandatory returns as well as lead to bridge the various gaps is developing our
infrastructure which can lead to a faster, wholesome and quicker development of
these institutions and the State.