capacity gap analysis - pria.org

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Submitted by Participatory Research in Asia (PRIA) 42, Tughlakabad Institutional Area, New Delhi - 62 Tel: +91-11-2996 0931; Fax: +91-11-2995 5183 Web: www.pria.org

Capacity Gap Analysis

Capacity building of Women Elected Representatives (WERs) in Jharkhand

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Content

Chapter Topic Pg.

No.

Abbreviations 2

1 Background 3

2 National Capacity Building Framework 5

3 Methodology related to Capacity Gap Analysis 6

4 Measures for Capacity Building of Elected Representatives of PRIs in

Jharkhand

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5 Current status and Capacity gaps among the elected representatives

of PRIs

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5.1 Administration and Management 11

5.2 Development, Planning and Decision Making 12

5.3 Gender Mainstreaming 14

5.4 Women Leadership 14

6 Strategies to develop Capacities of Elected Representatives 17

6.1 Tentative Training design to build the capacities of WERs 17

6.2 Training Methodology 18

6.3 Suggestive model 20

Reference 22

Annexure 23

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Abbreviations

BDO Block Development Officer

CA-CDS Capacity Assessment and Capacity Development Strategy

CB&T Capacity Building and Training

CDLG Capacity Development for Local Governance

CFC Central Finance Commission

CGA Capacity Gap Analysis

CSO Civil Society Organisation

CTI Central Training Institute

ETC Extension Training Centre

CSS Centrally Sponsored Schemes

FAMS Financial and Accounting Management System

GoI Government of India

GoJ Government of Jharkhand

GP Gram Panchayat

GPDP Gram Panchayat Development Plan

GS Gram Sabha

ICC Internal Complaint Committee

JPRA Jharkhand Panchayat Raj Act

JWPRC Jharkhand Women Panchayat Resource Centre

KAS Knowledge, Aptitude, Skill

LCC Local Complaint Committee

MGNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme

MoPR Ministry of Panchayati Raj

NRDWP National Rural Drinking Water Programme

NRLM National Rural Livelihood Mission

ODF Open Defecation Free

PEAIS Panchayat Empowerment and Accountability Incentive Schemes

PMAY Pradhan Mantri Awas Yojana

PRC Panchayat Resource centre

PRIA Participatory Research in Asia

PRI Panchayati Raj Institution

PTI Panchayat Training Institute

RGPSA Rajiv Gandhi Panchayat Sashaktikaran Abhiyan

SBM Swachchh Bharat Mission

SFC State Finance Commission

SHW Sexual Harassment at Workplace

SIRD State institute of Rural Development

SSA Sarva Shiksha Abhiyan

UNDP United Nation’s Development Programme

UNICEF United Nation’s Children Fund

WER Women Elected Representative

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Chapter – 1 Background

UNICEF Jharkhand in collaboration with State institute of Rural Development (SIRD) developed a strategy to build capacities of newly elected representatives, after the first round of elections of panchayati raj institutions, and promoted Jharkhand Women Panchayat Resource Centre (JWPRC). It was expected that the trained elected representatives of panchayati raj institutions (PRIs) will support to improve service delivery, realisation of rights of children and women in their respective panchayats after getting training from JWPRC. Later SIRD and JWPRC along with the department of Panchayati Raj & Rural development, with the support of UNICEF, organised several training programmes to develop the capacities of elected representatives of PRIs, especially of women elected representatives (WERs). This was also done to endorse the belief that PRIs participation is paramount for successful implementation of programmes and scheme of government of Jharkhand as well as government of India. Currently, Gram Panchayats are getting resources on the basis of recommendation of 14th Central Finance Commission and other national flagship schemes like Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS), National Rural Livelihood Mission (NRLM), Swachchh Bharat Mission (SBM), etc. In light of this it has been realised that there is need to develop capacities in a way where the elected representatives of PRIs could use different resource for local development. Again, the capacities of members of PRIs should be developed such that they could utilize the legal frameworks for promotion of better delivery of services and for transparency and accountability of the institutions. UNICEF has initiated a partnership with PRIA to understand the effectiveness of training imparted on women representatives, by SIRD and JWPRC during 2010-2015. The impact of these trainings would be assessed in terms of a. Enhancement of their capacity in terms of improved implementation of flagship schemes

such as MGNREGS, SBM, SSA, NRHM etc. in their panchayats b. Ensuring greater gender equality and improved programming at panchayat level c. To capture best practices adopted by the EWRs who received trainings from SIRD

and/or JWPRC during their last tenure in PRIs. d. To document these best practices and reflect on topic, content, pedagogy, etc. Capacity gap analysis (CGA) is one of the major deliverable under the current partnership. It is visualised that the CGA would be able to highlight key challenges that are being faced by the elected representatives of PRIs in their day to day function and will also try to understand the causes behind those challenges. On the basis of those challenges and their causes capacity gaps would be identified and strategies, including training modules and training pedagogies, would be developed to cater the needs of the elected representatives of PRIs. The current CGA report is divided into six chapters. The first chapter gives background f the current study with chapter planning. The second chapter talks about the capacity building framework that is visualised by the Ministry of Panchayati Raj, Government of India to develop the capacities of the elected representatives of PRIs. The third chapter gives idea related to study methodology whereas the fourth chapter talks about steps taken by the government of Jharkhand to develop the capacities elected representatives of PRIs. The fifth chapter is focused on the capacity gaps that are there among the elected representatives of PRIs of Jharkhand. The sixth and final chapter talks about the strategies to develop the capacities of elected representatives of PRIs in Jharkhand in the coming future.

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Chapter – 2

National Capacity Building Framework Capacity building is a continuous process and it refers to an approach to make development interventions more effective. The term ‘capacity’ refers to the ability of an entity - an individual or a collective - to pursue and achieve its overall strategic objectives. Since new capacities are added to the existing capacities, to address the upcoming challenges, and therefore it is continuously required for the entity. In the context of strengthening of local governance in rural India the Constitution provides for the devolution of powers and responsibilities to Panchayats including the 29 matters listed in the Eleventh Schedule1. Capacity building of elected Panchayat representatives and officials is a cornerstone to empower Panchayats and ensure the effective functioning of local government institutions. This issue was discussed, in detail, during the Seventh Round Table of the State Ministers of Panchayati Raj at Jaipur, Rajasthan on December 2004. Ministry of Panchayati Raj (MoPR) prepared a National Capability Building Framework (NCBF) in 2010 that outlines a comprehensive approach with overall objectives to enable elected Panchayat representatives to upgrade their knowledge and skills to better perform their responsibilities at local government, and for inclusive and participatory development. The NCBF (2010) talks about different kinds of capacity building programmes –

Capacity building to build right mind set

Capacity building to equip all panchayat office bearers with basic ‘start-up’ skills

Capacity building on functional literacy It was expected that by using this framework the mindset of all the elected representatives and office bearers of PRIs could be changed in a right direction. The training programmes will promote PRIs members to strengthen the Standing Committees of PRIs at all levels. It was also assumed that training programmes would be developed and organised in a way where it could be enable participants to reflect on and to understand the strengths and weaknesses in implementation of panchayati raj. The emphasis was also to understand the nitty gritty of functioning, such as functional and operational aspects of conducting Gram and Ward Sabhas, decentralised planning, sanctioning of works, signing of bills, maintenance of accounts, reviewing of implementation and preparation and forwarding of utilisation certificates and other executive skills necessary for office bearers to function. The overall purpose of this framework is that participants discuss and critically analyse the present, they gain a sense of optimism and confidence that changes are possible through Panchayats. The framework also talks about functional literacy course, immediately after the elections, for some of the representatives who are semi-literate or illiterate and are not familiar with functioning of PRIs. Keeping this framework of NCBF in mind a CGA framework was developed by PRIA, under this project, to assess the current gaps among the elected representatives of PRIs of Jharkhand. Four major indicators- Administration & Management of Panchayats, Development Planning, Gender Mainstreaming and Leadership- were identified to assess the capacities of the WERs. Assessment was done of the basis of parameters related to knowledge, aptitude and skill (KAS) of the elected representatives. The CGA framework developed by PRIA is given in the following table 2.1 –

1 Added after enactment of 73rd Constitutional Amendment Act in 1993.

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Table – 2.1

Framework for Capacity Gap Analysis under current study

Aspects of Capacity

Areas of Inquiry

Administration and Management

Meeting and Management

Finalisation of agenda for GP’s meeting and its sharing with other ERs

Finalisation of agenda of Gram Sabha meeting and its sharing with villagers

Participation of members, villagers,

Meeting minutes and resolution/ proposals

Follow up plan

Financial and Administrative Management

Availability of written manual/procedures

Framework/tools/software

Budget process – framework/tools, periodicity

Budget monitoring (frequency, participation, etc.)

Reporting – internal/ external (accountability, frequency, actors)

Audit (process, frequency, etc.)

Development

Planning and Decision Making

Annual plan of Gram Panchayat (Gram Panchayat Development Plan

Meetings to discuss flagship programmes (MGNREGS, SBM, NRLM, etc.)

Resource Plan (Human Resource Plan under MGNREGS – Form 6, Financial plan under 14th CFC, SFC, etc.)

Housing scheme, drinking water, etc.

Pension (old age, widow, etc.), Scholarship, Mid-day meal, school kit, bicycle, etc.

Supplementary food to pregnant and lactating mother, infants

Sanitation and Hygiene (Toilets and drainage under ODF +)

Primary education (enrolment, retention, drop outs, etc.)

Primary health (availability of medicines and vaccination)

Infrastructure (Electricity, Road, etc.)

Digitisation (Computer and internet), its use to give certificates (Birth, Death, Income, Caste, etc.) and records (e.g. land)

Gender Mainstreaming

Girl Child Education

Safety and Security of women at Workplace (Panchayat, Anganbadi, school, health centre, field, market, etc.)

Gender budget

Leadership

Communication and Negotiation

Mechanism, mediums and tools

Print, online, website, social media

Differentiated messaging for different stakeholders

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Chapter – 3

Methodology related to Capacity Gap Analysis

To conduct the capacity gap analysis, first of all, all relevant secondary literature such as Jharkhand Panchayati Raj Act, National Capacity Building Framework and various reports of government and others related to PRIs of Jharkhand was reviewed.

Sampling To capture a representative sample of the elected representatives it was suggested to collect data from at least 100 Gram Panchayats of Jharkhand. Keeping that in mind 100 GPs from 10 districts (i.e. Simdega, Chatra, Hazaribagh, Ramgarh, West Singhbhum, Saraikela, Latehar, Gumla, Deoghar and Dumka) of Jharkhand were selected for the study (Annexure-1). The districts were selected such that they could represent all the divisions of the state. The names of the GPs (Annexure-2) were finalised in consultation with UNICEF and other partner organisations of Jharkhand that are working in different districts of the state as they are key stakeholders in fulfilling the objective of making the model panchayat. Following GPs were selected to do the capacity gap analysis –

Table – 3.1

District and Block wise list of Gram Panchayats

S. N. District Block GP

1 Simdega Simdega, Kersai 10

2 Chatra Chatra, Simaria 10

3 Ramgarh Dulmi, Patratu 10

4 Hazaribagh Ichak, Tati Jhariya 10

5 West Singhbhum Sadar Chaibsa, Jhikpani 10

6 Saraikela Chandil, Saraikela 10

7 Latehar Latehar Sadar, Manika 10

8 Gumla Gumla, Palkot 10

9 Deoghar Sarwan, Madhupur 10

10 Dumka Dumka, Jama 10

Total 100

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Field work and Data collection An interview schedule was prepared to collect primary data from the field. Along with that a check list was also developed to document the cases (Annexure-3). All the Mukhiyas were interviewed using interview schedule as a guide. For collection of primary data, PRIA team visited the selected GPs and met the Mukhiya of those respective GPs. Organisations that are working at the local level, in the selected GPs, were also contacted and their supports were taken to collect data and other information (Annexure-4). Beside this, a transect walk was done around the GP and interaction with other stakeholders were organised such as community members, PRI officials, DPROs, BDOs and local NGOs, etc. by PRIA team and representatives of partner organisations so that both, qualitative as well as quantitative data could be collected form field. For secondary data, a training list of SIRD for the year 2014 – 16 was procured from the SIRD, Ranchi.

Data Analysis The information collected from the field was collated and analysed. Training schedule, training methodology and duration of trainings organised by SIRD was also analysed to supplement the understanding of capacity gap amongst WERs. The draft report was shared with UNICEF and SIRD for feedback in the form of Capacity Gap Analysis Report and documented Case study of each Mukhiya. On the basis of feedbacks the current report is finalised.

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Chapter – 4

Measures for Capacity Building of Elected Representatives of PRIs in Jharkhand Elections for the PRIs in Jharkhand were conducted, for the first time, in 2010. After the elections state government organised a round of orientation cum capacity building programme for the newly elected representatives of PRIs. The Capacity Assessment and Capacity Development Strategy (CA-CDS) that was conducted by Ministry of Panchayati Raj (MoPR), Government of India (GoI) (in the year 2012 under Capacity Development for Local Governance programme supported by United Nation’s Development Programme (UNDP) highlighted at that point in time that ‘a significant tribal area, changing equations of social and political powers after the elections, and the emergence of a new leadership in the form of women ERs poses significant challenges to PRI Capacity Building and Training (CB&T) in the state’.

SIRD Jharkhand, which is the nodal training institute for capacity building of elected representatives and other office bearers of PRIs, organised a round of orientation programme for all the newly appointed elected representatives of PRIs in the state. Panchayat Training Institutes (PTIs) and some civil society organisations (CSOs) also participated in these training programmes. During these training programmes capacities of the elected representatives were developed on various aspects related to local development and local governance.

Some of the key aspects those were covered during the first round of orientation and training programmes (2010-2015) could be seen as follows –

Salient features of 73rd CAA and Jharkhand Panchayat Raj Act (2001) Governance structure and Local Government in Jharkhand (PRIs and its tiers) Roles and responsibilities of GS and GP and Standing Committees (in the context of

Gram Panchayat only) Meetings and quorum of GS, GP and Standing Committees including book keeping

and maintenance of register and documents Panchayat Extension to Scheduled Areas (PESA) Act Meeting of GS and GPs in PESA areas

Apart from these, training programmes were also organised to build capacities of the elected representatives of PRIs on various national flagship programmes. Some of the programmes on which trainings were organised are –

Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS), Swachchh Bharat Mission (Gramin) or SBM (G), Sarva Shiksha Abhiyan (SSA), National Rural Livelihood mission (NRLM), National Rural Drinking Water Mission (NRDWP), Pradhan Mantri Awas Yojana (PMAY) E- Governance and PRIASoft Food Security Gram Panchayat Development Plan (GPDP) and Convergence of various schemes

During April 2014 to October 2016 SIRD has been able to organise 399 training programmes, in all. Most of these training programmes were organised either at SIRD (Ranchi) or at the PTCs. These training programmes were of 1 day to 5 days, depending upon the nature of a particular training programme and content of that programme. In these

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programmes nearly 12,475 people were trained. Category wise number of participants is given in the following table.

Table – 4.1

Category wise break up of individuals training received from SIRD/ ETC

RD officials PRI officials Elected Representatives Others Gen SC ST Women Gen SC ST Women Gen SC ST Women Gen SC ST Women

1379 157 564 407 694 71 436 16 568 152 2286 1464 3712 648 1760 2039

Source: SIRD Training document related to 2014-16.

Graph 4.1

Graphical representation of individuals who received training from SIRD/ ETC

Most of the Mukhiyas shared that in the initial one and half years they have not able to attend any structured training programme on administration and management of panchayat. Because of this limitation they were not able to give the results those were expected from them. After going through the records of the training institutions and having conversation with the elected representatives it came out that most of the training programmes were organised with various ambiguities (e.g. purpose, target group, contents, etc.). Surprisingly the SIRD has very limited training materials with it as most of the trainings were conducted by the consultants who used their training materials (presentations) and the copy of those materials are not being maintained by the SIRD. Data received from SIRD also shows that in some of the training programmes, those were of the duration of 2 days’, only 5 participants attended that programme. Similarly, more than 50 participants attended some training programmes those were of three days’ duration. In some

1379 694 568

3712 157

71 152

648

564

436

2286

1760

407

16

1464

2039

0

1000

2000

3000

4000

5000

6000

7000

8000

9000

RD officials PRI Officials ElectedRepresentatives

Other

Women

ST

SC

Gen

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of the programmes (of one day) more than 140 participants were there. All these data gives a point to think on the methodologies those were used during the training programmes. It has also been realised that some of the programmes were organised in a very generic mode, by inviting participants without considering their past experiences and current roles and responsibilities in panchayats (e.g. training on MGNREGS). One of the Mukhiyas highlighted that Panchayat Secretaries should be sensitised and their capacities should be developed in a manner where they could support Mukhiyas and perform their duties in consultation with elected representatives of GP.

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Chapter – 5

Current status and Capacity gaps among elected representatives of

the PRIs

On the basis of the discussions held with different stakeholders the capacity gap of the elected representatives have been categorised in to three broad sections – Knowledge, Aptitude, Skill (KAS).

5.1 Administration and Management In terms of administration and management, which is one of the important roles of the elected representatives, especially of Mukhiyas (as a head of the institution) it has been realised that most of them do not have clear knowledge about the timings (frequency) of GP and GS meetings. During one to one discussion with Mukhiyas it came out that most of the Mukhiyas are not able to develop the agenda related to GS or GP meetings. They are heavily dependent on the block level officials to organise any meeting of GS or GP. In this situation it was not a surprise to know that meetings of GPs or GSs are not being organised to discuss the issues related to local development. Rather these meetings are being organised to discuss the agenda set by the state or district (mostly to achieve some targets). Since most of the times agenda of the meetings are not related to local development, very limited number of villagers participates in these meetings. It was also shared by the Mukhiyas that there is no pressure during the meetings to either share the progresses of last meetings. People also do not ask asked about follow up plans related to any meeting.

Graph 5.1 Status of information among Women Mukhiya on Accounts, FAMS and Agenda of Meetings

Source: Field data With regard to maintenance of documents/records, it was found that the panchayat secretaries mostly had the control over it and were not always available with the Mukhiyas. It was also observed that paper works are mostly done by the secretaries. Some Mukhiyas have shared the need of acquiring such skills so that their dependency on secretaries for paper related work is reduced.

0

10

20

30

40

50

60

70

80

90

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Accounts FAMS Agenda

4 0

4

96 100

96

Yes

No

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Block and district officials shared that all the manual and procedures related to Financial and Accounting Management System (FAMS) has been shared with the GPs and they are in place. However, during the filed visits it has been realised that most of the GPs does not have manuals related to FAMS. In general, finance related matters are being controlled by the Panchayat Secretaries under the guidance of block officials.

5.2 Development, Planning and Decision Making According to the Jharkhand Panchayati Raj Act, seven Standing Committees need to be set up by a Gram Panchayat in order to facilitate the local plans and thereby local development. These Standing Committees are –

General Administration Committee Development Committee Women, Children, and Social Welfare Committee Health, Education, and Environment Committee Village Defence Committee Government Estate Committee Infrastructure Committee

It has been realised that in most of the GPs these Standing Committees have not been formed. During the discussions with Mukhiyas it came out that they have very limited information about these Standing Committees and their roles. Absence of guidelines from the state makes this situation worst. In terms of planning and local development it was shared by most of the Mukhiyas that they have heard about 14th Central Finance Commission (CFC) but not sure about its grant. Mukhiyas are not aware that how the money that is coming from CFC is calculated which otherwise can support them to plan their activities better.

Graph 5.2 Knowledge about Sources of Funds for GPDP

0

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20

30

40

50

60

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Sources of Funds 14 CFC SFC

8

96

6

88

4

93

4 0 1

Yes

No

Not Sure

We cannot do much if the problem stems from the higher level (the state) but will continue

to do what is within our ambit of authority. Given the load of responsibilities of a Sachiv, the

Mukhiya ends up having to look after a lot more too, as it is impractical to assume that a

single Sachiv to look into all the affairs of four entire Panchayats—as is currently the

situation.

Parvati Devi, (Dulmi)

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Most of the Mukhiyas also shared that they had been part of the Gram Panchayat Development Plan (GPDP) in their GPs but they were not very clear about the participatory planning process and convergence of resources to undertake any plan that is very important for local development.

During the discussions some Mukhiyas shared that they know about centrally sponsored schemes (CSS or national flagship programmes like MGNREGS, SBM, NRLM, PMAY, etc.) that are going on in their GPs or nearby areas. However it was also clearly realised that they have very limited information about the eligibility, processes and benefits, related to various CSS2. During the visits it was realised that most of the Mukhiyas are engaged, heavily, in SBM (G) but they do not have any village sanitation plan with their GPs. Whereas in the guidelines of SBM (G) it is very clearly mentioned that plans would be developed in order to implement the SBM (G) and to sustain the achieved ODF status. Under the Panchayat Empowerment and Accountability Incentive Schemes (PEAIS) and later in Rajiv Gandhi Panchayat Sashaktikaran Abhiyan (RGPSA) emphasis was made to provide computers to the PRIs and to make them more efficient, transparent and accountable. States were also promoted to connect their panchayats with broad bands so that real time data could be generated and plans could be made more practical. However, most of the GPs are far away from the digital world. However, during the field visits it was realised that computers in most of the GPs are either not there or they were kept ideal (non-functional). The basic data of the GP, Annual Plan and Budget documents were not available, at a common place, in most of the visited GPs.

2 Separate cases have been developed for separate Gram Panchayat and their Mukhiyas on the basis of discussions held with during the field visits.

Implementation of Either MGNREGS or SBM (G)

During the field work and meeting with elected representatives of PRIs, across all panchayats, it was realised that focus of the Mukhiyas is only on implementation of schemes like MGNREGS or SBM (G). Income generation and tangible result could be the reasons for which PRIs are more inclined towards these schemes. It has been observed that the block and GP level officials are also serious about these two schemes only. But that seriousness does not get reflected in planning of resources that are available under 14th Central Finance Commission (GPDP), labour budget (under MGNREGS) and village sanitation plan (under SBM–G).

Very surprisingly, the training on GPDP is received by some Mukhiyas but they have very limited understanding on 14th CFC, which is very crucial to draft GPDP. Most of the Mukhiyas do not have skill to do or conduct participatory planning at the GP level.

Some of the Mukhiyas also talked about Anganbadi and Integrated Child Development Scheme (ICDS). But, in terms of ICDS, the role of Mukhiyas again seems to be very limited as most of the female Mukhiyas are visiting Anganbadi and monitoring their services (supplementary food, immunisation etc.) and not about planning, timeliness and cleanliness.

One of the Mukhiyas informed that he has been able to promote nearly 100 households to construct toilets in her Panchayat from the resources that are available under Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) and Jalsahiya fund.

Mukhiya (West Tainsar)

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As far as the current status of digitisation is concerned, Mukhiya of Dulmi (GP) shared that she is trying to make her panchayat cashless. For that she also organised a camp in her village where villagers can open their bank accounts. However, most of the Mukhiya shared that this is the work of Panchayat Secretary and Block officials and they have nothing to do with digitisation.

5.3 Gender Mainstreaming On the surface, there seems to be much less gender discrimination in government departments in Jharkhand as compared to other states as women are allowed to move around and have also participated in training programmes and planning exercises. However, statistics show that this is not the real picture. According to National Health and family Survey–4 (2015-16)3 the sex ratio in the state is 1022 women for every 1,000 men which though higher than the national average of 991 women per 1,000 men. The state has also made amendments in the Act and 50 percent seats are now reserved for the women at every tier of local governance. However state has to cover a long way to mainstream gender in its overall development. NFHS-4 throws further light on the status of women in the state. It shows that 38 percent of the women are married by the time they reach 18 years of age whereas 12 percent of the girls in the 15–19 year age group are mothers; in rural areas this figure is 13.9 percent. Some of these data show that gender mainstreaming has been a weaker component in most of the GPs of the state. Though most of the stakeholders those were covered to do this CGA happened to be women it has been realised that they have very limited understanding about the gender issues (and therefore planning, budgeting and monitoring with gender lenses). The literacy rate among the women (girls) is low in all the covered GPs for this CGA. It is in the line of the data revealed in the NFHS-4 which shows that the literacy rate among women of Jharkhand is only 59 percent and the percentage of women who have received 10 or more years of schooling is only 28.7. Safety and security of women in the rural areas of Jharkhand has been a concern. During the discussion with Mukhiya of West Tainsar GP it was realised that influential people, very often, used to threatened girls and women. Elected representatives of PRIs of Jharkhand are not aware about the Act that has been passed to prevent sexual harassment at workplace (SHW). Even the block and district officials are not aware about the Internal Complaint Committee (ICC) and Local Complaint Committee (LCC) that have to be made at the local levels under the SHW Act (2013).

5.4 Women Leadership Leadership of the elected representatives, especially of women Mukhiya’s, has not been established. There are several reasons behind it. But the most important among these reasons is the communication. It has been realised that most of the elected representatives communicate in a very opaque manner and in the long run villager start mistrusting them. Heavy dependency on the government and higher authorities also weaken their positions. During the discussions with elected representatives it came out that most of the meetings of GP and GS are being organised on the instructions of the block and district officials and not on the needs of the panchayat or of the villagers. During the field visit it was also found that quite few female Mukhiyas were dependent on their husband while performing their roles. There were instances where the husbands of female Mukhiyas speak on their behalf.

3 Ministry of Health and Family Welfare, Government of India.

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Some block and district level officials shared that most of the training programmes were very bookish and theoretical in nature. Because of that they were very hard to be understood and to be digested by the elected representatives, especially for illiterate tribes and women elected representatives. These officials also shared that since most of the elected representatives are not highly qualified and therefore regular capacity building interventions are required for them. These officials also highlighted the significance of follow ups of various training programmes conducted to develop the capacities of the elected representatives of PRIs.

Table – 5.1 Capacity Gap Analysis

Head Knowledge Aptitude Skill

Administration and Management

Organisation of GP/GS Meeting Limited Poor Limited

Finalisation of agenda for GP/ GS meeting and its sharing

Limited Poor Very Poor

Meeting minutes, resolution, proposals for local development

Limited Poor Limited

Financial and Administrative Manuals (Audit) Poor Very Poor NA

Tools and software (PRIASoft, etc.) Poor Very Poor NA

Planning, Development and Decision Making

Situational Analysis Limited Very Poor Very Poor

National Flagship Programmes Limited Poor Very poor

Participatory Planning, Budgeting and Monitoring Poor Very Poor Very Poor

Gender Mainstreaming

Gender Budget Very Poor Very Poor Very Poor

Safety and security of women Very Poor Very poor Very Poor

Leadership

Negotiation (with in GP and at the block office) Limited Very Poor Very Poor

Advocacy and networking Limited Poor Limited

Source: Filed data and cases.

Development and Conflict: Pushing one step forward two steps backward

Poor planning at the GP level has resulted into poor and isolated implementation of schemes. In some cases it has created conflicts and mistrusts among the panchayat members. For example, in West Tainsar GP there was a conflict between the ward members and the Mukhiya over construction of toilets and after that Mukhiya dis-allowed the ward member to implement and monitor the work and the Mukhiya took away the responsibilities from all the ward members. In a larger context all this weakens the decentralisation of governance and strengthening of Standing Committee at the local level.

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In light of current scenario of the state, ground realities, and challenges that are highlighted by the stakeholders the capacity gaps among the PRI members could be put in three categories (viz. Knowledge, Information and Skill) as shown in table–5.1.

A representative of Vedic Society4 observed that SIRD and PTCs have been organising various training programmes in consultation with different departments of the government of Jharkhand (GoJ) but all those are organised like one-time event without bothering about their impact and follow up. Budget of most of the departments, which is earmarked for training and capacity building, has been remained unspent and that is the best indicator to conclude that follow ups are not being organised, properly, by the departments (or by the SIRD and PTCs for that matter).

4 It is one of the civil society organisations working closely with PRIs in Jharkhand and involved in

building of their capacities.

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Chapter – 6

Strategies to develop Capacities of Elected Representatives

On the basis of above capacity gap analysis following capacity development needs are identified:

Understanding good governance and democratic decentralisation

Planning and budgeting of projects

Financial management and expenditure tracking

Social accountability and responsiveness

Roles of various standing committees

Conflict management and problem solving

Monitoring and evaluation of project implementation

Social inclusion and gender mainstreaming

Participation of citizens and other stakeholders

The measurement of capacity and specifically the capture of change in capacity are critical to understanding the success of the capacity development process. The importance of being able to do so can be seen in the ability to (i) understand what constitutes a starting point; (ii) uncover where the hurdles to developing capacity are and design programmatic responses that will actually address those hurdles to drive improvement; and (iii) most important, measure the change in an organisation’s capacity to fulfil its mandate and provide insight into where to make investments for continuing improvement.

Tentative Training design to build the capacities of WERs On the basis of capacity gap analysis and current situation of panchayats a pilot training programme could be organised for the Mukhiyas of GPs of Jharkhand. This training programme would be of three days. A tentative training design for that training programme could be seen as follows –

Time Topic Objective Learning Method

Day 1

WHO WE ARE?

Session 1 9.30-11.30

Welcome and Introduction

Welcoming participants, setting learning objectives, creating an enabling learning environment

Lecture & Ice breakers

Session 2 11.30-1.00

Basics of decentralisation and role of local governance

Developing an appreciation about democratic decentralisation and role of local governance

Story Telling and Discussion

Lunch: 1.00-01.30

WHAT WE DO?

Session 3 01.30-03.00

Local Development and National Flagship Programmes

Developing an understanding on local development and schemes available for the local development

Story Telling, Exercise and Discussion

Session 4 03.30-05.00

Local Development and National Flagship Programmes (Contd.)

Developing an understanding on local development and schemes available for the local development

Participatory lecture, Group Work and Discussion

Day 2

WHY WE DO?

Session 1 Role of PRIs in Developing an understanding on how Case Study, Group

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09.30-10.30 participatory planning (Situational Analysis)

to facilitate participatory planning Work and Discussion

Session 2 11.00-1.00

Role of PRIs in participatory Planning (prioritisation)

Developing an understanding on conflict mitigation and decision making

Group Work and Discussion

Lunch: 1.00-01.30

Session 3 01.30-03.00

Participatory Budgeting (Labour Budget)

Developing understanding on budgeting

Participatory lecture, Exercise and Discussion

Session 4 03.30-05.00

Gender Budget Developing understanding on gender based budgeting

Group Work and Discussion

Day 3

HOW WE DO?

Session 1 09.00-10.30

Role of PRIs in promoting gender mainstreaming

Developing an understanding on gender justice and gender mainstreaming in local development

Exercise and Discussion

Session 2 11.00-12.30

Role of PRIs in participatory monitoring (use of digitisation)

Developing an understanding on how to facilitate participatory monitoring


Lunch: 12.30-01.00

Session 3 01.00-02.30

Role of PRIs in promoting social accountability and community engagement

Developing an understanding about social accountability and civic engagement and roles of PRI members


Session 4 03.00-04.30

Follow up and plan of actions

Developing an understanding on follow up plans


Training Methodology

Training has always been viewed as a learning process – learning of new skills, concepts and behaviour. Training is an educational activity, however, it is usually viewed as distinct from formal education, like schooling. In general, training implies non-formal education of adults, but in a purposive, directed sense. Training also connotes a structured event, with boundaries of time, place and persons. The traditional meaning of training has been the transfer of expertise from trainer to learner, where the trainer defines what a particular set of learning the learners need to learn. This approach to training believes that trainers know everything, and the learner is looked upon as an empty container to be filled up by the trainer. Learners play a passive role and are bound to learn what the trainer teaches. This training approach does not allow learners to participate actively, and gives total control over the process to the trainer. An alternative view of training has evolved over the second half of the 20th century in which it is not limited to ‘transfer of expertise’ or equated with ‘imparting knowledge’. Training is seen as a process of growth and discovery aimed not just at ‘knowing more’ but at ‘behaving differently’. The focus is on building up one’s critical consciousness, examining one’s values, attitudes and orientations; on ‘unfreezing’ set notions and set patterns of behaviour, and questioning, re-thinking, and re-learning. It is a non-formal, on-going process, in which both trainers and trainees learn from each other. This approach to training is intended to build the learners’ confidence in their capacity to observe, criticise, analyse, and figure things out for themselves. They learn to cooperate, rather than compete, for the trainer’s approval. Learners are encouraged to consider the whole social context and past history when they try to understand realities of their situation. Their learning revolves around their own needs, and progresses through opportunities for reflection and analysis. This approach can be called training for change. Emphasis is more on learning than on training.

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Participatory training is an educational strategy based on the alternative approach described above. Learners are active participants in the educational process, and their needs and questions, their reflection and analysis, and their strategies for change carry the process forward. It is important to realise that participatory training is not just a set of techniques. It functions in a certain historical, socio-political context. The ideological bias of participatory training needs to be understood clearly, otherwise the methodology can get reduced to a set of tricks and gimmicks. We need to be aware of the constant danger of co-option, where similar words and activities are used but the hidden intention is basically to make learners conform and accept control. Participatory training aims at creating an experience of personal and collective change, thus strengthening people’s understanding that change is possible, within one’s self and at the level of the group. Participatory training encourages people to question what they have always accepted, to critically examine their own experiences, to derive insights through analysis. This process of releasing people’s critical faculties enables them to discover and exert their latent powers for autonomous constructive action. Participatory training recognises and validates authentic and accurate people’s knowledge which is based on the experience of reality, and synthesises it with fresh insights and restructure concepts based on the analysis of experience. The new body of knowledge thus created leads to a powerful sense of ownership and a willingness to transform the reality. Learners thus become prepared for action.

Participatory Training and Adult Learning

Participatory training deals with adults, and as such, has its theoretical base in the principles of adult learning. According to these principles, adult learning takes place in different ways, and under different conditions, from those of children's formal school education. Those who try to make adults learn in an environment similar to formal school and by the same methods sometimes end up believing it is impossible to bring about any change in adults. Another common misconception is that most learning takes place through childhood and stops after adolescence, and that it is impossible to alter this learning afterwards. Contrary to such beliefs, people learn, grow and change even in adult life. Effective adult learning takes place when the essential characteristics of their learning mode are operationalised as principles guiding the process. There are five key principles: A. Adults come to the learning situation with a well-defined self-concept, and their learning

can be facilitated by helping them to build up their self-concept B. Adult learning is an emotional experience, both in the sense that certain emotions are

associated with learning, and that learning occurs through feeling as much as thinking or acting

C. Adults choose whether to learn or not D. Adults learn what they think is relevant to their lives and their problem E. Adults learn based on experience. The methods used in participatory training include not merely lectures and group discussions, but also role play, simulations, structured exercises and instruments, case studies in a variety of forms, and so on. Several other experiences are also used in participatory training, such as field visits, practice sessions, games, self-study, video review and others which enhance the impact of learning. The proposed training would be done in a story telling mode where elected representatives would be promoted to share their experiences on topics like

20

Why they contested elections

What they have done so far

What are the challenges they have been realising in their day to day functioning This method will also support the elected representatives to develop their leadership role and style.

Suggestive model In the light of the current situation PRIA would like to suggest creation of Panchayat Resource centres (PRCs) at the GP levels. These PRCs could be developed on the basis of the recommendations of the Round Tables (7th Round Table conference at Jaipur) organised by the Ministry of Panchayati Raj, GoI during 2004. The primary purpose of promotion of PRCs in Jharkhand PRC would be to facilitate capacity building of the elected representatives, promotion of planning at local level and provide linkages with different stakeholders to panchayats. The model is diagrammatically shown below:

How this PRC will work? This model has identified two sets of people (ready to volunteer) as resource persons who could train the elected representatives. They are i) Former elected representative of Gram Panchayats, Panchayat Samitis and Zila Parishads with their prior experience and ii) Candidates who polled second in the election for posts like Mukhiya, Pradhan or Adhyaksha (as they have passion and aspirations to serve the panchayat). The other two advantage of identifying such people is the sustainability and cost reduction as bringing in external resource persons who would be for shorter period, out of context and costly too. These identified people would be trained as trainers to train the current elected representatives. They are expected to have regular meeting with the representatives and support them in planning processes adopting participatory approaches. It is expected that these PRCs will promote comprehensive planning in GP where they are situated. These

Panchayat Resource Centre

Deveop

Human Resource

Regular CB of PRIs on National Flagship

Programmes

Promotion of Planning and Budgeting (Own

Sources of Resources)

Develop

Linkages

Support to 2-3 nearby GPs

Documentation of Learning

(Success/Failure

21

resource persons, at a later stage, could be engaged to generate resources for gram panchayats as well. Though these PRCs would be promoting a comprehensive plan but it is also possible that these PRCs would be exceling in a particular area (e.g. Education, Health, livelihood and agriculture, conflict management, gender mainstreaming, etc., based on the local context). On the basis their area of excellence these PRCs could promoted as “Extension Centre’ model of Krishi Vigyan Kendra. Lastly, a linkage could be developed by linking these PRCs with the representatives of various other institutions, individuals and other GPs. This is to strengthen their support system as well as cross learning.

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Reference:

Ministry of Panchayati Raj, Government of India (2004) ‘A Compendium of resolutions of the Seven Round Tables of Minister In-Charges of Panchayati Raj’ Ministry of Panchayati Raj, Government of India (2010) ‘National Capability Building Framework for Panchayati Raj Elected Representatives and Functionaries’. Ministry of Panchayati Raj, Government of India (2012) ‘Capacity Assessment and Capacity Development Strategy (CA-CDS) Report’ for Strengthening Panchayati Raj Institutions in Jharkhand “A Manual for Participatory Training Methodology in Development”, Sixth Edition 2011, published by Society for Participatory Research in Asia (PRIA), India List of Training Programmes (2014-2016), SIRD Ranchi

23

Annexure - 1 Districts covered under the study

Districts Covered for CGA

1. Deoghar 2. Dumka 3. Latehar 4. Gumla 5. Ramgarh 6. Hazaribagh 7. Simdega 8. Chatra 9. West Singhbhum 10. Saraikela

24

Annexure – 2

Name of Districts, Blocks and GPs covered during the Field Work

District Block Gram Panchayat(s)

1 2 3 4 5

Simdega Simdega Arani Barabarpani Bangaru Garja Kulukera

Kersai Basen Kersai Konjoba Tenser Purvi Sewai

Chatra Chatra Dadha Jagi Tikar Lamta Gandhariya

Sadar/ Simaria

Devria Godhai Brahmana Sikid Lem

Ramgarh Dulmi Jamera Soso Ichatu Dulmi Honhe

Patratu Patratu Central Sauda

CCL Sauda A K Coalarie Sauda D

Hazaribagh Ichak Champanagar Nawadih

Dumran Hadari Bariyath Karimati

Tati Jhariya Khaira Jhapo Dharampur Tatijhariya Bedam

West Singhbhum

Sadar Chaibsa

Karlajodi Narsanda Diliyamachar Baduri Lupunguta

Jhikpani Kelend Tutugutu Choya Jodapokhar Tekrahatu

Saraikela Chandil Jhabri Matkamdih Kunti Chouka Rasuniya

Saraikela Mundatand Mohitpur Kamalpur Itakudur Govindpur

Latehar Latehar Sadar

Bendi Ichak Nawagaon Manger Pandepura

Manika Namudag Gurju Manika Raki Kala Hatpochra

Gumla Gumla Katri Kotam Kharka Dumardih Navadih

Palkot Coleng Umdra Bagesera Palkot North Dahupani

Deoghar Sarwan, Bhandaro Dahuwa Dakay Jiyakhara Kushmaha

Madhupur/ Marmo gonad/ Sonarai Khari

Bhora Jamua Khijuriya Mahjori Pathodi Jor Udaypura

Dumka Dumka Haripur Gadikowraiya Malbhandaro Rajbandh Rampur

Jama Lagla Bhatniya Siktiya Khatangi Mohlabna

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Annexure – 3

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26



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27



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28

gk¡ ugha irk ugha

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Check List to collect data and to develop cases

29

Outline for case study (For Annexure)

1. Introduction to community in which the elected representative works: A short paragraph

describing the location of their work--rather than (population) statistics, emphasise the social-cultural milieu of the location.

2. Introduction to the elected representative: describe her—not just her name, age or which GP she represents, but rather the characteristics which make her an effective leader.

3. Her achievements: She may have achieved a lot during her tenure. Mention these achievements, but write about the achievement she is most proud of—is it getting Aadhar cards for all her constitutents; is it ensuring the ANM comes for work regularly; is it ensuring gram sabha is held on issues that affect the entire community (and how she ensures all voices are heard); is it being able to deal with men and be more effective in meetings?

4. What enabled her to achieve this? Which kinds of training(s) did she receive on being elected? Who provided these trainings? Which was the most effective training, and how did it help her to implement the achievement she is most proud of (item 3 above)?

5. Challenges: She must have faced, and continues to face, challenges as a woman elected representative. What are her challenges as a woman, and of being an elected representative at the local governance level (where duties are large, but funds are restricted)?

6. Future trainings: What institutional and training support does she want to help her meet these challenges?

Annexure – 3

Other stakeholders who were interviewed along with Mukhiyas

30

S. N.

Name Designation District

1 Sanjay Kumar Sakh Foundation Ramgarh

2 Sujit Kujur Project Coordinator, VEDIC Society Latehar

3 Shankar Ekka BDO, Jhikpani West Singhbhum

4 Sandeep Bakshi Director, NERP West Singhbhum

5 Sweta Kujur JPWRC, SIRD Ranchi

31

Annexure – 4

Profile of Mukhiyas whose cases are documented

S. N.

Name of Mukhiya

Past Experience Educational Qualification

Training Received

1. Khusboo Kumari Home maker Currently pursuing Graduation

Thrice, - role of Mukhiya, on schemes and documentation –related to schemes

2. Kaushlya Devi Mukhiya in the last term as well (2010-15)

Class VIII More than four trainings attended. In first tenure – training on effective work distribution under MGNREGS, transparency in work, visibility of work done, monitoring, corruption free, and prioritisation of work, maintaining cleanliness, and pro– active disclosure of various information. In second tenure - training on the roles of and expectation from Mukhiyas

3. Kalo Devi Ward member Class V Once on Roles and Responsibilities of PRIs

4. Lakho Devi Mukhiya in the last term as well (2010-15)

Class VII First tenure – training on Mukhiya’s responsibilities, schemes like MGNREGA, 13th Finance Commission, Pension, and conflict management

5. Parbati Devi Member of Panchayat Samiti Matriculation Nil

6. Mamta Devi School teacher at private school Intermediate Nil

7. Silbiya Kerketta SHG Member Class VII Twice, one on toilet construction and the other on government schemes

8. Ashren Kerketta Mukhiya in the last term as well (2010-15)

Intermediate Thrice, including on Roles and Responsibilities of Panchayat Representatives (maintenance of records and documents, government schemes, etc.) from SIRD

9. Tulsi Mundiya Cultivator B.A. II Year Training on 14th Financial Commission and MNREGA

10. Dasmati Devam She and her husband use to help people during the time of need

Class XII Trainings on MNREGA, 14th Finance Commission and PRI from SIRD

capacity gap analysis - pria.org

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