URBAN COMMUNITY DEVELOPMENT PROGRAMME ITS ORIGIN AND GROWTH

Item

Title: URBAN COMMUNITY DEVELOPMENT PROGRAMME ITS ORIGIN AND GROWTH
extracted text: I

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RF_DEV_2_SUDHA
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Session 1.2
FOT iLOW-U P

MATER IAL

AJitter from a Low Birth Weight Baby

I4y dear

and all other

Project Officer, Community Organisers

hear friends.
weight /baby (LBW), just born an hour ago.
low
birth
I am a
old. My
mum who is only 17 years
second
born
of
my
X am the
who were
born of poor parents.
herself
a
LBW
baby.
mum was
extremely disappointed because she was

not a boy.

and partly
since she was partly -neglected

could not have enough

AS

a result.

because the parents

she suffered from

food to feed her

diarrhoea. measles. scabies.
intestinal
worms.
kwashiarkor.
All this
other preventable diseases.

malaria and many

contributed to her

stunted height, which today is 4’3n.

the death at birth of the first
My grandmother, after
half years ago (he was a
one
and
a
born child of my mother,
i

son by the way), had instructed my

mother to eat very

precious
that she
little food during the,time I was in the womb so

would not have

i

problems to give birth to me.

I was in the womb, my

mother suffered from

from a series of urinary

tract infections•

During the time

malaria twice and
My mother had

- - valerian Kimati, Programme Officer,
★

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Adapted from
a paper
by ^aper^ tirculated^ o? the
- Delhi
^his
UNICEF, New Delhi ^inis p.
training workshop for the District
Drstrro
UBS Programme, Hyderabad,
to the

addressed this letter

**

The author had
UNICEF Programme Orricer.

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to toil hard every day,. even just before I was born,
in order
earn
a little money for daily food for
herself and my dad.

My being born, weighing 1.8 kg.

at 39 weeks of pregnancy. was

therefore a foregone conclusion.
My mother never had the opportunity to receive-antenatal
care.

There was no trained ’dai1 in her community.
She easil
pushed me out unassisted when she was
squatting in a toileu.
Xt took time for her sister-in-law
to come and help while I waj
blue, due to mucus obstructing my airway.
My aunt, who has
had five children of her own
quickly sucked rny nose and
rnouth with her own mouth and
gave me a few slaps on my back,
and it was then X was able to utter
a few weak cries. My

aunt cut the cord with her long nails and applied clay
to the

bleeding point on the core.

I could have suffocated to death
but fortunately, though exhausted
and rather weak. I am still
alive.

The way things are, my future is bleak,

I am liable to

have neonatal tetanus because my mum had no
teLanus toxoid
vaccine nor did she have any delivery kit to
ensure a clean
cut and dressed umbilicus. The way things are, I may faint or
go unconscious any time, because of having low blood sugar in

my blood (as it happens

to most babies who are small for dates

like mine), leading to my brain being damaged.

several infections

I may suffer fr

in my firs^ week of life, in fact leading

to my death, because of my low immunity status.

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Howeverz today in India, there are some seven million
LBW babies being born annually i.e. 20/000 a day:
hour or 13 a minute.

800 an

In other words. out of 38 children born

in India every minute, 13 of them are low birth weight and' a

majority being small for dates like mine and facing the same
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fate like me.

This is to say the minute I was born with 37 others located
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in different parts of India and 13 of us being low birth weight.

Imagine the fact that 13 of us born every minute in India are
at risk to die three times more than those born of normal
birth weight 1

We are a condemned lot.

probably not be

able to reach a normal height for two reasons:

Like my mhm, I will

first by the mere fact that I was LBW and secondly, like my

mum, 1 will not get the a mention that a

on would get and I

will suffer from various infections and malnutrition and
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I

probably be married early before 18 years and

continue the

cycle of producing more LBW babies in India.

I pray and beg all of you. who recognise us as human
beings, with equal human rights:

you who we hope to add to our

weak cries to be heard, you who the international community
has entrusted with duties and functions to advocate for

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children. to do something drastic to prevent further babies
being born of LBW like me.

Enable pregnant women to have

access to antenatal clinics and treatment for infections.

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including malaria

prophylaxis in endemic areas (like Orissa
and Madhya Pradesh). If my mum had attended
an antenatal
clinic she would not have suffered twice
from malaria as she
would have had access to malaria
prophylaxis. She also
would have had tetanus toxoid vaccine and she
could have been
given a delivery kit to keep at home.
Neither she nor I woulc
have been scared as we both are now,
of possibly suffering anc
dying of tetanus in a few days 1 time.
Let all women and their husbands
be aware that it is
necessary for them to

eat for two1 when they are pregnan

Change the attitude and behaviour of
my mum (if z survive
from neonatal tetanus of if she survives from
tetanus or
pubereal sepsis) to like and love me and care for
me, as
she would care for a son.
I am born in a relatively

prosperous state of Haryana where dowry is really a

'monkey business' and newborn girls like
unwanted.

In fact.

me are almost

I am surprised I am still alive n^w, c

hour after birth, I do hate and fear what may happen to
me..

Please use all channels of communication to impress

upon parents to love and care for daughters as they care f
sons.

Impress on my mum that if she wants a healthy grand

daughter, she should

care for me and feed me well.

Make available trained ’dais' to teach our mothers what

to do during pregnancy and to refer at-risk mothers for

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medical attention, during pregnancy.

If a trained

dai1 was available^ I would not have to face such
a dark future now with the possibility of brain damage

and of dying from infection.

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Educate all parants about child spacing activities.
my parents had planned well.

If

I would not have been born

only one and a half years after the birth of my dead

brother and probably I would have weight about 2.5 kg.

What you can do, is to set up low cost, cost effective
measures that are accessible and affordable by the community
in the name of primary health care to which India subscribes

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and in the name of the magnanimous basic services strategy
adopted by the United Nations Assembly, thus ensuring fewer

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and fewer

children being born with low birth weight, resulting

in fewer children dying and being disabled.
The following are some of the activities I would draw up

for programming . to prevent low birth weight. if I could ever
survive to become one day a Project Officer or a Community

Organiser like you :

Help our parents to get access to food or means of food
production.
have

If this be impossible. then let our mothers

access to supplementary feeding programmes during

pregnancy and lactation.

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Make provision for'mothers not to toil so hard during

pregnancy, let our fathers be educated on this •

some legislation could help the situation,

Perhaps

Advocating

only for maternity leave will not cover the great

majority of pregnant or lacating women, like my mum.

who work in the informal sdetor.
Enable more girls to have access to education and i

□me

generation activities so that they do not many so early.

as my mum did.
Give access to mothers to iron and folate pills and eatin

appropriate diet to prevent anaemia during pregnancy.

Remember to press upon politicians and the government
bureaucrats that low

’economic leak’.

birth weight causes enormous

Mobilisation of optimum resources in

the country to prevent low birth weight is an important
human resources development investment.

Please pray and work for my survival, growth, protection

and development so that I also one day become a Project Officer

or a Community Organiser like you and help to save other
children as you have done.

Thank you very much.

sleepy now. we will continue our talk later.

I feel

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Session 2.1

EZkNDOUT

Development/ What Do We Mean By it ?

*
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Daring the 25 years that we have been speaking about

through four different
development/ the concept has gone

Simplifying matters
phases/ and a fifth phase has now begun.
and the
very much/ the four phases can be distinguished.
accent on the role of voluntary agencies can ,be seen

to have

shifted.
Development —■ Growth in Income

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on the-economic
Initially/ there was heavy emphasis
on the need for raising the per capita

aspect of development/

income, especially by the-injection

of foreign investment/

technology and know-how in backward countries.

having an

Countries

annual per capita income of US $500 or more were

classi—
considered ‘developed’/ those not so privileged were
!

fied as ’underdeveloped1 •

its simplicity.

measured by means

The advantaae of this approach was

it could be
Development was un i-d imens ionalt
of statistics. It was the heyday of

economists, econometricians

and statisticians.

They had

the answers.

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--- , in Development, Michael Van
1977, pp. 4-10.

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The reference point was the developed countries of the

West.

They decided what development and underdevel

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meant/ and did so, as can be expected/
in their own i
The strategy for development was transfer of funds am
technical know-how from developed to developing countries

through aid programmes.

Aid/ therefore/ came from outside the

needy group.
Voluntary agencies did not have a very important role to

play during this stage.

They were largely ignored.

Only

during times of crisis or calamity or natural, disaster was

aid pumped in for providing relief to the most vulnerable
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sections of society.

Development — Social Progress

The economists started finding out that they did not have
all the answers/ and that development was far more complex

than an increase in per capita income.

A large variety of

variables measuring health/ education/ sanitary conditions/

calorie intake/ protein consumption/ etc./ were/ therefore/
introduced into the equation.

This was more or less the idea

of development that prevailed during the First Development
Decade declared by the UN.

The developed countries remained the reference point or
yardstick.

A more important role began to be given to voluntary

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agencies.

During this stage of evolution of the idea of

development—and many of us are still in this stage—a great
effort was made to build up institutions to provide a range of

social services for the rural poor*

Many of the dispensaries/

schools/ and other institutions built by either government

or voluntary organisations owe their origin to this phase.

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And

thank God for this, because otherwise/ large tracts would

have remained deprived of the most essential social infrastrue*

tural facilities.

The institutional approach meant that/ in a way. the
institution becomes the point of reference.

The individual in

need of a service has to come to the dispensary/ the block.
the school/ as a client or a patient.

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It also entails the

be measured by their
danger that institutions will too often
quality of personnel working
size and style rather than by the
they provide to the'people. There iS/
in them. or the services
further/

becoming ends in themselves.
the danger of institutions

►

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that those
This approach also creates the possibility

institution can profit very
living at a certain distance from an
thereby becomes patchy and
little from it. Development
of development/ the So-called
begins to generate ’centres ’
villages, ’pilot’ projects,
•demons tration1 farms/ 1 model1
and large tracts of untouched terrain
etc./ on the one hand/
growing disparity between the twor
on the other. and hence a
or local level.
even at the regional

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Devel opment—In tegr a ti on

In the two approaches described. development was seen
primarily as something coming from outside. whether in the fox
of finance. capital or social benefits.

By the mid-60s - the

failures of the First Development Decade were making it

increasingly clear that unless the process started within the

poor country itself, it was unlikely to start at all.

The

expression ’Third World’ entered into the development jargon,

and third world countries began to take a serious look at thei

internal structures. at the prodding of eminent scholars such
i

as Gunnar Myrdal. author of Asian Drama.
The problem they shared in common was a highly unequal

distribution of wealth, most of it being concentrated in the
hands of a small minority, while the masses of the people
lived in poverty and on the ’margin’ of society.

The chi

task of development therefore came to be seen as that of
re—integrating these marginal people into the existing social

structures.

Attempts were made to broaden the latter and thus

ensure a greater flow of benefits from the ’haves’ to the

* have-nots 1 .

India’s 20-point . economic programme can be

seen' as a concrete expression of this approach to development.

Note that during this phase the point of reference shifts
to the developing countries themselves, but to their metropolitan centres, the organized sector

jf the economy,

and the

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moulded on
eLite of the decision makers who themselves are
Western standards and values.

Naturally enough these persons/

inpired by the best of intentions/ view development of the

ordinary people

as they sec and think fit/ and one gets

planning from above.

The strategy for development reaches out from the centre
or from institutions.

It takes the form of projects arid

started through
extension programmes/ planned at the centrej
through services
outside initiative/ financed by the Centre,
manned by development workers who come from outside the

community.

This does not preclude the presence of self-help

usually paid to this approach.
elements/ but only lip service is
in this third approach/
Food-for^work projects could be included
wherein the element of sei f-help is already more pronounced.
The approach was politically safe/ for it did not

questions about the system
encourage the people to ask too many
a ’confidence mec halfism1
itself. Development work was used as
. the existing political
to win the allegiance of the people 3tQ
system and its rulers.
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considerably in
The role of voluntary organizations grew
Because of the -missionary1 zeal that animated them,
importanc e.
for the most disadthe government felt that projects meant
vantaged or remote people, where government officers would
hardly go, could be entrusted to voluntary organizations. whose

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personnel would work with full motivation.

Or again/

because these volunteers had
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the confidence of

the people/

they could get across to them more
easily than officials could

frank question can perhaps be posed
at this juncture:
this not how the present government still
sees the role of
voluntary agencies ?

Development—Liberation
There were two serious flaws in
the third approach. First
it presumed that the benefits of development could ’trickle

down' from the top to the bottom of the social scale:
I I .d

that

without any major changes In the existing

social structure/

those who ’have’ will be prepared to make the
necessary

concessions to provide for those who ’have not’.

Secondly/

presupposed that the poor would gladly accept development

as a gift from above.
There is now a growing awareness that real development can

only start from below, from the people at the bottom,

Words

like 'grassroots* and 'barefoot' are
now becoming the fashion,
The first step in development must be an attempt to help the

people free themselves from

the various oppressive forces

keeping them in a state of dependency.

In this fourth phase/ one reaches the opposite of what
the original idea of development started out with.

Now the

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■ordinary man at the grassroots

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becomes the point of reference

and the yardstick for judging whether development takes place

or not.

Any development measure/ at whatever level it be

taken/ finds its justification to the extent that directly

or indirectly it helps the marginal man in the Third World
to become more fully himself.

precedence over the

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The ’human* aspect now takes

economic and technological aspects.

Economic projects and progress are still very much relevant/

but only to the extent that they result from decision-making

by the ordinary man in his own community/ and to the extent

that they bring more equality and more participation in
decision-making.
In this last phase/ the people are ’conscientized1

about the situation in whi-h they live. the oppression they
suffer/ the contradictions they experience.

They are

encouraged to ask questions/ to get organized/ to build up

countervailing power (as the trade unions did earlier) and

to exert pressure from below.
development becomes a

Politic ally / therefor e,

live wire, for amongst the questions

that people are asking will inevitably be those dealing with
government officials and how they exercise their power/

of vested interests
government structures/ and the interplay

at the top that keep people in a state of oppression.

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The role of voluntary organizations becomes vital. . A

role emerges of awakening the poor to their state of dependency

and to the possibility of themselves changing the structures
that oppress them by exerting organized

pressure from below.

Note that such an approach does not preach revolution or

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physical violence/ but only favours the building up of
countervailing power/ without which as a matter

of fact.

initiatives of government remain a dead letter.

The possibi-

ti

iity of misunderstanding between the government and the

voluntary agencies during this fourth phase is a very real one.
Development Dialogue and the Rich Learning from the Poor ?

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Pointers are already on the horizon to indicate that the
'development debate’ has turned 360 degrees, and that in the
near future/ the so-calleu ’developed1 countries will begin '

to discover that they can learn very much from the poor

nations/ in matters of total and integral development, the
quality of life/ the warmth of human relations/ the stability

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‘if-

of family life.
Once this fifth stage will have been reached/ a real

dialogue on the basis of mutual respect for each other’s
dignity can begin to take place.

It must also be noted that

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such a dialogue has to take place between the ’developed1
sectors and the ’marginal’ people in each country as well.

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To be more concrete, real development is likely to take

place once we, the so-called

civilized/ educ ated, and

do not have all the
advanced elite/ begin to realize that we
what shape the
answers, cannot therefore, plan on our own
of the people should take/
development or liberation of the mass
This can be done if
without very seriously consulting them.
and are
we would be ready for a dialogue with the people,

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willing to encourage andI work for planning from below.

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Session 3.1

DISCUSSION FRAMEWORK
Framework for Discussion on UBS Concepts
Given below is the discussion framework for five

UBS concepts.

Each group will discuss one concept in detial.

Therefore mark the relevant framework that is to be given to'
each group member.

In case ’there are less then five groups,

use your discretion and assign two concepts to each group.
The frameworks should be used merely as stimulants to
discussion.
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Need Based Planning and Management
a.

What do you mean by it? Briefly discuss and
describe it.

b.

How to understand needs of the community:
What is your experience(if any) in this respect?
Recall problems faced while trying to identify needs

c.

How can you link ycur planning with their needs?
Give examples from your experience.

d.

~plcs of advantages of need based
planning and management.

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Ensuring Participatory Process

a.

What is participatory process?
experience and give examples.

b.

Discuss forces/factors which hinder p&rticipatorv
process.

c.

How can you remove hindering forces for ensuring

Recall your

participation.

d.

Give advantages of participatory process from

your experience.
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Area Based Planning

a.

What is area based planning as compared to common
planning for all areas?

b.

Can needs of people be clustered to involve groups/
areas in the planning process?

c.

How can area planning approach be used to bring
people together to collaborate?

d.

Recall examples from your experience(if any) to
illustrate area based planning and its advantages.

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3

Empowering People

Recall examples from, your experience of feelings
of powerlessness and helplessness of people.

a.

Why do people generally feel powerless? Why do
they feel that they cannot influence things,
decisions and programmes?
What should you do to make people feel confident
and powerful?

b.

c•
d.

-- - experience why awakened
Recall examples from your
people help development.
and confident
<____

Facilitating the Process of Self-Reliance

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a.

What is self-reliance for a poor community?
Why is it important?

b.

vVhat can you do to weaken dependence of the
cemmunity on outsiders including the government.

c.

How are need based planning, participatory
process ancT'bmpowering people related to
self-reliance?

d.

Recall from your experience problems, failures
and success stories in promoting self-reliance.

T"

Session 4.7

CASE STUDY
Pre-School Education as the Entry Point for Community
Participation
The role and importance of early childhood care and

is acknowledged without doubt.

In the Indian context

special significance
early childhood care and education assumes a
and
H in view of two major problemss the high rate of infant

dropout and stagnation in
Wchild mortality and the high rate of
is viewed primarily as
primary schools. The Child Care Centre
which the children of
institutional infrastructure through
of health and nutriage group 0-6 can be reached for delivery
through the organisation of non
tion services and in which#
foundation is laid for later
formal education .activities* a
of the bene|| formal schooling. Through this service parents
for inciuaating awareness of
ficiary children can be contacted

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proper health and child care.

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Since any community programme
standing of the perceived
the

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needs of the community a survey of

families residing in the vicinity of

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(

National Institute

(NIPCCD) was
of Public Cooperation and Child Development
families from the nearby residential
undertaken. One hundred
Police Colony# Hauz Khas
Shahpur
Jat
Village#
areas such as

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calls for a thorough under-

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Rcsearch Associate#
InstltSToXSic^XeratSn
and Child DeveAdapted from
National ——
lopment# New Delhi.

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and NIPCCD campus wer

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interviewed to collect data on existihfl

facilities with reference to the need for Day care and Balwai

services in order to assess potential ways of community
assistance and participation.

Based on these data it was decided to start Field Demon
stration Services at the Institute in 1981 with financial
assistance from UNICEF.

One of the demonstration services was

a Child Care Centre.
Establishing rapport with the community was a long drawn
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out process/ and a tortuous one.
suspicious

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At first the women were

about the obviously city-bred women with their

Alien ways.
A close identity had to be established if rapport with thrf

community had to be built up.

The style of dressing (for

instance/ covering the head with the saree endz) and the
general deportment had to correspond with those of the
community women.

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These were the first steps towards being

accepted by the community.

By approaching the women through

their mothers-in-law and the community leaders such as for
instance the Mukhia/ the ideas and the purpose of the

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programme' were put across.

The mothers were then invited to visit the centre and
watch their children at

work.

Seeing the display of their

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children's creative work and being oriented towards various
aspects of child development during their visits made than

realise the importance of their participation

in the centre's

They were drawn towards the centre and its
helped their children
activities when they realised how much it
This also broadened their
and their own understanding of them.
outside their
outlook and in interacting with other women
vision became wider and they were also able to

activities.

astis/ their

| contribute more innovative ideas.

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A condensed curriculum on the lines

of the Anganwadi

mothers during the
workers’ syllabus ras formulated for the
great boon to them

vacations which eventually proved to be a
Even illiterate mothers
y
in their participation at the centre.
were able to participate

in the programme.
the centre and

The benefits of a close involvement between
in
immeasurable. Participation by parents

the community are

their children's learning

activities will mean more efficient

in
and will help eliminate gaps
of
community
resources
use
for the overall development
■ programmes that are organised

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of the community.
attending the Child Care Centre
school
children
The pre
(CCC) reside in

slun/low income areas

Every year 40 children are
come first serve basis.

in the vicinity of NIPCCD.

firs t
enrolled in the centre, on a

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Objective
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The ob j ec ti ves

of the CCC

are

to enable the trainers

and the trainees

experience in the
managerial skills

required for proj^t

planning and implementation ;

to foster the physical,
social development of
to provide an

emotional, intellectual

children in the

entry point for

nutrition services to

to gain first han

and

age group 3-6 years jr

delivery of health

and

the children;

to promote cormunlty awareness of chila

care;

and

to foster and encourage
corrmunity participation in

Planning and ■running she activities

f the centre.

Servic es
For children in the age group of 3-6 years ;

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Health check up

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Inununisation

Assistance and guidance in the

treatment of minor ailments f

Non-formal pre-school education

and recreation.

For adult women
Health and nutrition education and

proper child care

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Training programme for mothers to acquaint them with
different aspects of child care and pre-school activities.

$ Activities
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The children arc divided into younger and older groups.

As they grow and learn. the Child Care Centre provides them

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opportunities appropriate to their developmental needs.

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habits.
An indivudial record is kept of each child's
behaviour, and physical. social, emotional .and cognitive

development.

These are discussed with the parents at the

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Centre as well as during home visits.

Health cards and

grown charts are also maintained.
There is a follow up of ex-students

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to know about their

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in primary school

performance.

for mothers £o acquaint
It undertakes training programmes
of child care and pre-school
them with different aspects

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activities.
4 Role of the Staff

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Balsevika

for conducting the activities.
The Balsevika is responsible
conducting all the
i Aids are developed by the Balsevika m
all records and registers with
also
maintains
She
activitdjes.

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the help and guidance of the Organiser,

She makes occasional !

home visits to educate mothers on various topics relating
to health and nutrition of children and to enquire about
children whose attendance is not regular.

Helper
The Helper’s role here differs a little from other
pre-school centres.

in

She not only helps the Balsevika

conducting pre-school activities but also performs the

role of Balsevika when need arises.

She has had two month’s.

training in child care and pre-school activities organised by

the centre

for mothers.

The Helper looks after environmental

sanitation and children's cleanliness.

She helps the children

develop sound toilet habits and also in their personal hygiene.
She goes for home visits too in order to establish contact

a

with the community.
Community Participation

Sharing the various resources of the community for childre

positive development is not only beneficial for children but
also for all members of the community.

If we consider it from

the management point of view we will find it both cost effectiv

and cost efficient;

while from the educational and human

point of view it is a positive way to involve parents, children

professionals, business people, craftsmen and

other members

:: 7 ::

of the society.

There must be planned cooperative interaction

among those parts of society with the most influence on a

child’s life and development and the family, the school and the

community.

I

According to Brofenbornner (1979), family support

programmes and school assistance projects produce a viable system
in which all ccmmunity

members can learn and contribute in

'human ways •

f

Parental involvement is the hallmark of this Child Care

entre.

This cooperative effort which provides care to

^children and helps in fostering their allround development is
a unique experiment in several ways.

I

Parents help in cash. kind and labour to run this centre.
[others take great interest in the activities of the Child
re Centre.

Mothers whose children are attending the Centre

From

e members of a Mahila Mandal formed by them in 1983.

.jtheir monthly contributions, the Mahila Mandal meets the
honorarium of the Helper (Rs.200/- p.m.) and various other
c

I expend!tore.

The Mahila Mandal has also donated Rs.1000/- to

the National Children’s Fund.

A meeting of the Mahila

iMandal is held once in a month to review the work of the ^entre.
the participation of the mothers

and other matters
matters .•

I

During

ithat time educational and recreational activities are also
.

I

'■

also attend these

Organised.

Other ladies from the community

^meetings.

These forums arc used to discuss other issues and

! -

I
I

Jproblems related to community development.
.TTSH-ir

<■*

I

I

1

ti 8 ::

1

Every day by rotation one mother comes to the
Centre to ?
help the Balsevika in conducting activities; they also help I
the teacher in preparing toys and teaching aids.

Social interaction is fostered and
community awareness
created by celebrations s uc h as on children’s
birthdays,
social. religious festivals,
and educational trips to

various places of Delhi are organised by mothers along with
the staff who take the initiative in
organising such functions'
and trips.

During Diwali, New Year and Raksha ^andhan, both
parents join in preparing greeting cards. and rakhis.
I

I
Corrmunity resources are used again:

a doctor from

Municipal Corporation Dispensary in a colony nearby comes for

children's quarterly health check-up.
The Centre has become a focal point for a lot of edmmuni

activities.

It has helped people to come together and

collectively take on the responsibility for their children's

development.

s
I

Session 4.8
CAS^

II

STUDY

BOSCO Programme for Street Children in Bangalore City -

J

A

Profile*
■

1
Street youngsters are those aged 10-20 years who have no

I

H home to go to but have instead made the streets their home
and the mainstay of their lives—earning# eating^ living and

growing on and off the streets.

Homeless child labourers

comprise children aged below 8-16 who have abandoned their

I

j

homes and are willing to work in any available job in order
to maintain themselves.
BOSCO translated itself as an association for the service

of the street people of Bangalore.

It was initiated in 1980

as a pilot explorative project and was developed into a fullIt developed in three phases. The
fledged

!

project in 1984.

■1 first phase helped it to evolve a philosophy of its own

through symbolic actionst study, data collection, reflection
and welfare measures.

The second phase

is intended to build up its street

?! base# the competence of its personnel# its credibility with
the street people and the infrastructure.

The third tier

phase will be an expansion development phase.

Programme for Street Children - A
<•

July, 1987.

!

I

r 7

Philosophy

The street child and homeless youth form the target

group of the Bangalore project.

The problem of the youth

not perceived in isolation of the social reality that causes]
this phenomenon.

a

It addresses itself not only to street

youth but to the entire social organisation/ to the socio

jI

political situation/ and its supportive value systems.
The project accepts that given the existing social org^

nisation, street youngsters will be an ever-present reality.
Therefore the approach is not how much has been achieved but

how intensely the project has been presented to street youth

i I

in their existential realities and in their efforts to cope

with and transform both themselves and society.

■

Aims and Objectives

To contact/follow up street children/youth and identify

i

their problems and needs and try to settle them back
the context of their families.
-..’S',

To support those who cannot

come off the streets and

thereby prevent them from becoming the victims of the

vices of the street.
Counselling to settle them back in society.

■

I

: : 3 ::

‘I

5

To form associations of street you th/ working children/

■

conscientise them of their plight and help them live

1

I

meaningful lives.

To provide night shelters

club rooms, hostels, training

I

study centres, youth villages and so on which will support
their rehabilitation.

aK

To plan and implement employment betterment programmes.
To involve society at large to work with street children

1

I
■

and create an awareness of the situation through the media.

a

To study and conduct research on and document the situation

I

To collaborate with covernment and non-governmental

-

of such youth groups.

I

agencies and others working in this ticld.

4

*3
■

3

The project accepts a preventive promotional rather than

|a
ja curative system of education based on the creation of
or an
ar
^environment and attitudes

■

that will wean children away from

the dehumanising and vice-ridden habits that the streets offer

-so temptingly.

I
11

The Project has Twin Components
of contacting and supporting street youth in their efforts

■

to grow and integrate;

i■

'fl

and

II

■’I

S: -h ’1^!

■■

;■...

¥

1
:: 4 : ;

of raising issues regarding the causes of the street
youth phenomenon.

The Twin Components are Three-Tiercd
the street presence through the contact centre and the

contact points;
the city centre presence/ acting as
a calalytic agent fo;

transition from streets to society; and
the institutional presence acting as a support for a

full-fledged reintegration into society.
Contact Centre and Street Presence
!

I

The different contact points in the city are coordinated

through a contact centre.

They maintain constant vigil j

over the streets and meet each boy.

A friendship is

developed and the boy is provided with a hope that wil’

support him in his efforts to build his life.

Every

effort is made to put him into the home and family.
The contact team staff is expected to tackle as many of

the problems of the youngsters as and when they arise.

I

It is necessary for the youngsters to come to the centre

to avail of the services.

:: 5 : $

■'I

■
The contact personnel do not give money in hand.
as a

Nor

rule do they do anything that the boy can do himself.

child is
This is to ensure that the respect due to every

I

given to him and a love relationship is built.

(The fact that a boy has

taken the responsibility for his

situation
life, that he has come to the street from a worse
elsewhere is considered a courageous step. This is used as a
.J challenge and an opportunity.

City Centre Presence
The city centres are located within easy

reach of the

They act as a catalytic

street where these boys live.

agent for the transition from

the street to the

housc/socicty•

is open enough to
The flexibility of the city centre
out, yet a full day’s
allow him the freedom to run
enough scope to get
schedule ensure that there is
training.
accustomed to a regular life through education.
saving and so on.

Those who are accustomed to

life are

the regular patterns of

given encouragement,

offered for building up

and possibilities are

their talents, for growing in

confidence and for identifying

themselves at BOSCO Boys.

c

1
: : 6 s:
The older a boy is the greater the

responsibility he

will assume. the faster he
appears to strive to settle
down in life. Having their
own rooms. and marriage are k
the steps that follow.

L

Work in the form of vocational

N
training, informal and on

1

going education. vocational bureau
etc. is cons idercd
a means of education and growth.

Institutional Presence — Youth/Children1 s Villa<
e

The creation of a home especially for the
younger street
child.

Less formal and shorter duration programmes will
be provided here.
A place that will provide family hostel facilities for
teenagers. with smai children from 'house-parent1

institutes and youth from their own homes.
Activities

Such activities include home placement, training children!
medical aid, counselling and advocacy, acting hs middlemen

between the street children and different institutions

(remand home. certified school, employers, police. etc.)
Street classes. savings schemes, job placement, orientation

camps, picnics and get-togethers.

r

I

'1

:: 7 ::

Beneficiaries/Staff

At the street presence, there are 25 contact points
BOSCO is in touch with 1200 street

grouped into five areas;

children, three full-time personnel and 20 part-timers

who

put in about 12 hrs. each.

This presence is felt at each of the points four or five
times a week.
Over 2000 street youth have come under this presence and

follow up is done through a data card.
26 parents visited

looking for their lost children and

a 6 of them were traced.

into their

In the past months

families.

Over 400 boys have been placed back

In the past 4 months an average of
every month• A weekly average of

•Si 15 children were sent hor

four boys needed medical care;
with BOSCO and many more have

80 boys, have savings accounts
/

independent savings bank accounts.

Savings vary from 15 paise to Rs.15,000/-.
The City Centre provides education

(

and training and job

factilities for recreation/
placement facilities; ' it also has

bathing/ night shelter/ safe keeping of belongings

and

cooking.

Ii

arc in charge of
Five full-time and 5 part-time personnel
these activities.

Big?.

SiS'

....... ...... ...?■

The monthly average attendance is 250 and

1

c

"1
•2 8 ::
the daily average is 70.

In the past year over 900

children have used the facilities of
this centre.
Funds

The average monthly expenses of Rs.8,000/- arc met by
local contributions from funds and benefactors,

of the staff offer their services free.

A majority

Three persons of thi

tour programmes were financed by government

and other age

li

Problems
1.

Committed personnel are difficult to get hold of.

2.

Funding agencies including government require a system

I

of head count of beneficiaries which is not possible. 1
3.

fhe attitudes of society and particularly those of the

~

law enforcement personnel need to be charged.

4.

A non-institutional approach needs to be designed and(
recognised.

5 .

The present system of education is not amenable to what
the street child can cope with.

6.

The training imparted needs to be recognised.

7.

The criteria for evaluating ’street work’ in education
needs to be re-assessed.

J

■

I
I

ii 3 n

Session 4.8
Definition of Street Children
The Children on the Street are primarily

it

still have family connections of

working children who

a more or less regular

Many attend
Their focus in life is still the home.
the end of each working day and
school# most return home at
belonging to the local community in
most will have a sense of

nature.

which their home is situated.
Children in this goup see the
The Children of the Streets
that they seek shetter.
street as their home/ and it is there
food and a sense of family among companions. Family ties
*

is visited infreqexist but are remote and their former home
|
J

s
k
»

uently•

Abandoned Children are those who have
their biological families

severed all ties with

just-for material but also for psychological survival.

.X

X

not
they are entir-ly on their own,
c

t: 4 H

Session 4.9

SEWA s Self Employed Women’s Association
SEWA originated to protect the unorganised
women workers whose work is not dutly rewarded.

and unprotected

It is a

registered trade union.

On 31 December 1974, SEWA had
a member*
ship of 6,667 of women such as vendors/
hand spinners^milkmaids/
junksmiths and the like.
SEWA has a representative board of 153 elected
group
leaders from different sections of total
membership. The group
leaders usually know the mechanism
/ problems of their trades,
their economic viability and also know
their own members, their
place of work- and houses. They provide the
common channel.SEWA
feels that this is the only practical and
economic way to reach a
large membership scattered
over many miles of area.
SEWA started with the first

programme of protecting its

members from the exploitation of private

big traders.

There were a number of

good capacity to sell, but because of

money lenders of othe

cases where women have

shortage of capital, they

have to remain satisfied with low s<.les.

For instance, a

vegetable vendor in the morning goes to a private

money lender

residing in her neighbourhood. borrows
a small amount of Rs.50/reaches the wholesale market to buy go.ds,
sells during the day,
earns Rs.10/- (returns Rs. 55/the capital + interest of Rs. 10/per day) to the lender.

An other case of helplessness is where

it 5 >t

not their own.
the means of labour or production are

For

handspinner is always at the

instance a handcart puller or

of the handcart or the charkha' (hand
r mercy of the owner
spinni g machine)•

The rent is not fixed and the hired

I" instruments are often not in good condition.
instruments are

i

Active Support of Nationalised Banks

To take up the scheme of providing finances to its
members SEWA decided to provide the

banks from its

inffastructure to the

meagre resources.

•own

SEWA today completes

to
all the preliminaries and submits completed applications
■

Loan applications are filled

various nationalised banks.
by SEWA on the basis

of seniority of membership# honesty of

of trade and
purpose t homogeneity of group# experiences
reliability of group leaders.
»

I

■

How Loans are Disbursed
Applicants are illiterate# each .form of the application

has a photograph of the applicant and

s

for identification.

c

guarantor(cross guarantor)

The same photo is also attached on her
-

card in the Mahila
savings pass book and on the specimen

i

Cooperative Bank.of

I

verities her membership with the union and her savings account

?k

in the SEWA Bank.

SEVJA.

Before filling the form# SEWA

After receiving the application forms with

-■

____ L

1

n
it
recommendation from the SEWA office for the date
of disbursement )
of loan money/ the staff member of
SEWA presents herself at the
bank with the borrowers and their group leader.
The account
payee cheques in the names of the borrowers
are deposited in
their accounts in SEWA Bank, They draw the
money from their
accounts as and when they need it. The
repayment is done on 20
monthly instalments at rates of interest
varying from 9% to 16.5^

In July 1974, Mahila Sewa Sahakari

Bank was inagurated/

initially 9000 women opened their savings
reached a working capital of Rs.

3 lakhs.

accounts/ and the bank
Having own savings

accounts helped them from falling into the hands
who used to deposit their
it

of money lenders

money of from their husbands who de

manded money.

SEWA has adopted the twin

strategies of struggle and

development.

Struggle is -arried out mainly through the union
and it takes the form of fighting for one's
’ 'own rights.
Development takes the form of building alternative
economic
structures such as cooperatives.
SEWA’s experience has shown that injustice
I

levels^

J

1.

Injustice that the women directly

exists at three

see—the dir.ct exploiter

like a policeman/ an employer or a contractor.

I

2.

Those who support the direct exploiter-those who ape ,„eaut

n 7 tt

.e

to protect the workers start favouring the exploiter/ the

government agencies ar . the legal structure.
3.

All this exploitation can be sustained because of the in-

justice at the level of polices and laws.

So in order to be effective/ the struggle has to be carried at
all the three levels of injustice through

fl
J i 1•
2.

direct action
lodging complaints and by cases in court
pressurising government to bring about policy changes

organising the workers.

Problems
But this task is not easy as there are strong vested

interests who do not t want to see them united.

The most

Sr--pervasive problem is the fear of loskng whatever small
income they might have.

Usually an employer or exploiter

reacts to organising by harsh measures such as dismissal
or arrest.
Divisions among workers prevent them from coming together•
These are caste/ rclass# religion/ region/

Besides/ a problem

particular to women is that they do not identify themselves as
workers.

Since they primarily perceive themselves as housewives

and mothers# they find it difficult to identify with each other
3

Er

I

n 8 tt
on common issues related to work.

they are often unaware of the laws

Yet another difficulty i
meant to protect them an.

agencies meant to help them.

Perhaps one of the secrets in
organising is to keep on
keeping on.

is permanent.

No one action ever leads to a success..

Organising is a series of ups and downs<

is rarely absolute. but is only after
a compromi*se«.

t'
i

organising.

i
i11 ♦

;•

I

Succ

One iss

often leads to another » a series of issues each
more imports

than the other. more basic than the last.

1

No fajll

SEWA just keeps o

til
. i...

a-

it 9 >>
Session 4.9
CASE STTTDY
WWF: Working Women’s Forum
The WWF is a grass root com unity organisation of self
in the informal
employed women in petty trades and production

Is

sector.

It has been cited for its achievements in improving

the condition and status of poor women living in slums.
The organisational set up of WWF has been devised so that

?

the poor women can come together to work collectively for

jor

their economic and social improvement.

The Forum seeks to

empower women at home and in the community.

All the activities

child care/ health
run by the Forum such as. loan programme/

9

>

I

and education activities/ are all operated and controlled by

3

Pi

women gain confidence and self
women themselves in this way/

reliance.
Organisational Structure and Leadership

c

ij
The Forum/ chartered as a society in 1978/ essentially

The key unit in the

i i

began as a self help credit association.

ii

organisational structure is the neighbourhood loan group.

A

woman does not join WWF as an individual member instead she

assembles 15-25 of her neighbours who elect a group leader and

the neighbourhood group is then registered into the Forum

■

1

I
It

10 It

(orginally loan groups of 5 0 were tried but they
proved too
large; intimacy and opportunities for mutual

wer and loan defaults higher).

support were fe-

The group functions as guarantor

or security for the loan.
The group leaders, approximately 250 in number,
members of the governing board.

are the

They attend monthly Forum

meetings and participate in the
management of the organ!sation•
Elected office bearers include one president,
two vice
■'

presidents, one general secretary and a

standing committee of

7 members who are all elected by the board.

from the general council.

The 8000 members

Each member pays a membership fee

of Rs. 12/- per annum.

WWF Goals and Programme Strategy

1.

To federate existing orr misations striding for working
women and to establish branches of the WWF in all districts

and villages of Tamil Nadu.

2.

I

To assist in improving the conditions
cooperation and secure for them

of working women

'ougt

more time and leisure f

creative work. cultural activities
and recreation.

3.

To help self-employed women expand their business through
arranging loans from nationalised banks and to improve

their professional and social status by giving them

training

L

0?1
ti 11 ::
and establishing day care centres for their children.

olve civic and othe

To

4.

problems of

ir'mbers by acting as

authorities,government
an agent between members and civic

r
L

and other national and

5*

international organisations*

To mobilise all working women to fight

for their rights by

acting as a pressure group.

social change is income
The backbone of the strategy for
the self-employed
generation through the provision of credit to

worker.
j

Credit Programme
women workers
The Forum has acted as an intermediary between

r
St

t-

I

securing loans for business
and the nationalised banks in
differential interest rate (DIP’)
investment purposes. An existing
rban poor. has been underutilised/
scheme .esigned to aid the
small loans
due to the reluctance of the banks to process very
The Forum stepped in and organise^
to large numbers of borrowers.

►

►

and streamlined the admithe women borrowers into loan groups
costs to the banks.
nistration process reducing time and money
Poor women having no assets are

able to secure small loans of

Rs.100-500 at 4% interest rate per annum on
their group leader.

the guarantee of

This is based on the confidence of the

the debt.
leaders in the women s ability to earn and epay

The

I

I

T
n 12 ti

corresponding rate of interest ffo’ir an unsecured loan from a mo:

wer rates of 3°' per month are

lender ~.s 10% per month.

available if loans are secured with a sufficient amount of jeweW

or vessels.

lor a WWF(DIR) loan of Rs.300/- the woman makes 10

monthly payments on the principal/ her interest payment is only
Rs*12/- compared to Rs.360/- on a money loan of the same amount.
Women receive loans in their own right without the aid of

husband/ son, or father.

To date 5000 loans have been secu.

d

under the programme.
!

Women’s Cooperative Credit and Service Society

A women’s credit and service society was inagurated in May

1981 at the Third Anniversary of the Working Women’s Forum.

Tty

need for a women’s bank arose out of the difficulties experience
i

with the nationalised banks.

Delays in receiving the loans

owning to the . high volume of very small loans has been a clr
problem despite the Forum’s streamlining efforts.

di

Because the

loans are restricted to business investment purposes/ women are

still forced to rely on money lenders in times of financial cri

The credit society will allow timely loans for consumption

purposes or to repay enormous debts as well as for business

expansion.

““Wr
I!

u 13
Cooperative Production Units
1

to begin cooperative proauction units In
The Forum hopes

1

which will be
certain industries

s
-

selected as a result of

come f rom the

market studies.

The funding wil

Service Society.

The aim of the programme

Credit and

is to provide secure/

where profits can be
for
women
higher earning employment
needed benefits
re-lnvestea to expand employment and provide
A garment tailoring unit is
the
workers.
and services for

perceived as a likely

starting pointo
h

►

i

i
p
I

W:

■ •'?

REGIONAL CENTRE FOR URBAN AND ENVIRONMENTAL STUDIES
OSMANIA UNIVERSITY
HYDERABAD

>

REGIONAL SEMINAR
ON

URBAN POVERTY
10th AUGUST 1989

URBAN POVERTY ALLEVIATION : NEED FOR PARTICIPATORY APPROACH

WORKING PAPER

Organised In Collaboration with
UNICEF, SOUTH EAST INDIA OFFICE, HYDERABAD.

4

4

REGIONAL SEMINAR ON
URBAN

POVERTY

=

10th August, 1989

URBAN POVERTY ALLEVIATION : NEED FOR PARTICIPATORY APPROACH

WORKING PAPER

>

i

i

Organised by
Regional Centre for Urban 6c Environmental Studies
Osmania University, Hyderabad-500007 (A.P.)

In collaboration with

UNICEF, South-East India Office, Hyderabad (A.P.)

I

J

4

NEED FOR PARTICIPATORY APPROACH

URBAN POVERTY ALLE”’ATION :

India's

a

presents

urbanisation

contrasts

of

picture

morbid

and

complexities in terms of size, pace, pattern and consequences on the overall

development.

In terms c

160

millions

constituting

In

absolute

of

lived

tion

twelve

from

increased

of

metropolitan

the

1,00,000

the

2,531

with

cities

216

in

cities

urban

population

to

million.

(population

1981.

population

urban

one

below

number of urban agglomerations and

in

more

in

739

3,245

excluding

1981,

in

204

medium

1,00,000

The

more.

and

million population accounted

than a

About 52 millions or 33 per cent

cities
62

Approximately

20,000).

of

population

ban population.

lived

to

1971

About 60 per cent of the urban popula-

a

with

for about 27 per cent Ox
I

in

population

the

equals

population

instance,

Kashmir and Assam.

Jammu &

total

millions) and is marginally lower compared to USSR

For

factor.

have

towns

urban

the

of

cent

The spatial distribution of urban population is an extremely

(169 millions).

i

per

23.7

the

numbers,

United States (161

disturbing

? ze, the urban population in India was around

the

in

millions lived

(20,000

-

range

population

49,999),

in

of

2,020 small

and

large

270

towns (50,000 - 99,999).

Though

estimate of
less

the

per

cent

regions

of

30.5

developed

of

trend

country is on the increase.

urbanisation

in

India

is

less

than

the

UN

in 1980 of those who lived in urban areas in
in

our

During 1971-81, the overall population grew

by

the

world,

the

trend

of

urbanization

...2

Uli

2

> per cent whereas the urban population rose by 40 per cent.

The annual

rowth rate of urban population was 3.86 per cent whereas it was only
of rural population during the corresponding
.75 per cent in the case

Though this trend is similar to most of the developing countries,

»eriod.

economically developed countries which have
T is higher compared to ...e

innual growth rates between J;1 to 2 per cent.

The projections of urbanisation in India, though not panicky, provide
the

magnitude

urban

of

problems

need

which

immediate

By

attention.

2001, the urban population will be of the order of 320 to 338 millions;
in

..

other words, doubling of the present population in a short span of two
And by 2021, the population is estimated to be between 524

decades.

to 642 millions.

If the high . scale is accepted, it implies another doubling

in the following two decades.

These projections emphasise the enormity

Such

of the problem and provide guidelines for future policy decisions.

|

a growth leads to economic, social -and ecological disruptions having an
adverse

impact

cancerous

on

growth of

the

living

slums,

conditions

cor.gestion,

of

the

pollution,

urban

The

dwellers.

inadequate

shelter

and

k

basic services like water supply, street lighting, sanitation, etc., are vital

areas of concern.

/Among these,

shelter and slums pose greater threat

to the health of urban settlements.

While urban dwellers consist of public servants, businessmen, industrialists, workers of private sector; a good number are pocr people who migrate

from rural areas to urban locations mainly in search of work and be

...3

i

3

able to enjoy urban services like electricity, water, recreational facilities,
etc., to which they do not have access in many rural situations.
rural

poor

move

often be
i

haphazardly stay

in poorest

Not all urban poor live in slums.

They can

into towns and

areas which we call slums.

These

cities and

found distributed throughout a city, living in servants quarters,

chawls, small squatter settlements and on pavements.

I
Indicators of Poverty

A review pf the

shows tfiat lack
'?.erature on problem perception

i

of income, irregular and poorly paid employment, poor shetler and sanitation, lack of basic physical amenities like water, health, educational depri-

vation of the children are foremost in the consciousness of the poor as

indicators of their poverty

The fact that poor households find themselves

in a multi-problem situation calls for a multi-pronged service design converg-

ing at the household level.

I

!

The twin causes of poverty are under development and inequality.

Urban poverty manifests itself in many forms.

increasing

fast

slums

and

bustees;

casualisation

and

under-development

Proliferation

of

Most visible of these are:

of

growth

an

labour;

informal

sector;

growing

pressure

on civic service; high rate of educational deprivation and health contingencies;

retarded

growth

f

physical

and

mental

capacities;

a

growing

sense of helplessness among the urban poor resulting in rising crime rates

and group violence, etc.

...4

estimates

Current

the

on

based

are

poverty

of

daily

average

deemed by the Planning
per capita calorie intake; below 2140 calories are
I

Commission

poverty

"below

this

line",:

per

a

means

capita

income

of

Though the relationship between income and physical

Rs. 122/- per month.

deprivation is close, a substantial number of cases of acute physical depri

to
at

fall

would

vation

official
least

estimates,

5.7

the

outside

people

crore

fall

of

below

the

According

poverty.

the

urban

population,

poverty

line in

1987-88.

27.7%

approximately

of

definition

income

i.e.,

>
These urban poor are spatially distributed in different states.
per

Eighty

cent of the urban pc*jr are staying in the eight States, namely, Uttar

1

Pradesh (17.81%), Maharashtra (11.41%), Tamil Nadu (10.98%), West Bengal

I

(8.36%), Andhra Pradesh (8.04%), Karnataka (7.42%), Madhya Pradesh (7.33%)

and

Bihar

States and the
country

The

(7.19%).

in

are

Union

the

About

Territories.

States

which

have

distribc ed

are

20%

remaining

32%

of

level

the

of

in .the

urban

urbanisation

remaining

poor

higher

23.7 which is the national figure according to the 1981 census.
the

32%

of the urban poor are living in Uttar

Pradesh,

of

the

than
About

Madhya Pradesh,

Bihar which have low level of urbanisation as well as economic development.
Any

policy

aspects.

to

deal

Similarly,

with

the

urban

poverty

should

consider

thes?

spatial

the estimates of slum population in urban areas vary

from state to state and city to city.
people lived in slums in :9

The distribution

the

different

sizes of classes of

For

example,

in

metropolitan

According to one estimate, 40 million

slum population amounts

cities and towns is considerably

skewed.

to

6.5% of

cities,

they

vary

between

38

...5
t-

I
i

cities’ population.

217 class 1 cities account for more than one third of
About 39% of slum population of the country live

the slum population.

in metropolitan cities and these cities account for a major share of slum

population of the states in which they are located.

I

An important aspect

of urban poverty is that the larger the size of the city, the greater is
concentration of its urban poor in its slums.

A

s

disabled,

significant

of

number

scheduled castes,

urban

poor

are

children,

women,

tribes and minorities.

aged,

Therefore, any simple

prescription for alleviating poverty through programmes to increase employi

ment

and/or

incomes

of

poor

urban

men

with the complex proble... af urban poverty.

their situation must be multifaced one.

alone

cannot adequately

deal

Any strategy to ameliorate

Such a strategy must deal with

The ameliora-

the social, psychological and emotional aspects of poverty.

tion of urban poverty should be accorded the same priority as that given
to rural poverty.

Although, the urban slum dwellers, are the same poor

people, as the rural poor, their socio-economic conditions are much worse

than

those

of

the

rural poor because of overcrowding,

congestion, dirt,

pollution, etc., resulting in lot of infectious diseases.

Many development agencies including governments have lor a long
time neglected the urban slum dwellers who in many ways are more dis-

advantaged, than rural poor.

The

focus has been on

the

rural

poor

to

the neglect of urban slum dwellers simply because they live among elitist

urban population and hence, it is assumed that the basic services provided in

...6

6 :-

On the contrary, the services

towns automatically rea'h the urban poor.

available in urban areas do not reach the urban poor.

The services provided in urban areas are not accessible, affordable
and even culturally acceptable to urban slum dwellers.

Therefore, special

attention should be given to this group.

Children and Women : The Neglected Lot

The state of the children and

is even worse

they are the first

women in

poor urban communities

to suffer and even to die from

such

3

adverse

conditions.

In the absence of extended

family support systems

which rural environment often provides, the urban children are particularly

the slum
I

13 million children live in

On the lowest estimates, around

vulnerable.

areas of which 3.6

million are under 4

Despite many

years.

and multi-faceted efforts of the government, children and mothers continue
to

confront

numerous

For

pr /bleins.

example,

nearly

30,00,000

urban

children die annually due to diarrhoeal dehydration; about 6000 urban children

are

turning

blind annually

due

to

vitamin

*A’

deficiency;

over

30% of

children below three years and 45% between 3-5 years suffer from irondeficiency

anaemia;

twenty

seven

per

cent

of

urban

children

between

3-9 years do not attend schools; etc.

Situation in Andhra Pradeso and Orissa

We shall now have a look at the problem of urban poverty in Andhra
Pradesh and Orissa.

As we have noted earlier there are variations from

....7

i

state to state and from city to city in the incidence of urban poverty

For example, Andhra Pradesh has 120 lakhs (23.32%) and

in the country.-

Orissa has 31 lakhs (11.79%) urban population in i >81.

Orissa

and

Pradesh

contribute

10%

about

Together both Andhra

India's urban

of

Slum population

Identified slum population in 1981 in India was 279 lakhs.

of

Andhra

Pradesh

!

expected

about

reach

to

whereas

that of Orissa

By 1990 the slum population of Andhra Pradesh

was estimated at 2.8 lakhs.
is

lakhs

was estimated at 28.5

population.

38.07

and

lahs

that of Orissa

10.60

lakhs.

During the same period, India’s slum population is estimated to touch
512

lakhs

(for

By the turn of

details see Annexure).

slum population in

the country as

the century the

veil as in the states is likely to be

substantial requiring immediate measures.

According

to

1983-84

29.5% of urban population are

the national

figure

in

estimates,

Andhra

Pradesh

Orissa,

This is higher than

below poverty line.

winch was at 28.10.

and

To combat poverty during the

Seventh Plan period ai out Rs.30 crores, Rs. 1.5 crores were spent in Andhra
Pradesh and Orissa

respectively while in the country as a whole Rs.269

crores were spent during the same period under the Minimum Needs Pro-

gramme.

Per

capita

expenditure

by

the

respective

state

governments

in Andhra Pradesh and Orissa on health, water, sanitation, etc., is Rs.31
and

Rs.28

respectively.

These

more or

less

on

par with the national

average. 1 Though in the educational field per capita expenditure in Orissa

lags behind to the national average whereas in Andhra Pradesh it is more
or less on par with the national average.

.8

1

-5 8 s-

Literacy

Pradesh and Orissa the percentage stands at 51.99% and 54.77%

in Andhra

This is indicative of low level of literacy among the urban

respectively.

Among the imales 61.89% and 65.13% are

population in these two states.
in

literates

Andhra

and Orissa

Pradesh

respectively

whereas

the

national

In this also, these two states lag behind to the national

is 68.33%.

average

The problem is much more serious when we take female literacy.

average.

5

In

development.

of

indicators

important

he

of

literates whereas
57.5% of urban population in the country were

1981,

i

one

is

of

48.82%

urban

females

Pradesh and Orissa,
This

indicates

rates

in

the

it

is

more

lor

more

urban areas;

Health

low

very

is

neeu

the

the country

in

41.55%

concerted

drive

A

to

in

Andhra

respectively.

increase

literacy

sections of urban India.

of

indicator

whereas

and 42.77%

so among poorer

important

another

i.e.,

literates

are

Annual

development.

birthrates in 1985 per thousand of population in urban areas of the country
as

30.2

stands

whole

a

and

28.3

at

28.1

whereas
The

respectively.

in Andhra Pradesh and Orissa, it is

estimated

annual

death rate

during

the

same period is 7.8 for India, 7.3 for Andhra Pradesh and 8.1 for Orissa.
Orissa

is a clear example where health and medical services need to oe

augmented

to

improve

the

mortality

rate

is one

01

In

1985,

for

India,

in

Orissa

it

is

84.

the

the
figure

This

Orissa’s urban population.

health

standards

important

in

the

parameters

Andhra

was

59;

in

indicates

the

low

health

coummunity.
of

Infant

a healthy society.
it

is 57 and

standards

among the

Pradesh,

Efforts must be made to correct this.

About

....9

3

■

52% of births are attended by the untrained professionals.

indication

for health education in the state.

On

in terms of health standards Andhra Pradesh is on par with

whole

the

low priority given

of

This is another

the national average.

is

Orissa

Water supply is provided

far behind.

to 72% of urban population in the country whereas it is only 52% in Andhra

58%

and

Pradesh

in

Orissa.

Similarly

sanitation

to 28% of the urban population in the country
is

facilities

are available

whereas the percentage

Taken as

10.9 and 9.5 respectively for Andhra Pradesh and Orissa.

a whole in terms of sanction both Andhra Pradesh and Orissa are far
>

behind and requires policy initiatives.

Government Interventions

The earliest attempt to improve the living conditions of the urban
poor dates back to 1956 when a Slum Clearance Act was passed for the

Union Territory of Delhi and later extended to other urban areas of the

country.

The emphasis was on slum clearance and rehabilitation involving

disruption in the living conditions of the poor and hence, it was ineffective.
The
in

Urban
Delhi

Community

and

Development

later extended

to

Programme (UCD)

major

cities

of

launched

in

1958

India is another effort

to improve the living conditions of the urban slum dwellers in major cities.
The emphasis

in

this

programme

has

been on community

pariticipation.

A pragmatic effort was made through the Environmental Improvement
of Urban Slums Scheme (EIUS) in 1972.

The scheme emphasises improving

ir

-: 10

the physical

'

f the slum dwellers by

conditions

providing amenities like

storm water drainage, community latrines and baths, widening of

water,

The scheme is extended to all the urban areas

roads, street lighting, etc.

in the country in a phased manner.

The Integrated Development of Small and

Medium Towns (IDSMT)

Scheme introduced in the Sixth Five Year Plan aims at capacity building

of the lower order urban settlements with an average investments of rupees
This is an ambitious scheme launched to set-

one crore on eacn town.

right the spatial imbalances in the urban development in India while attracting the migrants from rural areas into the smaller towns.

Integrated

Child

Development

Services

(ICDS)

scheme

taken

up

in 1975-76 emphasizes the basic needs of the poor children - both in rural

and

urban

areas,

by

providing basic

health,

supplementary

nutrition and

non-formal pre-school education.

I

A number of efforts thus were made to improve the living conditions
of the urban poor in India.

But these schemes could not make desirable

impact mainly becuase of sectoral approach followed and neglect of commu-

nity

involvement.

Thia

apart

traditional

development

project

high technology, huge investments and a bureaucratic system.

involves

This approach

is found to be superficial and above the existing capacities of governments
in

the

developing

countries.

As a

result,

a number of schemes were

launched and shelved without achieving the desired results.

11

11

Impact of these Programmes

The impact of various programmes has been examined by the Planning

mixed but the overall conclusions are the

The results are

Commission.

reach of the programme

of

convergence

is limited; high degree of inflexibility; lack of

even

programmes;

the

main

targets

are

missed;

often

and with a few exceptions the programmes are still working on a laboratory
scale.

>
|

At the same time,

and

innovative

the Commission is aware of the highly effective

programmes

in

some

cities,

Improvement Projects in Madras.

and Slum

such

as

Sites

and

Services

Small Loan Programme and

Community Health Scheme of Calcutta MDA, Urban Community Development

in

Projects

Hyderabad

and

Visakhapatnam,

Low Cost Sanitation Schemes

in Patna and other cities, etc.

|

I

Provision of Basic Services : Financial Implications

An overview of the financial implications of urban population growth

provides mindboggling insights.
about

140

Rs.2,137
also

million

billions.

considered

units

are

It is estimated that during 1986 and 2021,

to

be

constructed

If the components of
along

with

these dwelll..g

involving an

amount

of

infrastructure developments are
units

which are

essential for

civic life, the investments needed would be four to five times of the
additional housing cost estir' ated.

....12

12

1

In the education front, the additional expenditure on primary educa-

tion during 1981 and 2021 is estimated to be around Rs.419 billions for
If one-fourth of this is to be spent in urban areas

the entire country.

based on present population ratio, the expenditure would be around Rs. 100

And

billions.

on

middle

school education,

the

figures

are

out

worked

areas it would
to be Rs.236 billions for the entire country and in urban

On medical and preventive health including nutri-

be about Rs.60 crores.

tion the actual expenditure was Rs. 19.28 billions in 1981
per cent of the GNP.

which was 1.86

This expenditure is expected to increase to Rs. 135.36

billions by 2021, of which one-fourth, i.e., about Rs.33 billions would be
in the urban areas.

financial

The

slum dwellers are

implications

mindboggling.

allocation is very wide.
for

slum

improvement at

of

improving

the

living

conditions

of

The gap between the demand and the

For instance, in the seventh plan, the allocation
the cost

of

Rs.500

per

capita

for

estimated

slum population of 40 miilxons should have been of the order of Rs.2000

crores.

But the actual outlay made was a meagre amount Rs.270 crores.

The neglect

of

urban development

is evident

from the fact that if the

same amount of Rs.500 per capita for urban development works is taken
which is on very low side the outlay for total urban development sector
should have been Rs. 10,000 crores but the actual allocation was just about
Rs. 1,800 crores - grossly inadequate outlay.

....13

13

New Deal for the Urban Poor

The National Commission on Urbanisation recommended that ameliorai

tion of urban poverty

should be accorded the same priority as is being

given to rural poverty.

It recommended that urban community development

should

be

the strategy for the improvement of

the urban poor.

the living conditions of

To ameliorate the urban poverty, it recommended a thirteen

The package

point programme for implementation during the next decade.

outlines interventions and strategies in the areas of income and employment,

1

shelter,

basic

services,

The

thirteen-point

new

system,

public

distribution

de''1

recommended

by

the

social

security,

National

etc.

Commission

on Urbanisation are as follows:
of

employment

training

for

urban

poor

and

National
youth.

2.

National programme of credit support for expanding mici o-enterprises
and technological upgradation.

3.

Micro-enterprise
infrastructure
and production centres).

4.

Marketing development supports.

5.

New programmes of public assets
employment for the urban poor.

6.

Universalisation of Urban Community Development (UCD) and Urban
Basic Services (UBS) activities.

7.

Educational support for extension
and child health services.

8.

Intensification of
working women.

9.

Slum improvement, shelter upgradation, sites and services schemes,
land supply, tenurail s . _urity and facilitation through participatory
approaches and NGC wolvement.

I
I

programme

1.

non-formal

development

creation

of

support

for

promoting

familyplanning

education

for

(marketing

school

and

wage

maternal

drop-outs

and

!
....14

14

10.

Extension of public distribution system.

Ik.

Extension of the family security programme.

12.

Support

13.

Support for training and action research

of

innovative

programmes

voluntary

for

agencies.

in urban poverty.

The commission suggested that the city planning should be geared
to provide shelter and sites for employment generation programmes.

Local

bodies should be supported in their efforts tc create special employment

facilities.

It

recommended wage employment

provided through programme

for

the urban poor to be

for creation of such urban assets as water

supply, drainage system, land development, etc.

The programme package will require an outlay of Rs. 10,750 crores
The break up of finances needed for the

over a period of five years.
New

Deal

to

provide

crores needed for

is Rs.2,500

loans

through

reindication

of

nodal

Rs.6,000 crores

ministry;

lending

priorities

of

financial

institutions; and Rs.2,500 crores as outlay earmarked for sister ministries.

1 nstitutional Changes

Alleviation

of

poverty

is

not

the

function

of

a

single

agency.

It has to become an orientation for all development departments so that

each

project

which

is

accepted

and

every

outlay

which

is

provided

is

examined in the light of what it means for both the rural and urban poor;
how does it help or hurt them?

How will its benefits reach them without

too much evaporation along the way?

....15

■

15

National

The

on

Commission

Urbanisation

recommended

that

the

Ministry of Urban Development, should be the nodal rqinistry to administer,

]

monitor and coordinate the entire poverty alleviation efforts. At the state

|

I

level,

NCU

the

that

recommended

the

development

urban

department

should be revamped as a Department of Urban Basic Services and Urban

Community Development with a separate division to look after UBS/UCD

programmes.

implementation

For effective

the

of

suggested the appointment of a senior Commissioner.

programmes,

it

also

Similar institutional

arrangement was also recommended at the municipal level.

It wanted central initiatives to improve the capacity of local organisations to implement the poverty alleviation programmes.
grammes

should

not

be

merely

token ones,

bux

should

The new pro-

be conceived on

a universal scale with a definite resolve to reduce poverty to 10 per cent
The UBS/UCD should be visualised as

I

of the total population ay

!

a common service arm of all development departments for the convergence

1995.

of services at neighbourhood and city levels.
I

Participatory Approach

From

of

living .in

the

foregoing it

is evident that the deteriorating standards

urban areas and lack of

a serious social problem.

minimum basic services constitute

This problem is assuming alarming proportions

both India and other third world countries.

Responses

to the

problems

of urban poor cannot brook any delay and need to be attended on a pi iority

....16

*

16

One alternative

basis.

approaches

this challenge lies in community based

programmes that

stressing

and

convergent

cost-effective,

are

This strategy is found to be viable as well as economically

participatory.

strategy

The

feasible.

to meet

emphasises

neighbourhood

a

planning as

suitable

strategy to elicit and strengthen participation.

Efforts are already afoot in the areas like shelter, sanitation, health
nutrition,

care,

For instance,
and

this

on

approach.

the building of dwelling units with community involvement

indigeneous

improvement

based

etc.,

generation,

employment

methods

programme

was

of

found

to

Hyderabad

be

very

effective

in
>

the

slum

has

become

a

model

for

which

other such projects elsewhere.

Provision

involving

present

sewerage

and

funds and organization

enormous

the

under

drainage

of

state

the developing countries.

of

traditional lines

facilities on

is

found

urban development

in

to

impracticable

be

India and

in

most

of

In view of the utmost need for better sanitation

in urban environment, low cost, water seal latrines are found to be cost
effective.

and

the

The traditional septic tank latrines costs about Rs.4-5 thousands
water-seal

l^Lrines are

designed

to

cost

Rs.600

to 800 only.

These latrines provide the needed sanitation which is in affordable range

of

the

low

income

people.

International

Organisations

like

the

\\ orld

Bank, UNICEF’ and the Central and State Governments in India are giving
more attention to these low cost sanitation projects in the post-1980 period
under various devel ipment schemes.

....17

I

17

In healthcare also a number of low cost solutions are being evolved.

For instance, smokeless chullas are designed eliminating smoke leaks which
potential

are

enough

eye

cause

to

respiratory

and

irritation

diseases.

These chullas also keep the kitchen clean and saves excessive use of firewood

and

The smokeless chullas are affordable

cowdung cakes.

in the

sense each unit costs about Rs.50/-.

Providing
materials

i

nutritious

is another

with

'‘nod

areas

cheaper

and

locally

that need fuller exploitation.

available

food

Educating the

people on the preparation and use of food with cheaper items likp wheat,
groundnut,

ragi,

the poor.

for

etc.,

This

can

help

in

maintaining

better

health,

especially

involves no financial expenditure but educative pro

grammes.

Immunisation

and

protecting

children

from

dehydration

are

vital

inputs in the child development programmes which involve meagre financial

For

committments.

of

at

least

of

the

diarrhoea is said to cause the death

one-third Indian children in the age group of six months to

three years.

that

instance,

diarrhoea

Of

the impressive 35,000 and odd child diseases, it is said

alone

constitutes

the childhood diseases.

roughly one-third of

In order to

the

total

incidents

tackle this dreaded disease, the

World Health Organisation has recommended the concentration of Rehydra-

tion Solution consisting of

jeose/sugar,

salt and

water.

This is found

to be very effective in the initial stages of the disease.

....18

«

18

The healthy living of any family depends to a large extent on the
health

of

most

the

women.

In

neglected

section.

women is essential.

f

a

environment,

slum

Hence,

women

proper

are considered
the

to

attention

to be

health

of

Better nutrition, with cheaper methods, birth spacing,

breast-feeding, etc., are to be encouraged by proper education which involves

lesser funds but more committment.

Raising the income levels of the urban poor is another vital area.

Skill development among the urban youth, providing channels for marketing
like urban cooperatives, and adult education,
which

help

can

in

the

improving

income

etc., are sor/te of the areas

levels of

the

urban

poor.

*
In all

these efforts, participative approach is vital.

Unless people

are involved and convinced about the advantages of the low cost solutions,

the

amenities

provided

the desired results.

are provided but
I

low cost

the

be

well

unused

due

need

more

educative

attention

Seventh

received

and

Plan,

on

urban

to

poor

bad

maintenance.

and

on

awareness

these

lines

with

achieve

special

Moreover, the
programmes.

is

given

in

the

In the Urban Basic Services Programme launched

an

integrated

view

was

taken

participation and convergence of services as central themes.

programme,

not

may

For instance, in a number of cases, community latrines

Seventh Five Year Plan.
during

not

remain

solutions

Increased

may

emphasis

with

community

An integrated

on women and children and an

institu-

tionalized organisation for community participation in the form of neighbour-

....19

t •

19 :

hood committees were the major facets of the scheme.

programmes

are

for

the

personnel

participation

is

the

organised

Well-knit training

engaged

in

this

programme

and

sustain

to increase their efficiency.

Community

essential

services.

But

to

key

organise

the

implementing these approaches, one should

before

be sure of the political commitment and the administrative
the strategy to alleviate the problems of the urban poor.

to adopt

will

No doubt there

would be a few critics who argue that this approach would,only be offering

second-rate services.
gain

expertise

supervision

United

ultimate
I

to

all

the

make

supervision

the

overcome

problem

Nations

this is a mistaken notion.

experience

with

will

bureaucratic

But

system

Community

responsive

This

resources

which

approach

of

development

for

a

better

life,

is

it

to

to

provide

planning

and

needs

than

local

would

help

also

would

technology

high

its resolutions in

in one of

purpose

people

more

control.

and

of

training.

and

Community workers

to

entail.

1970 resolved that "as

increasing

is essential

opportunities

to expand

and

improve lacililies for education, health, nutrition, housing and social welfare

to

safeguard

the

environment".

In

another

resolution

adopted

1976,

in

the United Nations urged the developing countries to incorporate the basic
S' ! ; ices

concept

strategies.

Since

and

approach

developm

into

the

national

is India's goal

and

development
since

plans

and

it cannot extend

expensive services to all its people because of costs involved participatory
approach

becomes

imperative

to

extend

-:oOo;-

basic

services

to

urban

areas.

■

URBAN SOCIAL INDICATORS

(Dec* 1988)
INDIA

ANDHRA PRADESH

ORISSA

A. DEMOGRAPHY
1.

2.

B.

Population 1981 (Lakhs)

Total

6851.85

535.50

263.70

Urban Total

1597.27

124.87

31.iO

identified 1981

279.05

28.58

Estimated 1990

512.28

38.07

10.60

Total

57.40

51.99

54.77

Male

65.83

61.89

65.13

Female

48.82

41.55

42.72

Slum population
>

2.82

EDUCATION

% of urban literates 1981

C.

HEALTH

1.

Estimated Annual Birth Rate
1985 (per 000) Urban

28.1

30.2

28.3

Estimated Annual Death Rate
1985 (per 000) Urban

7.8

7.3

8.1

l.M.R. 1985 (per 000) Urban

59

57

84

% births: Attention at birth
tor urban areas 1984 by untrained
professionals and othe.

28.9

25.2

52.1

2.

3.

...2

J
-V

2
INDIA

ANDHRA PRADESH

ORISSA

% population served 1985

3.

»
3.
I
I

- Safe Water Supply

72.9

52.1

58.1

- Sanitation

28.4

10.9

9.5

% below poverty line - 1983-84

28.1

29.5

29.5

(Official estimates of 1987-88)

27.7

Plan outlay on MNP
(Urban slums) Rs. 10 million
1985-90

269.55

30.00

, 1.50

ECONOMIC INDICATORS

Per capita NDP (current parties)

1980-81

1557

1358

110

1985-86

2596

2184

N.A.

State Government’s expenditure
1982-83 - Health (includes)
Medical, F.P., Public Health,
Sanitation, Water Supply) Per capita 29

31

28

Lducation (includes) Art &
Culture, Scientific Services
& Research) Per capita

Soui cos:

57

56

49

1. India Urban Social Indicators - NIUA - December, 1988.
2. Report of National Commission on Urbanisation - August, 1988.

I

a

*

*

I

REGIONAL CENTRE FOR URBAN AND ENVIRONMENTAL STUDIES
CSMANIA UNIVERSITY
HYDERABAD.

5
r

INDUCTION COURSE FOR U.B.S. FUNCTIONARIES
16TH TO 25TH JANUARY, 1990

(BACKGROUND MATERIAL)
-

J

In collaboration with
UNICEF, SOUTH EAST INDIA OFFICE, HYDERABAD.

PREFACE

This supplementary volume of background

material on Urban Basic Services provides reading material
connected with the programme, philosophy and related
matters, objectives. roles of different functionaries,

programme components, etc.

■

■

The material provided apart

from giving some basic insights would also help and equip

the trainees to actively participate in the training

■

■

r

sessions•

4

JANUARY, 1990

D.RAVINDRA PRASAD

I

i

i

SALIENT

POINTS

OF U.B.S.

-

d.g.rama rau
CONSULTANT

I

1
7

REGIONAL CENTRE FOR URBAN AND ENVIRONMENTAL STUDIES

OSMANIA UNIVERSITY,HYDERABAD

no i a

U

1

1
J

f

i

URBAN

BASIC

SERVICES

To upgrade the quality of life of Urban Poor

AIM

especially Women and Children.
OBJECTIVES:

1.

Reduce infant/child mortality and morbidity.

2.

Increase learning opportunities for children
and women
Enhance the skills and capacities of women

3.
4.
5.

Empower people's capacity
Build Municipal capacity

CONCEPTS:
1.

Need based Planning and Management

2.

Ensure Participatory Process

3.

Area based Planning

4.

Empower people
Facilitate the process of self-reliance

5.

STRATEGIES:

1.

2.
3.

4.

r

Organise people
Enhance their awareness and capacity
Promote Collective Action
Encourage Community Self Management.

- 2

GUIDING PRINCIPLES :

The UBS Programme will operate on the basis
of six guiding principles:
Child and Mother Focus

Community Participation

Convergence
Cost Effectiveness

Coverage
Continuity
UBS PROGRAMME COMPONENTS s
1.

Primary Health Care

2.

Early Childhood Learning Facilities

3.

Women’s Economic Upgrading and Supplementing
Income

4.

Women’s Education

5.

OTHER INPUTS

WHENEERS

and GOBIFF

W— Water
H- Health
E- Education
N- Nutrition
E— Environmental Sanitation
E- Economic Support
R- Recreation
S- Shelter

G - Growth Monit 'inc
0 - Oral Rehydrauion
B - Breast Feeding
I - Immunisation
F - Food Supplements
F - Family Spacing
F - Female Literacy

i

-3NEIGHBOURHOOD COMMITTEES tHHC) ?

The Focal point of operation of the UBS Scheme is

the slum(Neighbourhood).

The Neighbourhood Committee is

located in the slum.

No ighbourhood Committee(NBC) assumes LEADERSHIP &
RESPONSIBILITY in the Basti oni SELF HELP BASIS, to improve

Social Well-being of the Community
physical. Education and L
with special attention to WOMEN & CHILDREN.
RESIDENT COMMUNITY VOLUNTEERS ;
To be constantly trained and exposed to new ideas
1.
Community also to be involved in training workshops
2.
DUTIES OF R.C.V^ ?

1.
2.

Visit neighbourhood regularly
M-i-prd all training & Orientation Programmes to equip
tS
Sr’capaclty to liaise between Agenctes/

Neighbourhood
e(3ucation activities
3. Utilise local resources
data
<------ related
r•
4. Collect child
Perform
health
c.
lucator
function
5•
6. Arrange referral services
7. Weekly dialogue
-5 for immunisation,
health education
-8. Organise groups
of
children
for
immunisation
work
9. nrepare list c—.. — --f Diarrhoea, worm infection, etc.
10. Help control diseases,
11. Assist matters thro’ ttalks & demonstration
12. Health & Nutrition
1. Encourage breast feeding
2 Growth monitoring by growth cnarts .
31 Assist Health workers in nutrition interventi

I

1

■

13. Deploy simple Audio Visuals
14 Render first aid
t
15* Treatment of simple wounds, dressing etc.

■

/J

4

PROJECT OFFICERS1 DUTIES
1.

Ensure personnel

2.

Arrange training to all officials including CO*s & RCVs

3.

To

1) Map

Prepare:

(2) Slum Profile

4) Organisation Chart

(3) Voluntary Organisations

(5) List of N.H C's

4.

Assign tasks to Community Organisers

5.
6.
7.
8.
9.
10.

Arrange Participatory training sessions annually
Help the monthly review by District Coordinator
Monthly progress reports to District Coordinator
Encourage new initiatives by N.H.C’s
Pay regular visits to areas
Documentation - Progress Reports, Case Studies,
Survey Reports, introduce reporting formats, etc.

11.

Monitor Various Components

12.

Ensure COs to report on activities completed

13.

Monthly project performance report to project
Management Committee.

T

5

COMMUNITY ORGANISERS
1.

Initiating and Sustaining Series of mini plans
for each Neighbourhood

2.

Leadership and skill development, arrange access
to services

3.

Regular house visits

4.

6.

Acquaint with 2000families
Conduct Orientation and Training Sessions
Ensure monthly Neighbourhood Committee Meetings

7.

Follow-up Neighbourhood Committee resolution

►

till satisfactory solutions are found

G

5.

i

DUTIES :

8.

Convey minutes to supervising officers, brief and

seek advice
9. Prepare area map
10. Get resident^ identify Volunteers
11. Organisation/Community Development Training to
Leaders
12. Ensure survey, prioritisation of needs, participatory
planning
13. First concentrate on activities.within'their reach

14. Help implement mini plans
15. Monitor process towards object!vesand targets
16. Keep supervising officers informed of Impending
interferences which need his introduction

17. Act as liaison between community & Project
Administration.

A\

>
►

►

6

DISTRICT COORDINATOR

Tasks

:

i

Responsible to
(i) Execute the UBS programme in the district
as per guidelines.

(ii)

Integrate and coordinate all development
efforts of related agencies and departments;

(iii)

Resolve constraints and conflicts in the
projects •

Responsibilities
I

:

t

1.
2.
3.

4.
5.

6.

7.

Study the programme policy and execute the
same.
Initiate and monitor UBS projects in selected
towns and districts.
Ensure policy understanding by all concerned.
Initiate and arrange training programmes for
all the UBS functionaries.
Promote coordination and convergence of
services of various departments and voluntary
agencies.
To take prompt action to resolve problems in
implementation at operational level.

Introduce incentives for project personnel
and communities and ensure best performance
and participation.

I

Session 5.5
transparen^/1^®0^

Zmplementation P^n

t

a

programme you will be doing

As part of the UBS
neighbourhood groups,
anising
such as or<3'
activities, related to
many things
implement
and
building of
' yelping people plen
education, capacity
ihildhbod
that there
health, early c1
from your experience
You know
facilitate
and
so
on.
I people
fieid-some would
acting in the
As every activity
< are many forces
it.
would hinder
while others
task
the
your
distinct features /
implemented has some
different for
to b0
would
be
forces
and hindering
’facilitating
at times they can be
however
/
activities/
1 different
....................

■

S overlapping.
implementation of

&

■

activities it is

For systematic
a„a analyse such forces

and plan steps

[important to identify
the hinderand weaken
forces
facilitating
the
tc strengthen

ing forces.
The following

1

plan
implemenRation
’

steps will help y°n
for every

to prepare an

UBS activity.

i-'»
-■'

Bl

ES

’

■ sgr* .s,
*

-='SW?F’'■t'

hHBHK..

gilt.

■'1 wl
"■W

E

-2-

1.

Name of the activity:

2.

Facilitating and Hindering Forces

Make separate lists of the

factors/forces which would
facilitate and hinder the implementation of the abovementioned activity.
il

2A. Facilitating forces
a
i

b>
c
d
&

2B. Hindering forces
a
■b

c

4
1*

d
e

p

3.

?!
I

In the space on the left above, rank order the forces on
on the basis of the strength with which they will affect
he process of implementation. The one which will affect

-st .m be given Ko.5, the next Bo,4 and so o„.

I

*

f--'

-3?

4.

Now review the two lists and underline those forces
which seem to be the most important for effective
implementation of the activity, and which you think
you might be able to change, either by increasing the
power(for a facilitating force) or by reducing its
strength(for a hindering force).

5.

Now, for each hindering force you have underlined, list
some possible action steps which you might be able to
plan and carry out to reduce the effect of the force
or to eliminate it completely. Brainstorm and list as
many action steps as possible, without worrying about
how effective or practical they would be. You will
have a chance
later on to decide which are the most
appropriate.

i

i-

Hindering Force A --------------------Possible action steps to reduce this force
4**-

fE

..J

i
ii
iii

iv
V

f

Hindering Force B --------------------Possible action steps to reduce this force

I

i
ii

jr -

j
*

iii
iv
v
and so on.

I

6.

Now do the same with each Facilitating Force you
have underlined. List all the action steps which

come to your mind which would increase the effect
of each of these forces.
Facilitating Force A

Possible action steps to increase this force
i
iii
iv
v

I

Facilitating Force B-------------------- -

Possible action steps to increase this force

I
?
I

ii
iii
iv
V

fk
I’

and so on.
7.

u

I

List the steps you have underlined,
Then for each action
step list the personal difficulties,
the skm, outJide-jiifLGuLs"::;:,
outside difficulties c - e;?-hScX"^v?„
St S“ctS tOAr
er=»“. these difficulties
overcome
difficulties Sd'“r Ltylyou estimate to take

Action steps

Personal
difficul
ties

Outside
esources
difficul required
ties

Estimatedl
time

L
-

1
g

I

SMiinP*

--

I
i
•1

Session 9.1
EXERCISE

i

Diagram 1: One-Way Communication

I

Instructions

I

Study the series of squares below, With your back
to the group, you are to direct the participants in how
they are to draw the figures, Begin with the top square
and desribe each in succession, taking particular note of
the relationship of each to the preceding one. No questions

are allowed.

I

L

111
i J IB

OB.:-

■

.

T

i

Session 9.1
EXERCISE
Diagram 2 : Two-Way Communication

Instructions
Study the series of squares below. Facing the group*
you are to direct the participants in how they are to draw
the figures. Begin with the top square and describe each
j
in succession, taking particular note of the relation of eac^
to the preceding one. Answer all questions from participants h
and repeat if necessary.

*

'i
*

*

i

ri
i

£
*

*

i

5
u.

INDIRECT
EXPERIENCE

mental

LESS
LESS
SENSES EDUCA
TIVE

PASSIVE

IMAGINARY

LESS
remem
bered

NO
RESPONSIBILITY

4"
i

j
•s

—

4,
DIRECT
EXPERIENCE

PHYSICAL

MORE
MORE
SENSES EDUCA
TIVE

ACTIVE

WITH PROOF

WITH
REMEM^
RE S PONSIBILITY
BERED
FOR LONG
TIME

Magy-r?;

kL''

J-

Module 10
DOCUMENTATION FORMAT
(For the Project Officers)

lote: Broad outline for documenting your part of Fie Id-Work

experience.

You have to explain the process only.

Supervision of the Field Work of Community Organisers
Methods adopted for supervision.

ii

iii

Identification of areas where guidance was provided.
Forms of guidance and help given to COs.

Monitoring of the Progress

i. Methods adopted to monitor the progress
ii. Brief report of the progress made.
iii. Suggestions to improve monitoring process.

Coordination and Linkages

ii.
iii.
iv.
v.

Methods adapted to coordinate and establish linkages.
List of the agencies/organisations contacted.

Response generated.
Outcome of meetings.
Suggestions o to improve coordination.

1

Modu 3 10
DOCUMENTATION FORMAT
To Document Casos on Programme Components
(For the Community Organisers)
Note: Data have to be collected from 25 households from your
bastis. Cite examples, wherever necessary.

i
t

|
t

Immunisation
- Number of children in the age group of 0-1 yr.
- How may have been fully immunised?
If not immunised, why not?
- Do they know about the schedule of immunisation
arid the places where this facility is available?
Identify the hindering and the facilitating forces

with regard to immunisation.

Diarrhoea Management
At the time of survey:
How many children were suffering from diarrhoea?
For how many days?
What do the parents do to control diarrhoea?
Do they feed the children-If not, why not?
(Tell the parents about home remedies and the
procedure for preparing the oral rehydration
solution. Follow-up after two days).
AsR :
•Did they use any home remedies?

If yes—Did they help?

If not, vzhy not?

2

A
Pre—SghooI education

- How many balwadis are there in the basti?
- Number of children (2-6 yrs,)not attending any
pre-school centre.
- I'Jhy are these children not attending a balwadi?
(According to the response probe further).
- Observe the balwadi in the basti and critically
evaluate its functioning.
i

Environmental Sanitation

i

Observe the general environmental conditions
and list out what y Qu think are the causes for
such conditions.

Ask the households:

What they think are the causes for bad/qood
environmental conditions.
Can anything be done to improve the situation? if
so, what?

Whodo they expect will do the job?
Can they Ho anything about it?

T

I

Mod* te 10
DOCUMENTATION FORMAT
To Record NPP Activities
(iur the Community Organisers)
part of the FieldNote: Broad outline for documenting your
Work experience.
the relevant
Only the probers has to be explained using
framework.

Entry into the Community
a.

b.

t

c.
I

d.

r

Fixing time for meeting the people
Methods adopted to contact sections of the
community
Talking with the people-explaining the purpose
of your visit, seeking cooperation in the Programme
Understanding their needs, feelings and problems.

Selection of the RCVs
--- selection
be

Method of selection
Briefing of the selected P-CV

c.
(3.e • Linking RCV with the Programme.

J

fI 7

2

Or iev.-i3 4-ton

a.
b.

of the Selected RCVs
informing them
i about their selection
Knowing their jneeds/problems and^points
of
view

c.

Informing and educating them
shout the
Programme

d.

Discussing with them.
Programme

e.

f.

their role in the

Discussing their

expectations from you
Training them for the survey.

Survey of Households
a.

b.
d.
e.

Explaining the purpose of the
survey to the RC’
Explaining details of the
survey to them
LogistiCs of the survey
Problems encountered in
t the! survey
Suggestions to improve
the ;survey work.

I
/

3

Community Organisation
Based on your observations and earlier inter
action with the community identify the factors
facilitating and hindering the process of
organising people. Suggest ways to overcome
problems.

Ask the householders:
- Is it necessary to get organised?

- What they think are the reasons coming in the
way of organising people.
- What should be done?
- Compare your analysis with that of people’s
opinions.
r

I
I

/

W'
-

11 1 II

K

I!

Session 11.2
discussion framework for the trainees
Problem Diagnosis
Recall discussions under Session 11.1

about topics/themes and

feelings/attitudes.

have to
Using the following formal you

discuss in your small

group the assigned NPP activity.
i below from a case study.
An example is given
to the people, we called
Fxtracts "After giving prior notice ' ; to select a represen^meting of one of the nexghbourtooae
; usual because people do
tetive. The meeting sterted late as and call them out of
not come on their own, we have to go
their houses".

I

RE: ORBING FORMAT

I __

Feelings/^ttitudes

Topics/Themes

rds/Sentences

Theme s

written in the
'Jase study)
1.Selection
>>:ample;
meeting
We called a
Seting..........
ii.Attitude
“if their houses
of the
community

I

iii.Attitude
of,the ■
Organiser

.

Problems
identified

Words/Sentences Attitudes

■as Usual'

’do not
come
on their
own1

----- . lack of interexasperation est in the
(tired community
ness
lack of faith
lack
on the part
of
of the CO in
interest^^ community

lack of
respect

t

I

i

’ ■ thoroughly and^carefully bring out
Examine the
case
mentioned in the- recording format.
points as i..

I

I

3: uuMmfe- •

iii

■1

ii 2 u

Session 11.3
HANDOUT
INVENTORY OF DESIRED ATTITUDES

I
Instructions

Community Worker.

to rank the five char'
istics in order of importance (1 is most important:5,least terimportant)•
*

I]

Which five of the following characteristics are most
important for a Community Worker ?

initiative

? •.9e.neralis^d experienc

interest in people

specialised experienc

well organised

•sense of humor

awareness of

good socialiser

i

local politics

i

i
i 5

intelligence

respect in commun-’ty

emotional stability

financial independence

cultural interests

physical health & vige

•.loyalty to community

....grasp of local issues

I
>I

I-

u.

ii

1

I
■a

FACTS FOR LIFE
A COIMUNICATION CHALLENGE
'rhe Top Ten Prime Messages

i1
1

Timing births:

can be significantly improved by spacing
births at least two years apart, by
avoiding pregnancies before the age of
18, and by limiting the total number of
pregnancies to four•

1
22

-■>3.

Breast feeding :For the first few months of a baby’s life,
breastmilk alone is the best possible feed
and drinl. Infants need other foods, in
addition to breastmilk, when they are four-

5.

I

1
1

$

to-six months old.
4.

a

l

Safe motherhood:To reduce the dangers of childbearing,
all pregnant women should go to a health
worker for pre-natal care and all births
should be assisted by a trained person.

:■

'::'S

The health of both women and children

Child_growth

Immunisation

:Children under three have special feeding
needs. They need to eat five or six times
a day and their food should be specially
enriched by adding mashed vegetables and
small amounts of fats or oils.

:Immunization protects against several
diseases which can cause poor growth,
diability, and death. All immunizations
should be completed in the first year of
the child's life. Every wcman of child
bearing age should be immunized against
tetanus.

(

‘S
2

6.

Diarrhoea

Diarrhoea can kill by draining too much
liquid from a child's body.

I

So the liquid

lost each time the child passes a watery
stool must be replaced-by giving the child

plenty of the right liquids to drink-breast

milk, diluted gruel, soup, or a special
drink called ORS. If the illness is more
serious than usual, the child needs help
from a health worker-and the special ORS

drink. A child with diarrhoea also needs
food- to make a good recovery.

7.

*

Coughs & coldssMost coughs and colds will get better on
their own.

But if a child with a cough is

breathing much more rapidly than normal,
then the child is seriously ill and it is f

essential to go to a health centre quickly.t
e A child with a cough or cold should be helf
i
8.

Home hygiene

to eat and to drink nlenty of liquids.

:Many illnesses are caused because germs entf

the mouth.

This can be prevented by usingj

latrines; by washing hands with soap and,
water after using the latrine and before
handling food; by keeping food and water

1
>

clean;and by boiling drinking water if it ii
not from a safe piped supply.

9.

Malaria

Illnesses,, hold back a child's growth. After
an illness, a child needs an extra meal eveij

day for a week to make up the growth lost.
10.

Aids

I

: Children between the ages of six months andi
three years should be weighed every month. ■

If there is no gain in weight for two month}
something is wrong.
(UNICEF,UNESCO,WHO)

■

t

■

I ■!

MOTIVATION A^TD COPLMUNICz-<TION TL7-CUGL

I

L'DIO VISUALS

r)ftG..Rccna. Ran

LEARNING EXPERIENCES :
Knowledge and skills are developed through learning

K

experiences, which may be classified b

Uu-e'

types.

By use of verbal symbvj s

W’;f
t

R- use of observation

2<.
3.

lesrning by doing

Well remexbered c-nd perfect

_rantr^v

e Oxxr

practical experience,.

Learning baVes place through sense organs

Ono learns{

75% by seeing,
13% by hearing

6% by touch
3% by snell
3% by taste

U.. i
I1

(Dr„IeRo<?-eiQ--ies Bouz 1 s Note to UNESCO:)
t

ATrT^TC

M.

w

<-

; 1I

To attract ,ar.d arrest =ittenti
To create and .sustain in'cerec\
To teach an aspect vn ti. e’e.r.-. ry
To motivate pec '1e to think anc
For local armourc.-m^r-ts -nd act
Visuals s
Audio 2

I

Lilms, Film str ips. Slides. 0.?o:-r,oAd
Projector, Euxletin Board, Flasn
kad’e. Records, Tape rtuondor
Rvmr. ing Commsntaries,. -etc c

I
I

Puppets,

P .7k d System.

Audio-Visuals s T .>V« / Video, rrotion picture.

I

I
I
is

-

—IF

,• ...

■O

"W

S'

CONE

OF

EXPERIENCES

(By Edgar Dale)

*SUALS

Symbols
PHOTO RECORDS
RADIO
CINEMA

TELEVISION
VIDEO

EXT!BITIONS
FIELD

1

VISITS

D E M 0 N S T R A T IONS

\

DRAMATISATION

CREATED

REAL

\

EXPERIENCES

DIRECT

EXPERIENCES

-------- -X

Session 14.1
FOLLOW-UP x-IATERIAL
Monitoring the UBS Programme

What is Monitoring?
■

Monitoring is primarily a device ror improving
programme management. It usually refers to the process of
routine periodic measurement of programme inputs, activities
and outputs undertaken during programme implementation.

I•W

Monitoring is normally concerned with:(a) procurement,
delivery and utilisation of programme resources;
(b) adherence to wprk schedule; and (c) progress made in the
production of outputs, Although primarily concerned with
programme performance, monitoring aims at determining the

I I

relationships
following causal rel^ti^^
1’2:(a) the relation between
programme inputs/activities and outputs; and (b) the
influence of external constraints/support-factors on
programme performance and outputs.
i

Why Monitor?
fhe main purpose of monitoring is to indicate as early

as possible any short-coming with regard to delivery of inputs,

execution of activities or production of outputs, in order
g

that corrective measures can be undertaken in time.
When do Monitor ?

Monitoring should be a repetitive process because programme

results are produced throughout the life cycle of the programme.
The results are influenced by factors and forces operating in all
programme phases. Thus, in order to determine precisely which
elements contribute to or impede the progress of the programme,

a steady flow of information on its performance must be
obtained. This means that the monitoring should be carried on

continuously throughout the life cycle of the programme.

k H‘ *; *•
■■

t?'

’’

■

fl
ml

■

I

:: 2
How to Monitor ?

To be a

successful and effective
tool for decision
making
by providing a
continuous flow of
relevant data,
a monitoring
system must be designed
and established
as an integral
part
of the Progranrne
process. Answers to
the follow! ng series
of questions will
help in establishing
a workable monitoring
s ys tern ;

What are the norms
and outcomes

li.

eqainst which the
programme p er f ormance
would be judged ?

What information

has to be obtained in

order to make
decisions for course
corrections on the
programme ?

I

Hi. What is the
luformation

methods ?

1

i

Where ?

to be collected ?

.nen ?

IVr

How should the data be
analysed ?

v.

To whom should

vi.

By which

the findings be

reported ?

and

Who will monitor ?

I

<

How to Monitor the UBS

n
■

i

Programme

The objective of the ubs
quality of Hfe

of the urban

Programme is to improve the

poor, particularly that

of women
To achieve this objective
and to ensure that
the process of change makes
people self-reliant. the Programme
and children.

»

""'i

SERI
ww ■ ' "

ss 3

depends heavilv on community participation.
order I

the progress. it is pertinent to get

information on both the
I

Therefore, in

qualitative

and the quantitative

changes which will take place in the community because of

implementation of the Programme.

The following methods have

been evolved to monitor the UBS programme.

Periodic reports by the committees at all the five
operational levels:

national level.

basti, district, state and the

The reports will be submitted on the

standard format circulated by the Town and Country
a

Planning Organisation (TCOP).

A Critical Incident Record (CIR) will be maintained by th

ii.

community organiser which will help hin/her to keep a

s

vigilant watch over •che development of the Programme

!

and

of the review
to call the attention of the members

I

committees to what is happening.

I

The CIR, besides

help in documenting the
helping in monitoring will also

I I

entire process
Programme.

of planning and implementation of the

(A copy of CIR format is attached).

4

Monitoring Process
reviewing the UBS programme
The process of monitoring and :

on :
will be oriented to focus specially

:: 4
Achievement of physical targets
established by each
project at the beginning of
C'ach year;
ii.

Constraints that need solution;

iii. any discornibl
e impact seen as
ventions, for

and
a result of project inter

example, change of people’s

school attendance
taking children

attitude towards:

by their children;

to the health centre for immunisation-

involvement in local self-help actions;

and

maintenance of common amenities.
iv.

h

v.

need for revision of targets;

and

need for cours e-c orrec tion.

Periodic Reports
■

The Programme will be

man agcd and mon i tor cd by a

hierarchy

of committees formed

at different levels to discuss the
progress
reports prepared by the
Pr ogr amme f unc ti on ar i es .
Monitoring
formats have been devised for
this purpose keeping in view
the
monitoring mechanism at all the
operational levels. The
formats are in three
parts, each dealing with details as
given below :

I
i

■

I

1

I

:: 5 : s

Part

I
Problems encountered during the? month that prevented the

completion of the task

planned for the period.

■ I
I

ii.

Statement of major achievements resulting from the
conduct of the activities listed in part II

of the format.

iii. Directions and guidance from the Committee constituted

at the respective levels that would help avoid recurrence

?

of the constraints.

iv.

Major activities scheduled for the next month as well as
the expected outcome.

Part -II
j-he targets establis ^a-d fcr each of uhe activities

achieved during the month.

ii.

Reasons for any differences between targets and actual
performanc e.

I

I

Part - III

I

This part of the format contains the financial statement

that has to be reported.

I
s

i

Monitoring will be done simultaneously with programme
implementation and will be done by the people, the Neighbourhood

5: 6 : :

Volunteers/ and the UBS staff.

The Programme will be managed

and monitored at the following five operational levels :
A monthly progress report will be prepared by the Commu-

nity Organiser consolidating all the UBS efforts made in
the basti.

The report prepared at Basti Development

Committee (BDC) level will provide a basis for discussion

"the monthly Project Review Committee where the progress
will be reviewed against the annual targets laid down

in the Plan of Action.
ii.

Monitoring at the project (town) level will be the

responsibility of the Executive Officer/Commissioner of
the municipality.

The Executive Officer/Commissioner will

submit a monthly progress report to the District Collector
with a copy to the Ux\iICEF zone office representative.
iii. At the district level/ the District Collector will ensure
that the Coordinator submits a monthly project report to

*

him and the district review is held with the Chief

I

Executive Officers of all towns and a progress report
is sent to

the Director/ Municipal Administration/ or

a bi-monthly progress report is sent to the State
Secretary (UD) .

iv.

At the State level the UBS review will be held once every

four months.

v

The Secretary (Un) will send a monthly D.O.

I
<

: 7 ::
letter forwarding the consolidated progress report
received from the Collector, with his comments to

the Ministry (UD) and the UNICEF

v.

zone office.

An annual review will be held at the Ministry level,

i

chaired by the Secretary, Urban Development.

I

national level Steering Committee will also meet once

The

every four months.

Critical Incident Record
An analysis and follow up of the critical incidents

entered in the record will allow the Programme to take on the

form that will work best.

Therefore, the recording should be

objective and of what did happen so that it can depict a
realistic picture of the Programme.

•jf

An accurate portrayal

of the Programme will also be useful to those who plan to
adopt or expand the Programme in future.

i
4

*

For example. Critical Incidents can be:
at the Planning Stage

A discussion in the community on the credibility of the
Programme and the C.O.
- The process people adopt to select a volunteer.
- BVM meeting to decide on the activities —How a decision
is taken etc.
at the Implementation Stage
-

j
A fight over the site to instai a handpump.
People’s impression of the immunisation camp etc.

i

I-

i
i

:: 8 tS

The Commun i ty Org an is er (CO)

will be the func ti on ary

responsible for recording the incidents.
The incidents should
be recorded in the format
given in Anncxure I.
He/she should
keep the following points
in mind : '
4

i.

Critical Incidents have to be
recorded in the context
and process of
programme planning and implementation.

ii.

Only such significant

r

■

!
<F

incidents must be

recorded that are
considered critical for the achievement
of the goals and
improvement of the Programme.

ill. A CIR

should be prepared for each

neighbourhood even if

the incidents are conmon.

iv.

In many cases the CO

would be assisted by the Community
Volunteer (cv) who would have direct
contact with the

community.

They are likely to observe

incidents and report to the C.O.

such critical

In such cases the CV

would need continuous training to enable them
to be

sensitive to observe and give a feedback of the

important incidents -both negative and positive.
therefore/ be stressed here that

It mustz

there is no right or

wrong incident-all such incidents which
are considered
critical for programme development and improvement
are
important.

I

I ►

►

*

. —-—j—

• •

s : 9 ::

1

v.

The- incident should be immediately recorded.

vi.

It should be realised that it is the CO who would be

responsible for recording authentic critical incidents/
such that they can be verified.
vii. At the time of preparing the committee report/ the CO

should carefully go through all the incidents/ which
happended in various neighbourhoods/ and pick the ones

which have been reported most frequently and commonly.
A summary of such incidents" should be included in the

report to the Project Review Committee.

I
i

i

r

10

Annexurel
Critical I .cident Record

Place of Observation
Date

Time

Incident :

What happened?
i

Main persons involved
in the incident:

Sex

e Age

Why is the incident important?

Did you observe the incident yoprself?
If no, who reported?

Yes/No

Did you verify the incident^

Yes/No

What was the

?.2 of the observer when the incident took place?

Suggested action.

-I

2- Io

I

/i

ORIl'NTATJON TRAINING ON S.I.P

URBAN COMMUNITY DEVELOPMENT PROGRAMME
ITS ORIGIN AND GROWTH

Talk by

d.g.ramarau,

f

t

URBAN COMMUNITY DEVELOP WENT (UCD) PROGRAMME^

ITS ORIGIN AND GROWTH
the
of the origin and growth of
will give you a brief glimpse
wide
Hyderabad got
project,
The U.C.D.
programme.
U.C.D.
just
All of you know it is not
over the wor.ld.
all
publicity
it is a project with certain depth,
any. ..other pro ject
1 ike
great
It brings with it the glory of its
philosophy and glory.
about
So it will be worthwhile knowing something
achievement s.
Most of you arc engineers,
this comm unity development programme.
All of you must
planners, administrators and accounts officers'.
I

become community development workers.
You should know what is this all about.

its

background.

You know something about

the surface and
You may be also able to see

if

I
be more helpful.
you know something what is inside it, it may
briefly about the origin of U.C.D, how the
am going to touch very
it has developed into so many branches,
first U.C.D. started, how
are ,
whole community development project
where the roots of this
this community
and then how
how deep and strong are the roots.,
from Hyderabad and elsewhere.
development has spread far and wide
Community
that U.C.D. is like a big banian tree.
say
can
I
improve the
development
is a process where people undertake to
of life of the community, through their own cooper ation
quality
Wo can write volumes and volumes on this community
actIon.
a nil

developmont.
. . .2.

r
■ 1

-2VJh a t

When the project

happened?

and

done and how all this has grown

have

they

Really, according to

Then

Municipal

project

'what are we all for?'

What is the role of a catalist?

catalysts.

programme'.
programme.

the definition, it is a people ’ s

question may arise

Che

o£

Corporation

people’s

under that we wrote 3 words ’A

Hyderabad'

all

was launched, we published a pi a in pl et

' UCD

title

the

gave

what

and

We are

all

is

one

A catalist

is a change agent .
it
which accellerates the process of change;
Officer,
change agents. You may be the Project
We arc .«□ 11
Accounts Officer, Office Assistant, or so
Engineer , Town planner
We help this process to
and so; but all of us are change agents.
all
ar?
We
for rapid progress.
it
accellcrate
and
happen
t*o take place very
from this side to help that process
partners
We are all catalysts.
This is Community Development.
smooth]y.

Organisers

The Community

The

Community Organisers are’ helpers.

a nd

al 1

of us are working in the community development

We

a re

all

helpers.

We are all

'sahayaks'.

project.
Che

Originally

designation was Basti
present Slum Develpment Officer's

Sahayak.

of

working,

Of

afterwards

course

i.e., after 5 or

10

years

designation has been changed with the same role; he is now called
as

' Slum

facilitator ,

he

enabler,

he

is a community

development

worker.

Community

instead of them.

how to develop.

a

He is an

development worker is one who works with the people, but not

or

is

Officer'.

Development

We works with them, so that they may

for

learn

We put them in the process and in the process of

. . .3.

-3
their

development we work with them as catalysts.

actually

But

who change are the people themselves, who develop are the

people

t hemselves

people

and

the

whole thing' is to be

done

by

the

themseives.
The re

is

a Chinese proverb,

train him in fishing".

ii

Don’t give him a fish to eat,

but

What happens if you train him in fishing?

If

you give a fish today, he will eat, he will become

and

he will become dependent on you.

for

you.

a

beggar

He will be always

waiting

Our intention in this programme is not to make

people

beggars

or

reliant ,

stand on their own legs, it is a

development

process.

But

training

They

live

and

He also knows how to live; you make

them

by

siaves.

This programme is

him, you can withdraw.

progress on their own.

learn,
what

to

make

people'

will

that is wuy we work with them but not for them,

we

process

self-

that

is

say in this Community Development.

So it

is

a

great

where

itself ,

where

the

itself undertakes the responsibility of improving

the

communit y
quality

of

changing

the

we

improve

the

community

So it is

a

process

of

way of life from traditional style

of

1iving

to

the life of the community.

modern way of living.

It is a method where they use their
own resources to develop.
It is a programme for public welfare.

It is not only this dry thing like
a project or programme method
or process .
It is a movement. Movement means a compaign.
There
is spirit in it. We do not call
everything a movement. If it
...4.

1

has

a

got

spirit

development
movemen t.

-4in it, it is a

movement.

co in muni t y

This

has got a philosophy behind it; that is why it is

See now it is growing far and wide.

a

It was started in

Ward 22 with a population of 48,000 people in 30 slums with 4,600
slum population in 1967.

Now it is covering the entire city, a 11.

wards , with a population of 30 lakhs in which there are about 760

s1 ums

now.

Coverage of slum population is 8.20 lakhs.

See

how

it has grown, it is because it is a movement.

Is ha t

is the philosophy behind it, w$iat is the

a Icraceed

so many people to come into it.

philosophy

whi ch

It is growing and

has come to stay; because this has got certain values in it.
.ire - One is self-help.
Thi s

philosophy

People have to help

is embedded in the whole

The

themselves.

programme.

We

just

motivate them ; it is self-help; always they should not depend
others .

They

themselves
them.

form

They

rogrami'ie

must

do

and

stand

on

their

own

legs.

into associations.

We help.

this

health,

education,

infrastructure

people

we

support

economic,

housing

They

and

development.

social , ’

part Lcipa.te

it it on self-help basis.

every

do

We are there

on

The

programme.

physical,

economic

them ,

it

the

to

whole

They
support

n'hat is what is meant by the principle of self-help,
In
i m-- unis a t ion ,
if they understand that immunisation is a need
of
their children, all of them will
come automatically.
If they do
feel
the need of the immunisation for their
children, why
should they come ?
They will hide and they will
put their
children in their houses and rooms, and
say 'nobody is here'.
It
amounts to our nodical Ofttccr , An.<, Community
Volunteer# UCD

. . .5.

-5Project

Officer’s .felt-need perhaps.

should

be the people's felt need; if awareness is brought

to

convert

it as a people’s felt need, your job is

will be after you.

people's
will

It is your felt

felt

It

about

over .

They

Housing, people’s felt need; road, water

need ; they will come, they will

participate,

need!

they will act aTso.

cooperate ,

So like that,

a re
t ley

it

a

is

felt-need-oriented programme.

In those days when the community development was started, we used
to

say

This

man
man '’.

'destination

philosophy

is

behind

i t.

Destination is not a community hall,,, destination is not drain, or
platform of a wo.1 1 , or Indian Mark II Hand Pump; this is not
des tinat ion.

Dest ination

eve 1 opinent is

’human development’.

is

'Man \ and sole

us

not

dwcl opment

forget it.

communi ty

programme

If these principles

the

are

action'

word than this, more powerful word than this;

is

better

word ,

in

this

process,

No,

par Cicipati ng.

If this is understood

develop ^ent-

pro ject ,

it

is a people’s

than

the

S . I. P

programme ,

use a

’community

communi ty

participation, as though it is somebody’s
programme - people

participating.

hun an

followed

i .e. , self-help, felt-needs, community participation I will

better

not

It is a people’s programme,

In this people’s

must take place.

of

If human development is

taking pl ace it is a waste of money.
J uC

aim

t he

we

are

•are
all-

we are doing the community

project

in

the

community
d e v e 1 o i '•ent programme, in the right
way - Community action, sei fhe 1 p1 cu-.d programme based on felt needs,
We are only Catalyses.
We must promote the
process of change to improve the
quality of

. . .6.

€

■:

-6life,

ultimately aimed at human development,

Then we are

doing

justice to our job.
With this great philosophy, this movement, was started in India in

the

early 20th century.

big

movement

Rabindranath

U.C.D. Hyderabad is a small chip

started* in our country

by

and Mahatma Gandhi.

Tagore

patriots

great

I will give

you

examples of this community development movement, ho^ it

a

like
some

started.
was de

in the pre-lndependent era when the rural society

Even

of

generating socially and economically, the partlots of the country
felt a great need for starting a programme of rural development.
■

In 1914 Rabindranath Tagore started Sriniketan and
programme

for

rural development.

There is

Government is meant for the public only.

only.

But

that

was

stinking/de-generating

always.

They do public

service

adequate

and

the masses are

and

our

supplement

government

In 1920 Mahatma Gandhi
has

given

constructive

construction.
develop

the

the

are

from

the

During that .period

are we not,having responsibility

So they started this programme,

effort

organisations started this

villages

suffering

three ills of poverty, disease and ignorance.

to serve our fellow beings *.

Shantiniketan

government

not

people felt that 'what is this?

>,

some

great

individuals

programme ’ ,

and

community development programme.

started his Ashram "Sevagram" in which
j

great

to

programme

called

’Mahatma

'Nirmana-karyakramam ’, for

he

Gandhi’s

rural

rc-

Volunteers go to villages to educate
the people,
women, lay roads to each village.
start schools,

•■V

i

::-j

•

-8The

VLW concept has come.

we

have now got the Slum Development Officers (S.D.Os).

On the lines of the same as V.L.Ws

N.E.S.

also a beautiful idea that emanated from Grow-More campaign.
During

this period Dr.Wiser started t&e Indian

Project

to develop agriculture an^i industry.

Village

Why

should Dr. Wiser or Braine or Spencer or Gandhi

all

these

people whom I am just citing as

lived more comfortable lives.

Tagore,

do

this?

They

would

They were not able to

sleep

examples,

They should have conveniently slept in their houses.
have

or

Service'

because they r It that they are concerned about the sufferings of
the masses around.

Coro.ing

to

So they started these projects.

the very recent and our own State’s

efforts,

remind you about the great man who Xs called Andhra Kesari

of Andhra) Tanguturi Prakasam.

the

Chief

Minister

of

development

scheme,

Firka

Tjluq ,

may

(Lion

He

started

is a part of the taluk

the

Firka

The Revenue Inspector used to

be

This is going to each Village, each family
and organisation
•
, 1 the lirka is taken as functional
unit for
i
development.

has

it

I

1948,,the Sarvodaya movement by Jayaprakashnarayan, and
developed into Bhoodan movement by Vinoba Bhave.

[

District,

incharge of a Firka.

In

J

He started a movement when he was

Madras state.

Firka and the Village.

I

Great

are associated with this programme of Poeple’s development.

...9.

I

this

men

F

I

-9In

1952,

started

in the first Five Year Plan, Community

by

Development

Projects

Jawaharlal Nehru and Mr. S.K.Dey was

the

Community

Minister.

of

community •

There

was

a

Ministry

development in the independent India, at the Centre.
was

a

Mr

S.K.Dey.

were

called

great

visionary.

I

am

I worked as a Community Organiser; at that time

we

Social

Education Organisers.

are deprived, and depressed.

Many

us

were

citizens

who

What- a great opportunity for us

to

and work with them.

And, this gives a lot

We

are

the lives of the

improving

of

this community development job

go

of

poor

suffering in poverty, ignorance and disease.
Youth

S.K.Dey

by

just serve and develop the people, our fellow

just

Mr

one of the persons inspired

inspired during that period to do

and

were

satisfaction.

pople

who

a re

We used to organise

Clubs, Mahila Mandals, Village Development Committees

Sramadans

i.e.,

cut the drains, make the

roads from main roads to every village.

effort.

roads,
roads,

and

and

approach

All this is the people's

Thus there was community participation.

In 1953 NES (National Extension Service) projects were started in

the

rural

Panchayat

community

development (CD)

Samithis

and

Zilla

programme

Parishads

under

i

decentralisation.

the

There used to be the C.D.Blocks,

Block Development Officer (BDO) and Extention

Agriculture,

Animal

Husbandry,

Cooperation,

Education, Engineering and th Social Education

is

the leader of the team.

resulting

in

democratic
there

were

Officers

for

Panchayats,

Organiser.

B..D.0.

They used to go to the villages
...10.

and

-10I

the

develop

villages -

a total

totality

approach to the

integreated development, am integrated

an

integrated,

development,

I

of programme, what we are now trying; here.

This is N.E.S.

about whether
By late 50‘s , there was discussion and controversy
Thus in
this approach could be used among the Urban poor also.
Development
1958 the^first Pilot, Project in the Urban Community
i
Foundation.
was began in Delhi wih the assistance of the Ford
This was followed in 1960 by another pilot project also with Ford
Foundation

in

began

assistance

in Ahmedabad-.

The

pilot

project

American

Frlends

third

1965 in Baroda with the help of the

Committee.

All of these projects were studied carefully by the government of
The third Five Year Plan had drawn pointed attention to
India.
the social and economic consequences of the rapid growth of Urban
Population.

Besides

envisaging

action

for

. orderly

the

development of towns and cities and for creating conditions for a

better life to the citizens, the plan laid particular emphasis on

the need and immense potentalities of Urban Community Development
Programme for bringing about social and environmental changes

Che

urban

introduce

committees .

pilot

The

planning

projects based on the

commission

in

decided

to

of

the

recommendations

Rur'al-Urban Relationship committee^ and in 1967 a series of

pilot

projects were initiated throughout the country by the Ministry of
Health

and Urban Development and Hyderabad project is one

them .

This is one successful surviving pilot project.

among

It is

no

. . .11.

/

t
-Il
in
It has now become a big department.
a pilot project.
functionaries >
the UCD, when it was started in 1967 there were 9

more

now

the., number

Rs. 80 thousands

360;

is
per

annum,

whereas

it

now it is

was

having a budget of

i

having a

provision

of

of
Rs . 35.34 crores for the HSIP-III project - a large programme
Like SNP, Housing,
UCD which has got some more programmes

I.C.D.S.etc.
Jn

in order to meet the growing demand from

1970

other

wards ,

projects for
some s ate!lite nrojects were started. Satellite
rd J7 Block !&/ v/LCh Che same staft
staff and extra u.oney from MCH ,
wa
of Rs. 15,000/- to give matching grants for starting women
a sum
child welfare activities, youth welfare activities and
1 fare 5
of
economic programmes and so many other small things, starting
classes,

pre.-primary
Though

initial 1 y

other

areas,

health programmes and

things.

these

all

Government could not expand the

programme

to

later

following

recommendations of an evaluation study by the Central

Government

a nd

due

to

financial

constraints,

being satisfied with the useful service rendered

to

weaker

ections by the UCD,.on the initiative of the MCH to meet 50%

l he

expenditure, Sdate Govt, sanctioned (2) additional

projects

which were started in ward 6 and 11 of Secunderabad Division
Ward 1 (Block 6 to 10) of Musheerabad, where the slum

was high.

of

and

populat ion

These projects covered an additional population of 1.2

1akhs.

Each of these two projects is staffed by a Deputy Project

Officer

and

a Community Organiser, who are from

the

original

. . .12.

|

y

-12team

in

workers

pilot
(0)

4

project.

social

Volunteers

workers for

were

each

selected

project

as

for

Social

i

community

Organisation.

Meanwhile

pattas

were given in 1974 and so housing
scheme had
been taken up; that is called "Habitat Hyderabad" with the threeHabitat Hyderabad”

fold

objective of housing, environmental improvement

economic

development.

Pattas are gitfen, loans

and

socio-

are arranged

and

plans are given by U.C.D.
Since

then

the UCD has been identified as
a programme for the
slum
dwellers.
Anything
for
slum
dwellers,
voluntary
organisations like Rortary, Lions and all
departments come and
work through the UCD and
UCD has become a tunnel through which
they can introduce their
programme to the poor. It has become
a
model agency for all the development
programmes for the urban
poor.
The National Commission on
Urbanisation, which has given
its report in August 188 has
recommended the U.C.D. approach for
the development of
the urban poor and urban
community development
hould become a common
arm of all development departments.
In

the process, tAe

project receive good

response both from the
MCH and Govt. as wel1 as
international agencies.
With
the help Of UNICEF from
1977. it has grown into
(9) projects
covering the entire
population of twin cities with
greater
emphasis on the .slums
and backward areas .
In 1979, U.C.D.' was
started in Municipal Corporation of
Visakhapatnam and later
in
Vijayawada Municipal
Corporation.
I

pcople,

...13.

I

1
-13to

trace

That is why I wanted to give just a glimpse of

what

The philosophy of

the

community development has gone into the history of humanity

i a to

it has grown so big and now it is very difficult

Thus

its origin.
it

is , let us not meddle with it easily.

Anthropology, a science.

the

that is what I wanted to say.

realised

slum

with

identified

that

So let us deal with it delicately,
After the Habitat, because it

was

it

was

use;

slum

and poor people in urban

areas,

going slowly in a snailspace is of no

improvement should go faster and there must be a master plan

for

slum improvement.
>

The MCH has taken up development of slums for systematic coverage
under the Master Plan improvement programme in 1981-82 9 228 slums

selected

under

this

like

metal

roads,

lines , storm water drains, public latrines,

water

wupply

a total cost of Rs. 492.63 lakhs.

But

including

Housing

programme

for

sewer

scheme

slums:

were

provision of basic amenities

and

street lighting at

due

to paucity of funds, out of 228 slums contemplated only

152

s 1 urns

sporadically developed like only one light or one

or

tap

one latrine or something is constructed and the Master Plan I was
abandoned.

It

istan impossible proposition if you go

at

that

pace with environment improvemental schemes funds of Rs. 15 lakhs
or

Rs. 20 1akhs per annum.

one

Master

government

pl an •

For the remaining slums, in

II was done in advance and it

of India for external assistance.

kind enough to

give it under

1983-87

posed

to

U.K.Government

is

was

its poverty alienation

prog ram ■ncs

. . .14.

4

I
-14and they have sanctioned Rs. 15.57
crores for HSIP II.
In 198990, the Master Plan
II i.e., HSIP-II with ODA
assistance of
Rs. 35.34 corres was taken
up and it is in progress.

I

wanted

deve1 opmen t
devel oprnent

to

tell

you ulCimately

programme.
which

I

Let

us

that

not

this

is

a

the

community
community

have told you very

bri efly.
HSIP is a
project in a programme.
You must be able to distinguish
between
a programme for human
development in which there
may be npmbcr of
projects like Housing project.
SIP. This is a project in
a big
process.
Even if this project is over, the
programme is t here
and the
process continues. Urban
community development is a
conii nuous process from
generation tp generation. So the
HSIP
must be in consonance with the
community development progr amme
which has got the main ai
m of human development.

In

conclusion? I must
say that five truths have emerged
this U.C.D. programme :
That

1.

2.

3.
4.

5.

out

Everyone has got a brain and he
can use it.
In
dcve] opment,
start from where they
and they will
'1 go where they people
want to go.

of

a re

People want change and
people can change
Any community, no matter how
somethin^
with i/c W‘' poor it imay be, will be able‘ to
conditions
of liJlng/
resources- to
-o improve its (owi I
You must ggo for outside
help only after exhausting all
resources at
-- your end.

~~o0o--

you r

D€V

TRIBES OF KARNATAKA
(A Brief About the Book)

“Tribes of Karnataka” is a document intended to be of use to
development workers and others in the field of tribal welfare.
It contains, among other things, profiles of over 100 tribal
communities of Karnataka.
The book is divided into two parts. The first part consists
of three chapters dealing with (a) concepts like tribe,
scheduled tribe etc. and a glimpse of the tribal situation
in India; (b) an overview of tribal Karnataka; and (c) protec
tive measures and welfare schemes of the Government.
The second part contains ethnographic details of scheduled
tribes and backward tribes (a category under the other
backward classes) of Karnataka. The profile on each tribe
includes such aspects as present status, population
distribution, origin, ethnic composition, economic life,
education and religion with specific reference to Karnataka.

^he focus is on the Scheduled Tribes who fer all practical
purposes represent the tribes of the State. The Scheduled
Tribes comprise of 49 communities amounting to 18.25 lakhs
or 4.91 percent of the State population. Also included are
61 semi-nomadic, nomadic, denotified and other tribes, who
are presently clubbed together under Backward Tribes and
listed as Other Backward Classes for the State.

i

The ethnographic notes contained in this volume are-through
secondary sources — the works of earlier writers, the Census
reports, the Backward Classes Commission reports, the case
studies on different tribes, etc. Though restricted to
Karnataka, the book has relevance to others as well, as it
contains material of general value. Besides many of the
tribes found in Karnataka are also found in the other
Southern States and parts of Central and Western India.
The contribution of this document lies in updating infor
mation and making it available in a single volume. Though
primarily intended for development workers, it is expected
to be a basic
source of reference to anthropolo
gists, sociologists, research scholars, demographers,
government officials and anyone interested in tribes.

JOSELYN LOBO

J)fV Z- %
i

GREEN HEALTH CAMPAIGN
KARNATAKA STATE CONVENTION
PROGRAMME
DATE

10th November. 1995

VENUE

Conference Hall, Sth Floor, Aran 'a Bhawan,
18th Cross, Malleswaram, Baagahre-560 003.

09.45 - 11.00

Registration

11.00 - 11.05

Invocation

11.05 - 11.15

Welcome address :
Shri N.V. Ramachandra Chetty,
Principal CCF, Karnataka.

11.15 - 11.25

Inaugural address :
Shri M.P. Prakash,
Hon. Minister for Rural Development and Panchayati Raj

,11.25 - 11.35'

Presidential address :
Dr. H.C. Mahadevappa,
Hon. Minister for Health and Family Welfare

i

r

11.35 - 11.50

Coffee

11.50- 12.10

Green Health - A Perspective :
Shri. Darshan Shankar,
Director, FRLHT

12.10 - 12.30

Green Health Programme and the Ongoing Development
Schemes:
Shri S.K. Ghosal,
Addl. Chief Secretary and
Development Commissioner, Govt, of Karnataka

TxCk feu
12.301-

------- n

12.40 - 12.50

:

Role oFGreen Health in Primary Health Care :
Dr M.T. Hema Reddy,
Director, Health & Family Welfare
Govt.of Karnataka
M2
Jlaking the Green Health Campaign sustainable:
Dr. II. Sudarshan. Hon. Secretary,
Vivekananda Girijana Kalyana Kendra, H R. Hills

.

12.50 - 13.00

Green Health Campaign and Women :
Dr^-MalathHDas,IoXsl
Secretary, Women and Child Development,
Govt, of Karnataka

13.00 - 13.10

Traditional Health Systems of Karnataka and Green Health :
Dr. Upendra Shenoy,
Vice-President, VHAK

bSZ) ^aP-IOb.
13.10 - 13.20'

Sasya Samala and Sasya Surabhi- the Role of Nursery
Network:
Shri A.N. Yellappa Reddy,
Secretary (Env. and Ecology), Govt, of Karnataka.

13.20 - 13.30

Community involvement and Green Health Campaign :
Dr. G. Pais, Regional Representative,
OXFAM (India) Trust.

13.30- 14.10

Lunch

14.10 - 14.20

Green Health Campaign and Role of NGOs :
Dr. D. Daniel,
Coordinator (Health), Action Aid

14.20 - 14.30

Taking Green Health to Households - the Role of Horticulture
Department :
Shri. V. Umesh,
Director of Horticulture, Govt, of Karnataka

14.30 - 14.40

Vote of thanks :
Ms. T. Neerajakshi,
Promotional Secretary, VHAK

14.40 - 16.00

Working Group Discussions on Operationalisation of Green
Health Campaign

16.00- 16.15

Coffee

16.15 - 17.00

Presentation of Reports by the Working Groups

17.00 - 17.15

Resolutions

17.15 - 17.30

Concluding Remarks :
Shri. B.Majumdar, FRLHT

2

QUESTIONNAIRE ON GREEN HEALTH
Note : The purpose of this questionnaire is to seek information from you about your organisation's
capacity to raise the Green Health plants and distribute them to the public.

1.

Your name

2.

The organisation or office you represent

3.

Your position in the organisation/office

4.

Number of nurseries maintained by your

UtACTR CeLL

:

11Qy-\ I N t M G?

A&s. i

bJT

organisation/office

5.

Are you already raising medicinal plants ?

Yee / No

6.

Will you be able to raise the 17 Green

Yes / No

Health plants in your nurseries as part of
existing prog rammes/projects/schemes ?
5

(Please note that no financial assistance at present is available with FRLHT for raising these
plants and for distributing them)

7.

How many packages of the 17 Green
Health Plants can you raise and distribute
to the public in the next 6-9 months ?

Note : The following moderately priced guidebooks are available with FRLHT to help you
participate in the Green Health campaign :
* How to Grow Medicinal Plants for Primary Healthcare

* An User's Guide to Medicinal Plants for Primary Helathcare
* Directory of Medicinal Plants Sources in South India
* Neem : Free no More

Thank you !

J?

2 .

I

I

■i

Theory
‘ of

Decentralization

I

; k .■; /1

‘r-.

The constitution of a free country should be
based on “local sefgovernment".

The only method of safeguarding against
toalitananism and fascism as that power
should be decentralized to the greater extent.

I have no hesitation in saying that if lakhs of
villages of India had been given their share on
the basis of adult franchise in drafting this
constitution its shape would have been
altogether different.
Was it not then necessary that the right to work
and right to employment were included in the
jundamentalrights declared by this constitution
and the people of this land werefreedfrom the
worry about their daily food and clothing ?

Shri Damodar Swamp Sethi (U.P) November 1948
)

I

'.77V

»

7r

‘

Perspective on Decentralization
Rajani Kothari
Under what conditions is national unity best
promoted? By concentrating power and decision
making at the centre and increasing its capacity
to determine national priorities and counter
regional and local pulls and pressures or by
evolving a framework of participation at various
levels that is sensitising diverse needs of the
people and thereby fostering a more organic unity
based on a wide dispersal of stakes in the system?
The answer to this question depends on three
things: one’s view of the model of democracy that
To .....
me. it is clear that the only alternative to a
provides the basis of a national consensus in a
decentralised and genuinely democratic political
multi-regional, continental size, society: the
system in a country like India is the gradual
presumed relationship between the model of
dissipation, erosion and ultimate disintegration
democracy and the political process through which
of the state as well as the nation. There have ,
conflicts of interest and allegiance are mediated
already been many signs of this - the power of the
and resolved: and the expected relationship
regional satraps has increased, parochial
between
the political process emanating from a
tendencies of region and caste are veiy much on
given model of democracy
the upsurge, at lower levels
— and the performance of
contractors and wheeler- f
the system in economic
The credibility of a democratic system,
dealers in money and muscle
and social spheres. The
power are in command. All indeed the legitimacy of democracy as such,
credibility of a democratic
in all. the authority of the
will depend on its capacity to deliver the
system, indeed the
Indian state is gettlngerodcd
legitimacy of democracy
goods.
1
at all levels.
as such, will depend on
its capacity to deliver the
The corrective to such a state of affairs will need
goods.
The
question
is.
what can best ensure
to be conceived in terms that are organic rather
this:
concentrating
vital
decision
making in the
than mechanistic. The real case for decentra
apex
of
the
system
or
operating
from
centres that
lization rests not on the claims of territorial rights
are
close
to
where
the
people
are
?
of juridical entities or political parties but on the
comprehension, based on experience, that in a
The case for centralization has been based on a
country like India, a centralized polity is incapable
series of arguments most of which happen to be
of dealing with an unjust social order that’ it is
specious. The most .clever of these arguments,
Inimical to the' decmocratic political process and
one that carries weight with many people
that it ts Inherently unstable.

Over the last few years, there has been an emerging
consensus across political parties and ideological
divisions - on the necessity of decentralisation for
fulfilling democratic aspirations of the Indian
people. Despite differences in points of departure
underlying this ‘consensus’ (as reflected in various
party manifestos), it is a good time to go over the
debate on decentralizaUon that had preceded this
consensus.

I
i

I

I
r

■x

38

(especially the intellectuals), is that the Central,
Government is more enlightened than the state"
governments and the state government more so
than local elected bodies which tend to be
dominated by local vested interests and the upper
castes. This is a clever argument because it
smoothly tapers over the deeply entrenched
interests and upper caste character of the elites at
the higher levels, advances a progressive argument
for perpetuating the status quo. and subtly
condemns the vast rural hinterlands in which
eighty percent of our people live into believing that
their deliverance lies in surrendering their political
rights to higher level elites. One is reminded of
one s colonial past: you can either have selfgovernment or good government, but not both. In
the new setting the assumption is that only the
centre can provide good government.

the State - and the statist assumption that
the problems of the people can be resolved
through the machinery of the state.
3.

1 shall present here a set of propositions:

This statist assumption is in turn based on
a fundamentally technological view ofhuman
problems. This is the view that deep-seated
social maladies like pervasive poverty based
on a system of deprivation can be removed
by technological means only. We know that
this is not true, that the removal of poverty
and other deep-seated social maladies in an
essentially political task, a task in which the
people who are most affected participate in
making the decisions that affect them.
Building such a structure of participation is
far more important for the removal of social
and economic ills than are development
programmes from above, no matter how
well-conceived they are.

1.

The Indian political system has been in a
Such a structure of participation is inherent
stagnant position for many years and now
in the democratic premise on which the
finds itself in a deadlock. Neither
Indian polity is supposed to be based. But
authoritarian nor the Westminister style
the pre-existing state did not permit such a
parliamentary democratic approach seems
polity to evolve..It was a colonial state,
to work. The main snag
drawing its authority from
in both is the
“
.
the
masters and not from
centralization of the
the
people. This state will
political
process,
Merely holding elections of
survive,
even if in an
intended
and
panchayats and municipalities
attenuated form. There is
deliberate in one.
does not mean decentralization.
a new set of masters in
innate in the other. No
command but many
restructuring along an * __
elements of colonial rule ’
alternative framework
still persist and there does
of development is possible without opening
exist a measure of colonial relationship
up the democratic structure and moving it
between New Delhi and lower down.
closer to the base.

2.

The existence of massive poverty has all
these years been made an excuse for •
concentrating power and resources at the
centre, presumably because it could deal
with it better. For some time, failure to do so
was ascribed to local vested interests. Later,
it was felt that the policies were not right and
there was need for an alternative framework
of policy. It is now clear that the biggest
vested interest emanates from the nature of
the Indian state and that no amount of
tinkering with policy will change things.
What needs to be changed is the nature of

4.

To move towards a structure of democratic
participation of the type discussed here
/ necessarily Involves changing the structure
of the state. This Involves a change in power
relationships between the centre, the states
and lower down. Without such change,
Indian democracy is bound to run into a
deadlock and sooner or later flounder. The
sway and power of charisma is linked in
direct proportion to the lack ofstructure and
institutionalization of the political process.
Only a decentralized state can provide such
• institutional safeguards against the cult of
personality and the role of charisma.

39
get the better of the others by virtue of their
puD at the centre. The new strategy should
be to both allow a large measure of selfreliance at the state level so that hitherto
untapped potentials are released - this itself ’
will begin to narrow disparities - and at the
same time provide transitional correctives
by weighted allocations and transfers.

Everything seems to point to the need for
decentralization. It is indeed an historic
necessity.

t
i

Is it possible to move towards decen
tralization without providing greater
autonomy and commensurate resources to
the states? I do not think so. Merely holding
elections of panchayats and municipalities
8. Such corollaries only underline the ultimate
does not mean decentralization. They need
aim ofany democratic restructuring: enabling
to have significant power and resources to
the people to participate in shaping their
work with and they need to be organised
collective future. Political decentralize Lion
vertically through functional inter
is only a means to this and federalism ?.
relationships along various tiers reaching
means
to that means. Institutional
out to the state level. This is not possible
structures by themselves
without
first
(or
simultaneously) endowing r —~ ---------------- ------------------- x produce no change, so much
depends on the interest, the
the states themselves with
The problem of national
vigilance
and
the
significant power and
integration is no longer
organisational structure
resources.
political. It is largely
that responds to people’s
initiatives, it is not possible
economic and
6. There are two opposite
to mount them. Indeed, the
temptations that the
demographic
institutional innovations
centre and the states must
;
-----------designed
to respond to
-----respectively avoid. One is
historic
needs from time to
the temptation for national
time
provide
the
stuff
of
dynamic
polity. The
leaders to enagage in a direct appeal to lower
difficulty
with
a
functioning
democracy
is
levels without permitting intermediate
that
it
so
much
disarms
the
people
that
a
structure to grow; the modem version of this
revolutionary
upheaval
becomes
impossible
is populism. The other danger is in the
• to mount. But the great thing about a
opposite direction.'namely, the growth of
functioning democracy is that it can Itself
regional overloads through the increased
become a vehicle of revolutionary change
power of the states which is not a shared
through structural changes in response to
further down. To steer clear of both these
historic needs. And it can do this without an
dangers, it is essential to agree that greater
upheaval. But if it falls to do this so long. Its
autonomy for the states is at once part of a
future is in peril.
larger process of decentralization and an
essential pre-requisite thereof.
The problem of national Integration is no longer
political. It is largely economic and demographic.
7. Two other corollaries are necessary in the
It has two major dimensions: integration through
: ; Indian case. First there is nothing sacrosanct
removal of regional economic disparities most of
•
about autonomy at the level of existing state;
which
are to be found within existing states; and
in many of them there is need to provide
integration
of rural and urban areas in the country
autonomy to Important regions within the
which
continue
to be two different worlds. The
state by splitting it. Second, there is a
problem
of
integration
will henceforth need to be
genuine fear that the more prosperous and
tackled in the context of forging viable
/
powerful states will benefit more from the
organisational forms along the federal system so
process of devolution. This should at all
that the accentuation of disparities along these
costs be avoided. Indeed, one of the
two dimensions are minimised. While the basic
. Justihcations of greater autonomy at the
issues are economic - both in terms of narrowing
' state level is‘that it will put'an end to the
disparities and hence promoting justice and in
present situation in which advanced states

5.
L

I

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L
i

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■I I

::
*. --H

1'

■

:r 'e.'

‘

■"

‘
*

. I*’’ r
-

J

-r

.

„

f.

-

■

_____________

40

terms of raising the general level of growth and
productivity in the less developed regions - their
resolution calls for a political initiative.

To recapitualate my argument so far, there is
really no doubt that without a large measure of
decentralization, the problems facing in this
country will not be tackled. These problems are
primarily economic - creation of Jobs and
opportunities at the level where the people live
and curbing in-equalities that have arisen as a
result of centralization of the planning process
and undue concentration of economic power. But
they are also political (in respect of correcting the
highly distorted elitemass relationship),
administrative (in respect of a restructuring of
bureaucratic organisation and a dispersal of
administrative and technical talent to the districts),
and educational (in respect of a return to the
emphasis on primary education and literacy). If
‘socialism’ is not once again to degenerate into a
bloating bureaucracy which provides an elaborate
structure of corruption, there is need to restrain
the creation of ever new bodies at the centre and
instead, to enable the lower levels of the system
to function effectively.

This is one point. It should at once be admitted,
however, that there is enormous confusion in the
country on both the concepts of decentralization
and the steps that are recommended to implement
it. Advocates of these steps often talk as if there
was no distinction between decentralization and
fragmentation of the country into hundreds or
thousands of self-governing communities - on
some kind of a romanticized model of “village
republics" based on a complete distortion of
Gandhiji’s views on Swaraj". There is an opposite
viewpoint advocated in the main by planners and
growthmen who think decentralization in terms
of creating organisational agencies at block and
village levels who will carry out directives from
above and “mobilize" local people to serve the
ends set at higher levels.
Both these models are not only unsuited to the
needs of this country; they also violate the basic
tenets of a decentralized polity whose end is to
create a democratic community in which the
, individual is the end and government a means to
that end.

A

The first of the two approaches described above,
which we may call the communitarian approach,
confuses autonomy and self-reliance of individuals
with the cohesion and ‘■unanimity" of local
communities. It confounds the need to share
power for common ends with some kind of a
compulsion to dismantle the state and the
authority of the centre. Its basic flaw lies in not
perceiving that the concept of decentralization
pre-supposes a centre and everytliing that having
a centre in a political society involves - a common
destiny as a people, consensus on fundamental
values, and understanding, which was
fundamental in the Gandhian credo, that power
involves obligation to the collective self which is
the embodiment of society’s goals, values and
integrity. Decentralization is meaningful only in
the context of such a sense of overall unity of
purpose in which all individuals Join at various
levels of the socio-political system or. to use
Gandhi’s integral phraseology, through a series of
concentric circles that are “ever widening, never
ascending".

The opposite approach to the fragmented
communitarian one, which we may call the
pyramidal approach, confounds the need for selireliance and self-government with “agency
functions’ in which not only is the Individual
made a cog in a vast machine but the machine
itself begins to suffer from intense apoplexy at the
centre. It also fails to realize that the centre in
such a pyramid, under conditions of poverty and
external reliance for both economic and security
reasons, tends to shift outside the country and
that internal process of domination and
exploitation ar^ In fact part of a more glob;-,
pattern of domination and exploitation.
The.centralizing elite lends not only to delodo i..
people over which It rules with all kinds oj sloy^u
and panaceas but also deludes itself that it ureally setting the pace for the country's progrus.,
towards democracy and socialism. In reality a
centralized state violates both democracy and
socialism; it also undermines the principles of
autonomy and self-reliance that we have come to
The task*that.faces us now is to make this
autonomy that we have acquired as a State, real
for our people. In order to do so, we will have to do

i

* *

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41
t
i

a lot of thinking for ourselves, on a variety of
choices, including on the kind of “socialism" that
suits us and is in keeping with our values and
traditions. For it is clear that none ofthe European
brands including Marxism will suit our needs. All
imported brands of “socialism" cany a large dose
of centralization and they have all undermined
both man and nature in the process. We who
value both the individuality of man and the
inviolability ofnature, must make our own choices
in our economic model, in the technology that we
adopt, in the nature of our state.
During the last four decades we have gone heavily
in the direction of centralization - economically,
technologically and even politically despite our
federal democratic structure. Gandhi had warned
us against these developments and advocated his
model of decentralization. Nehru who was
presiding over the phase of national integration
and Initiating a process of economic self-reliance
both of which forced him to centralize the state,
was nonetheless so heavily committed to the
democratic ideal that he not only supported by
took keen Interest in the development of
democratic decentralization" in the country.

the pyramidal approach. Rather, decentralization
is to be conceived as a step in the direction of a
more integrated polity, a better performinc
economy and a model of social reconstruchon
necessary for a properly functioning democracy
and a genuinely socialist state (the one necessanl'.involves the other).
DeecniraIbaHon, in the present context, entail*
the above steps. Indeed. It provides the basic and
necessary structural dimension of that packace.
The bland formulation of both the communitarian
and the pyramidal approaches must give place to
a more integral vie w of decentralization. Gandhi’s
view of decentralization was precisely such Since
his days decentralization has acquired an almost
obscurantist connotation, thanks largely to the
vulgar ‘Gandhlans’.

Hence the great promise of the various experi
ments in decentralizing power to the people. For,
it is the only way of ensuring radical change’
through the democratic process and not in
violation of it. Instead of conceiving panchayaii
raj as an agent of development, we have to conceive
development as an agent of panchayatl raj. i.e. of
people’s power. The earlier concept grew out of
After Neliru there has been a sliding back on this
the failure of the community development
process, thanks largely to the very considerable
administration in involving the people in the
concentration of political authority in the hands
development process and hence, following the
of a few men of power presiding over huge party
Balwantrai Mehta Committee Report, the thought
machines and patronage
of panchayatl raj
networks. During that period Z
■x institutions as better
local self-government suffered
Decentralization is to be conceived as a step
instruments for the
a sharp decline except in two
in
the
direction
of
a
more
integrated
polity,
a
same.
People were to
or three
states and
better
performing
economy
and
a
model
of
be
made
into efficient
consequently
whatever
social
reconstruction
necessary
for
a
instruments
of
structure had been created
properly
functioning
democracy
and
a
development,
instead
for undertaking programmes
genuinely socialist state
of viewing developat the grassroots has been
i
y
ment
as an instru
rend ered weak and ineffective.
ment of the people.
That Report was an essential step in the direcUon
It now involves two major tasks - a restructuring
of de-bureaucratislng development. Today we
of federal relations by establishing them on a
need to go beyond it.
firmer footing and re-orientation of the process of
economic planning and education with a view to
The term “people’s power" can, of course, be
ensuring the widest possible participation of the
misleading as the usual question is “which
people in employment and output. Seen in this
people"? There is no necessaiy correlation between
way. decentralization poses neither a fragmented
institutional decentralisation and decentralisation
vlew of the polity as found in the communitarian
in class terms. Such correlation can never be
approach nor a mere proliferation of centrally
legislated straight away except through
controlled structures at lower levels as implied in
entitlements over schemes ecology and assets

•Tv.';

42

like land. Some of this has been provided in some
legislations (eg. Karnataka) through transfer of a
large measure of resources and functions and of
rights of ownership and control vested in mandal
panchayats and zilla parishads. But we have by
now enough experience to suggest that far more
crucial than legally laid out controls and access is
the mobilisation of men and women committed to
a genuinely radical democratic transformation.
We have to wait and see whether this in fact takes
place.

people instead. By the same token the various
activists groups need to grasp the full significanse
of the new opportunties to avail of them in full
earnestness and to forge ahead with a new political
design and vision. Old caste, class and ethnic
polarities must give place to the only polarity that
has come to the fore in recent years - between the
people and the elite, between the democratic
spirit and the bureaucratic straightj acket. between
mafia politics and the much talked of
value
based politics’. .

The usual divide (and often hostility) between
party and non party activists, and between state
and society, is less pronounced in settings that
are so small and in which what ultimately matters
is sustained and dedicated work.

A crucial challengefaces Indian democracy today.
It is necessary that the issue is not left merely in
hands of gouemments and parties, prisoners of
entrenched interests and na/rom timespans. It is
an issue on which non-party activists, intellectuals,
opinion-makers and the concerned citizenry as a
whole should keep the pressure on.

Much will depend on how political parties
committed to democratic opportunities opening
up at lower levels ul the polity are able to at once
begin a process of party-building from the
grassroots upwards (instead of the top down
approach of setting up adhoc committees) and
transcent narrow party interest and think of the

Puncluiyud 1<*\J Im luo iuipuiluul (o be U li (o
governments and parties. It must be seen as part
of the political process that emanates from the
grassroots.

i •

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■it-'

!

Dimensions of Democratic Decentralization Emerging
Context and Issues
Dr. G.R.S. Rao
The experiences and experiments in regard to the
forms and process of governance that mankind
has gone through during the twentieth century
clearly reinforce democracy as an intrinsic value,
and validate its adjunct concept of decen
tralization. Human society, standing at the
threshold of the 21st century, is moving on a
global scale, towards strengthening the processes
of democracy with the substance of decen
tralization.

management and sustainable development has
become universal, even though the process and
its pace are influenced by specific local conditions.
Privatization, deregulation and a host of other
processes and expression represent a mani
festation of democratization and decentralization.

India cannot be an exception. Any exploration
into the process of democratic decentralization
sounds ethereal, for like ether, decentralization
emerges as a medium, tilling all space, energizing
Centralised authority sustained by bureaucratic
people. If ether is described as a colourless
transparent volatile liquid
structures has resulted,
_________________
of great mobility and high
the world over, in an
increased presence of z
refractive power, of
Gandhiji projected decentralization as
government but a decline
fragrant odour, heavenly,
“acquisition ofcapacity to resist tendency
in responsive
and
and spirit-like, democratic
to abuse authorih/", and envisioned that
responsible governance.
decentralization is all“when Panchayai i Raj' is established^
The remoteness of
pervasive.
highly
public opinion will do what violence can
government - and all its
motivating
the
population
never do”. It is seen as a value that'instrumentalities - proved
operating both as a means
promotes
human spirit and protects
a significant factor in the
and also as an end
human rights vis a vis autocracy and
institutionalization and
objective. Its distinct and
authoritarianism
growth of corruption of
dynamic attribute is that
State vis-a-vis citizens.
it reinforces Itself: in this
With the communication
sense
democratic
revolution and compression of the global society
decentralization :ip. India can be likened to a
into one large village, the urge for less ofgovernance
second war of Independence, lending substance
and more of decentralized participative selfto the form of government adopted in 1950.

-’V.-’T'

4

44

j Dynamics of Decentralization

Value Premises and Ideological
Foundations

In the Indian context, democratic decentralization
involves a power-shift (role, authority, and
Several value premises constitute the ideological
responsibility) in three directions viz., (a) vertically
foundations for decentralization. Gandhiji
from the Centre to the
projected decentralization as
State, from State to the
“acquisition of capacity to resist
District downwards to the
,
PoLver
t
obtaining
and
operating
in
tendency to abuse authority",
units of local sell
any
society,
Involved
in
social
and envisioned that "when
government
leading
transformation,
is
f
‘
inite'.
Panchayati Raj is established,
ultimately
to
citizens
’
Decentralization promotes efficiencies
public opinion will do what
participation
in
self

in its tapping, transmission and
violence can never do". It is seen
management. (b) a
productive utilization. Democratic
as a value that promotes human
horizontal power-shift
spirit and protects human ’ decentralization implies ‘powerfrom the appointed
^shedding
’
on
the
part
of
State
at
all
rights vis a vis autocracy and
executive to the elected
"levels,
in
favour
of
people
so
as
to
authoritarianism. Decentra
representatives of the
lization. it was envisaged, would
generate
and
channelize
people. Decentralization
dilute the feudal social order
JANASHAKTI for self-reliant and,
and the hierarchical structure
also involves simul
sustainable development and social
of power, emerging from factors
Umrous diagonal
•
change, the dynamics qf how, cu\d
such as caste, education and
between the vai
nnu
how much of this power is •giw.-n* or
land-ownersldp.
and tiers of the instnimci.
‘taken’ depends upon a diverse set of
talities of Slate so
lu
socialfactors and operation ofpolitical
Decentralization was also
facilitate
role
clarity
un.1
parties as is evident presently in
envisioned as a process that
delineation. Tlius. peoples
various States in India
would (a) counter internal
J
_______ ________________ —----- participation constitutesa
colonialism obtaining in the
means as well as an end
form of urban domination over
objective of decentralization.
rural areas and (b) facilitate social, legal and
political institutions to be receptive and responsive
•Power’ obtaining and operating in any society,
to public opinion, thus facilitating change while
involved in social transformation, is ‘finite .
maintaining stability. It was in this perspecUve
Decentralization promotes efficiencies in its
Gandhiji projected the concept of GRAM SWARAJ.
tapping, transmission and productive utilization.
villages as Little Republics.
Democratic decentralization implies ‘power
shedding on the part of State at all levels, in
A cardinal value premise underlying decenfavour of people so as to generate and channelize
tralization in the Indian context was that it would
JANASHAKTI
for self-reliant and. sustainable
emphasize and shift in the measurement and
development
and
social change, the dynamics oi
evaluation of development from quantitative,
how,
and
how
much
of this power is ‘given or
macro. Gross National Product (GNP) to a
‘taken’ depends upon a diverse set of social factors
qualitative, micro, welfare and basic-needs•
• parties
’ 3 as is evident
orlented indicators. In otherwords, it was
and operation of political
presently in various States in India. Inadequacies
envisaged that decentralization would elfectively
in this participative processes lead to and arc
counter the distortions ofcentralized, bureaucratic
described, in euphemistic terms, such as “people
mode of planning and development.
tending to take law into their hands .
Decentralization was projected on the assum-^ j Decentralization is in the interest, not only of
ptions that (a) it would promote public awareness.
. citizens, but also of the State, and thus of the
(b) protect local, ethnic and cultural
society at large.
configurations, and (c) facilitate the democratic
Any national designfor decentralized development
ethic and would prompt the exercise of ‘power’
accountable.

----------* 9

L

t<
45

calls for a high degree of crystallization of
objectives, parameters for institutional structures,
and supportlng systems for promoting harmonious
complementarity and integration of roles, lest the
society may experience friction and turbulence if
not fall-apart. with the threat of disintegration,
the present Centre-State relations constitute a
pointer.

(1990) Draft Eighth Five Year Plan.

Adminlstrai ion cannot, for all times, run parallel
to, but has to move alongwlth people. Participation
Integrates the (wo and makes administration a bit
more responsive. Decentralization results in the
administration coming closer to. and perhaps
much closer scrutiny by the citizens.

Political process, irrespective of times and climes,
In the Indian context, the inter-related processes
constitutes the prime-mover of social change and
of democracy, decentralization and participation
development. Political process alone legitimizes
facilitate yet another facet ofnational development,
social change by securing popular participation
appropriately called ‘social transformation’. The
and endorsement. Yet. the
national mission of social
process of politicization can
]
transfonnation enshrined
A decentralised polity cannot
distort, and also get distorted,
in the Constitution can be
thus there is! a need to Jacilitate social transformation in actualised only when the
the life of a community.
distinguish two patterns of
political, economic and
politicization/, viz., the
social processes are
benevolent (harmonizing and the legitimate), and
attuned, integrated and hannonized both at the
the malignant (dysfunctional and the partisan),
aggregate (macro) and the segregate (micro) levels,
Benevolent is what operates ‘nearest’ to the people,
the national level measures of growth such as
partisan is what obtains ‘farthest’ from people,
GNP tend to become national at the level of small
thus, participation of people is an essential
communities where development is perceived,
attribute of legitimization. The two patterns can
reflected and measured in terms of specific
be stated to be mutually incompatible, but not
indicators of social justice, welfare, and poverty
exclusive. Decentralization, thus, has to be
eradication, constituting and contributing to the
operationalised with primacy of focus on the
quality of life of the community. Democratic
citizens and their participation in social change.
decentralization concretizes and facilitates
measures of development at the segregate level,
Decentralization represents not merely a
matching autonomy with accountability.
structural dimension of development but more
significantly the processual dimension of popular
participation, promoting, sustaining and
Objectives of Decentralization:
responding to benevolent politicization,
decentralization envisions that participative
Democratic decentralization seems to be throwing
process is not only the most effective methods of
up a diverse and wide range of overlapping, if
to promote the democratic ethic, but also the
not conflicting objectives, when decentralization
most efficient mechanism to prevent distortions
seems to be a pannacea to many a distortion in
in the democratic process. Participation thus, is
development, it is only logical that multiple
a built-in. self-correcting mechanism in the
objectives are sought to be achieved. But with
process of democratic decentralization.
different people assigning different priorities in
Participative political process is a democracy,
the scheme of decentralization, it is worth taking
pressures all institutions to maintain legitimacy
cognizance of the range ofobjectives, and prioretize
and obtain renewal by securing people’s
them.
endorsement on a continuing basis. At the end of
Seventh Five Year Plans, the Planning Commission
Two distinct yet inter-related sets of objectives
of India attributed the “short-comings" in plaqned
can perhaps be identified: (a) the instrumental or
development to “inadequate involvement of
processual and (b) the qualitative and object*; es.
people". Peoples’ participation through den locratic
decentralization Is envisaged as the basic
Self-reliant, sustainable development on the basis
structural and processual pre-requisite in the f' of local needs, priorities and participation rather

c

’

46

than centralized, financially targeted ‘growth rate’
that arouses expectations and leads to dependence
to the point of neutralization of local initiative,
represents one of the major objectives of
decentralization.

For social transformation to take place without
distortions or unintended consequences, the
gravity of social change has to rest within the
society i.e., the community, without which there
could be turbulence - regional, ethnic, etc., leading
to social disruption. Local communities are better
placed to translate the national mission into
relevant programmes and priorities.

Decentralized institutions with participative
processes constitute the schools bf democracy.
Democratic, participative ethic gets enriched:
institutions secure renewal and legitimization
through popular participation. Political process
relates itself to the problems of the community,
and thus secures legitimacy, becomes more
benevolent. Empowerment - power to the people
operates as Ignition to social transformation and
promotion of quality of life, especially of rural
communities. Balanced, self-reliant development
of rural communities might arrest the ruralurban migration.

of Institutions.
A decentralized polity cannot facilitate social
transformation in the life of a community through
centralized institutions of administration. There
is ample evidence to suggest that unless the
entire network of instrumentalities of state are
decentralized, coterminus with the decentralized
units of polity, the latter may also tend to get
centralized, de facto, the reverse could also be
true. Centralized political party structures or
bureaucratic processes could distort any scheme
of decentralized administration, converting it inn.,
a centralized bureaucracy. Indian expencn-c
covering what may be called the three waves o;
decentralization., demonstrated a mosaic of these
patterns. Any mismatch between the political a ru:
administrative processes results in a divorce
between authority and accountability.
The political, economic and social processes are
inseparably Interwoven and are interdependent.
Thus, for the social transformation to fructify, wv
need to integrate the three, such an integration
can be ‘conceived’ or designed at the apex level,
but can be ‘affected’ only at the field level, the
community level.

If the cherished dreams of Independence
movement have not been realised in forty years of
Democratic decentralization has, as an Important
planned development to any recognizable extent,
objective self-reliant and self-sustaining
and the citizens seem to be saying so aloud, we are
communities, that implies local resource
witnessing, admittedly,
mobilization. It envisages an
many an unintended and
ethos of cquaiitarianism, and
enhances equitable distribution context and canvas of democratic undesirable consequence
of the fruits of socio-economic decentralization as aprocess and strategy of‘planned development’,
for promoting social transformation.
not merely because of
development.
centralized planning but
more so due to the weak integrative mechanisms
As the G.V.K. Rao Committee visualized,
structural and processual.
decentralized development facilitates coordination
and integration of administrative machinery at
The process of democratic decentralization
the field level, enhances its outreach and efficacy
envisages and represents a cultural - change;
as a delivery system.
it Is holistic, encompasses the political. U.
economic and the social processes. Sue)
change
may be gradual, but not sequential, < •
Dimension of Decentralization:
three can not be segmented. Thus, any,
measure of decentralization has to encomp. 3s
In order to be able to harmonize and achieve a
the political (Panchayat Raj) the econumic
wide range of diverse objectives, the spread of
(production and distribution), and the social (;aw.
decentralization has to encompass the total
order and social justice) Institutions and
spectrum of activity of a community and network
processes, simultaneously. Democratization and
j:,!

b. ■

'•

’

<1

-h1

47
decentralization are not co-terminus with
Panchayat Raj institutions. It encompasses
judicial institutions and processes, as also
industry and agriculture. It implies and
emphasizes voluntary action, peoples’ Initiative,
in all areas such as education, policing and
human rights.

promoting social transformation, several issues
emerge to the fore for consideration.

Inadequate success of the process and structures
of decentralization obtaining at present cannot
sustain an argument against the intrinsic values
of decentralization, it warrants analysis ofground
realities and impediments inorder to evolve
Unless decentralization and
adequate and appropriate
participative processes inform all zstrategies towards sustainable
developmental functions at the
and productive decentralization.
Issue as to how far should
local (district and mandal/samlti)
decentralization be promoted
levels, development administration
In the background ofthe national
and provided for, assumes
gets split up into that of ‘state
consensus (obtained at the June
critical significance tn the
government’ and ‘district
1990 NDC meeting at Delhi),
Indian context with ethnicity,
government’, in hierarchical terms,
and the diverse patterns (with
language,
religion,
caste
and
like it is obtaining between the
varying structures, and linkages
other such centrlfugalfactors
Centre and the States, conditioned
between the units) and
operating
in
the
polity,
by a culture of ‘versus’ and
experiences obtaining in different
decentralization
cannot
lead
‘confrontation. The various units/
States such as West Bengal.
to withering away of the
levels are complementary, not
Andhra Pradesh, Kaniatyka.
'Stale*. How tp crystallize
hierarchical; they have dUTcrcnt
Maharashtra, Gujarat and
national interest and
tasks/roles, but common
Madhya Pradesh, a dialogue may
safeguards
against
objectives. Each one is
help crystallize the range of
processes
that
might
threaten
autonomous, in Its own sphere of
objectives that should be
unity,
integrity,
stability
and,
activity
with
matching
meaningfully
and explicitly
in the end, the progress ofthe
accountability.
Integrated
into
the design for
nation?
democratic decentralization,
The design for democratic v----------------being evolved at the national level.
decentralization has to take into account all the
Institutions into its canvas, even if implementation
is phased out. fear of change is evident, as much
What should be the scope of Constitutional
as resistance to change. This fear and resistance'
provisions with regard to the ‘self-sustaining’
not merely impede, but could distort the process
status, structure, powers/authority and
of decentralization.
accountability of Panchayat Raj Institutions? In
otherwords, what should be the range ofdiscretion
Highly centralized political party structures and
left to legislative action to be initiated by the
processes, the imperatives of centralized planning
State? How to insulate the Panchayati Raj
and attendant decision-making processes, the
Institutions from political tremors originating from
tendency of the political parties to politicise
the fluctuating fortunes of parties at the national
cooperatives, and the executive to bureaucratize
and state levels.
non-governmental developmental organisations
' (NGDOs) and most of all, the problem of defining
Is it not appropriate to provide for Constitutional
national interest and its operationalization at the
status to the institutions of democratic
ground level in a non-homogeneous society,
decentralization, supported by a decentralized
operate a$ impediments to democratic
(tlilrd) list of activities that should be remitted to
decentralization in India.
the decentralized sector? Water-shed
management, universal literacy and similar critical
programmes can be considered for the third list,
Emerging Issues :
should the chairmen of the Panchayat Raj bodies
' ;;
be represented in the second chamber, in their
,; In the emerging context and canvas of democratic
respective States in order to promote a two-way
decentralization as a process and strategy for
integration and reinforcement?

■ ’•.HP

i.: : J ■■
■ -

’ ■ ►r.’v

..........

. ■

..

..................................... t

.. '

I >.

i

48

What are the considerations and criteria relevant
for the democratic decentralization of Panchayati
Raj institutions, that may be found appropriate to
the cooperative institutions and decentralised
administration ofjustlce ?

In the light of the relevant observations and
recommendations of the National Police
Commission, the Report of the Law Commission
of India (1986) on Gram Nyayalayas, and the
Karnataka enactment (1985), what are the
implications of decentralization to police
administration? How and how far law and order
administration should be tempered by the norms
and process of democratic decentralization? This
assumes critical significance in the context of the
extinct but much landed rural policing of
yesteryears. What should be the equations and
linkages between the police and the Panchayati
Raj Institutions?

What arc the specific areas of initiative in regard
to planning, funding and ‘control’ functions not
delegated but to be vacated by the Centre? and the
States and vested in the Panchayati Raj
institutions?
What mechanisms and norms can be envisaged
to ensure that both powers and resources are
matched compatible with accountability, and
devolved to the various democratic decentralised
institutions?

What should be the nature of autonomy and
linkages of administrative structures of
Panchayati Raj institutions vis-a-vls State level
units (heads of departments), and the secretariat,
especially with regard to cadre and human

resources management? It is the designing of
appropriate administrative structures and
systems that operationalise the objectives and
norms of democratic decentralization.
Assuming that Panchayati Raj institutions cannot
become partyless little Republics in the foreseeable
future (even if elections are held on a non-party
basis), what norms and safeguards - statutory or
otherwise - could be envisaged in order to minimise
the adverse Impact of subjecting the Panchayati
Raj institutions to partisan politics? what
safeguards can be envisaged to ensure that
Panchayati Raj Institutions do not fall into the
hands of vested interests, but would take care of
minorities and weaker sections?

Indian scene oilers an experimental situation for
undertaking analysis of diverse approaches/
patterns of decentralization and varied socio
political as well as economic-cultural ground
realities that make or mar decentralization, what
could be the impediments or facilitating factors
that have to be taken cognizance of in monitoring
the operation of decentralised institutions?

Issue as to how far should decentralization be
promoted and provided for, assumes critical
significance in the Indian context with ethnicity,
language, religion, caste and other such centrifi i ca i
factors operating in the polity, decentralization
cannot lead to withering away of the ‘State’. He
to crystallize national interest and safeguards
against processes that might threaten unitx.
integrity, stability and, in the end, the progress oi
the nation?

■

-------

. r rr.-iR-

ORC 4)

2-6

OF WiJrlEN IN URBAN GOVERNANCE

AE^-

Q:

Zir—V

BY

PROF. SNEHA PALNITKAR
DIRECTOR
ALL INDIA INSTITUTE OF LOCAL
SELF GOVERNMENT, BOMBAY

ROLE OF WOMEN IN URBAN GOVERNANCE
*

PROF. SNEHA PALNITKAR

INTRODUCTION

During
concern
and

last

decade.

increased

attention

about the role and status of women in political,

economic

fields, has been witnessed world-wide.

ini iiative came from the United Nations

and

social

The

main

in declaring 1975 as

the

International Women's Year and the following decade

(1976-85)

as

United Nations Decade for Women, Equality,
Development and
Peace.
The world Conference of the United
Nations held in
Nairobi in 1985 stressed the importance of
governmental and non
governmental agencies in educating women to
exercise their
the

political,

social

rights.

The Conference stated

that

in

the

process

of consciousness raising. efforts would have to be

made

towrds

fixing definite time span, targets and fixing of a

quota

system.
Conference

It

was

that

also

stressed

in

the

"women by virtue of-’ Eheir

Declaration
gender,

discrimination

in terms of denial of equal access to

structure

that

controls society

issues".

(R- Kumari, 1992).

and

determines

in

the

experience

the

power

developmental

The Conference noted that "for true

equality to become a reality for women, the power on equal
with men must be a major strategy".
However, inspite of

terms

these

efforts, the actual reality has been far removed from the various
resolutions and

plans formulated for women at international

and

* Director. All India Institute of Local Self Government. Bombay
March 1995.
Paper prepared and presented at
at uonrerence
Conference on
Urban nocal Government and Decentralisation in the context of
the Karnataka Nagarpalika Act, March 10-12, 1995 at Bangalore.

national

levels.

represented.

Women

specially

still

in

continue

to

be

the

policies

the areas where

marginally

have

direct impact on cits'- development or management.

Although,
force

the percentage of women in

has steadily increased. their presence in

decision-making

sphere.

is greatly under represented.

the

leadership

In the

before. total number is very low and

the

proportion

to

and

political

though the number of women in elected bodies

than

labour

is

higher

inadequately

reflect

the overall population.

Over

the

years,

women s participation in local authorities has been
marginal
to several socio-economic constraints.

due

The low representation of

women in political bodies was matched by under representation

the

decision

authorities.

making

bodies

of

political

parties.

Tile

of

role

national
trade

women

governments.

unions

in

in

local

etc.

local

government

particularly, at the level of the municipal bodies is a strategic

one.

Municipal bodies render a number of vital urban services to

the

citizens

within its jurisdictional area.

But the

role

of

local governments is changing and will continue to change, as the

economic. social and environmental problems they face
continue to
grow.
Increasingly, local governments are called upon to perform

enabling, facilitating and empowering roles if their constituents
are

to have access to the kinds of programmes and services

they

want and need.

The

the

increasing emphasis on local

governments

as

focal point for urban development and the changing roles

of

these

governments

in fulfilling that growing

mandate,

puts

heavy

burden on their elected representatives.

When we

started

a

to ask ourselves and others about the role of women councillors,

we kept hearing several terms like ’’communicate" "make decisions"

2

"help
is

others to share the responsibility" and more.

true,

it is essential to understand the several

While

this

roles

that

women councillors are called upon to perform.

THE CHANGING ROLES
Today, women councillors in cities are called upon
to do many things in the course of their duties. to perform

roles

many

or to wear many hats. The UNCHS (1994) identified some

of

these roles which can be summarised as under :

The Councillor, in the role of policy maker - in establish goals,
examine alternatives at local level, decide strategies that

will

guide existing and future actions to benefit the local community.

It

is the role that provides the big frame for the people.

sets

long range goals, developes strategic plans of Implementation for
the community.

The Municipal Councillor as decision maker - while exploring some
of the implications of decision making for a women councillor, we
must consider the various stages in the decision process and

conetraints to effective decision-making skills.
to

be

Another

aspect

the

possible

pondered on the road to decision-making is

consequences

of

decisions taken by

the

councillor.

municipal

Since

councillors operate in the public arena. there

many

different

They

can

consider

are

often

taken.

kinds of consequences of

the

decisions

be either positive or negative.

It

is

what

economists call the 'opportunity

the

important
costs'

of

to
the

decisions.

The Municipal Councillor.

in the role of communicator

broad

ideas

receives

based

information,

and

accuracy and understanding of the local issues.

3

gives and

feelings

with

The

Municipal

Councillor, in the role of Facilitator

foster

collective efforts, help others in solving problems. assures

conununits'’

participation and avoids interpersonal and

the

intergroup

conflicts in the community.
Hie

Municipal Councillor, in the role of enabler -

things

possiboe,

community.

practical

and

easier

for

which

others

makes

in

which is not quite prepared to do things for

the

itself.

Tliis role built on some recent thinking about the use of private.

non-governmental

partnerships

in programme

and

urban

service

deliveries.

The Million Houses Programme in Sri Lanka is a

example

of

enabling.

Here, the role of the public

innovative

programme

is

technical

and

financial

confined to the

support

to

direct

good

sector.

in

provision

of

individual

low-income

households and communities.
The

Municipal

others

Councillor,

in the role of

negotiator

to reach an agreeable solution when they

have

helps
differing

interests and needs.

Tlie Municipal Councillor, in the role of overseer - assures

that

i

the

municipal

council and staff are doing the right

things

in

implementing, monitoring and evaluating policies. programmes

and

services.
The

Municipal Councillor. in the role of power mobilicer

ones

own

done

for the people.

an

elected

personal resources of political power, to

get

uses

things

If the councillors are to be effective

official, one cannot ignore the

power

sources

bring to the office or the power and influence the office
to individual.

-1

as

you

brings

Municipal Councillor, in the role of institution

The

the development of municipal r-orsmnel

which

supports

local

government

organisar ion

as

and

the

responsibilities.

important

is

one of the important aspects which

This

builder

to

responsible

carry our. municipal council's policies and programmes.

The

Municipal Councillor, in the role of leader -

perforins

all

the roles and bring about positive and significant changes in the

lives of the people.

If we look at the existing situation, we will have

to

look

at

how some of these roles are

combined

leadership potential amongst women corporators.

to

increase

In defining

the

role of women representatives, their constructive decision making

and

managerial

they

can

process.

roles should receive special attention

play their full beneficial role
and

provision

of

urban

goal

of

representation

The

in

city

so

that

development

services.
to

women

in

the

decision making process in city management is not to provide them

' berths

adornment,

for

development.
in

but,

is

to

involve

them

in

city

With the reservation of 30 percent seats for

women

legal

base

for

Women have been elected and now

the

focus is on how best can women members in local authorities

make

municipal

bodies.

the

participation has been set.

and

physical

their social contribution through the participative process.

BOMBAY EXPERIENCE
The innovation on which we concentrate here is the

reservation

level

led

for

women of 30 percent seats at

in Bombay city.

to

This innovation.

a dramatic changes in the

women in city politics.

5

local

government

introduced in 1992,

numerical

representation

has
OL

Tlie

mega

city of Bombay was a cluster

of

seven

century.

The

small

islets

city

developed Initially around* its port situated to the

east

of

the

city.

south

progressed

Bombay

set In a coastal strip in the 18th

wi th

As industrial

south-

and

commercial

development

Bombay became the main

commercial

centre

industrial developments

concentrating

in

of

Central

Bombay and residential areas sprang up in the eastern and western
fringes

of the city.

Realising that the growth both

industrial

and

residential activities were spilling over into.areas

beyond

the

city

of

Bombay,

into
the

what could be considered

Jurisdiction of the city

as

"suburbs"

government

the

was

extended

twice in 1950 and 1957 to areas regrouped as Eastern and

Western

suburbs.

Bombay.

Today,

Thus emerged the metropolitan city of Greater
Bombay has assumed national as well as

importance

an

due to its immense economic importance

international

industry

for

trade, business. tourism, and cultural ties.

Today the city have

a

1994-95)

population

437.71

of

of 1,03,17,910 (BMC year

sq. Jems, of the area.

the

Bombay

Municipal

Book

covering

In accordance with the

provisions

Corporation

Municipal

Act,

the

Corporation of Greater Bombay administers the city by catering to

the

civic needs of the citizens by employing 1,43,200

employees

in

different categories and with an annual budgetary

outlay

of

The BMC Act of 1888, within the framework

of

Rs.2254.70 crores.
which

the

Corporation

and

the

Commissioner

function.

has

specified seven statutory collateral authorities charged with the

distinct
within

responsibi1i t ies

the

authority

limitations

vests

within

of city

government.

set

for

the

Municipal

it.

Though

Each

operates

the

executive

Commissioner,

elected

representatives the municipal councillors - do

general

authority over the civic affairs through

6

the

221

exercise

budgetary

and

financial

controls

expenditure,

by

determining

taxes

approving contracts and other

and

allocating

financial

proposals

and approving appointments to senior posts.

LESSONS

DRAWN : EXPERIENCE AND RESERVATION OF SEATS FOR WOMEN

THE BOMBAY WOMEN CORPORATORS

Figure .

Greater Bombay Wards

I:

WARD | AREAS
A
B

$
X.

c

o
J" J

D

D

E

T

F
G

K

H
K
’

L
M

J

N_
P

-J 0'

J?

i'

Hie

in

local

politics

Colaba - Fort
Mandvi - Chakala
Umarkhadi - Donqn________
Kumbharwada - Suleshwar
Dhobitalao • Answadi________
Khetwadi - Girgaon
Walkeshwar • Mahalaxmi
Tardeo - Mazagon - Nagpada
Kamathipura • Byculla
Parle • Sewn - Naigaum
j Matunqa • Sion _______
Dadar - Mahim - Prabhadevi
I Worli • Chinchpokli ________

Bandra - Khar - Pali
Santa Cruz_________
Vile Parle • Juhu - Andhen
Joqcshwan • Versowa______
Kurt a
Chembur - Mahul - Mankhurd
Deonar • Trombav_______
t Ghatkorer - Vikhrcu - Bhandup
I Goregon - Aerey - Malad I Manon____________

R

I Kandivh - Bonvali - Akurli -

T

I Eksar • Dahisar_________
I Uuluiid

issues that concern us in our study of

relate not only to

differential

women

access

to

political power but also to cultural images and representation of
women,

especially of women who become active in political

So the framework of the study analysis utilised the key

of

gender.

institutional

arrangements,

empowerment.

7

life.

concepts

democratisation,

and

Interest

governance,

in attempts to introduce innovations

especially in local governance, which

increase

in
the

participation of women rest on the simple premise that

increased

participation

encourage

by women at these levels would not only

their empowerment but would also improve the functioning of local
authorities and guide the urban policy.

In

Bombay, of the 221 corporators at the time

of

survey, some 75 are women. two of them having been co-opted.

the

rest elected by direct election.

in

Table

No.l.

Our

study

The party position is given

presents

analysis

of

the

initial

discussions with 38 women corporators, representing 51 percent of

the women and 18 percent of all corporators in Bombay city.

TAELE 1

BOMBAY MUNICIPAL CORPORATION
(MAIN PARTIES)

CORPORATORS

PARTY

FEMALE

MALE

TOTAL

% WOMEN

CONGRESS

39

70

109

36%

BOP

4

10

14

29%

SHIV SENA

23

49

72

32%

J. DAL

3

5

8

38%

INDEPENDENT

2

7

9

22%

TOTAL

71

141

O -L
1 O

33%

SOURCE : RESEARCH STUDY (1994-95)

In
were

reserved

for

Bombay
women

Municipal Corporation (BMC)

and 5 women

won

in

67

seats

general

wards.

Previous municipal corporation had only 5 women corporators

of

whom were re-elected.

8

none

We now turn to the detail analysis of the findings
of

oui' survey on women corporators in Municipal

Corporation

of

Although random, the sample is heavily skewed in

Greater Bombay.

favour of Congress party, however generalisations were made

with

extreme caution as a result in our analysis.

Social,

economic and political background

Most of

the

women

corporator interviewed in Bombay were born in Bombay or have been

resident

for many years.

and

and large they received independent

by

Their religion is predominantly

private

Hindu

education.

They are now mostly between the ages of 31 and 40, married.
children

school

at

and although

their

level

of

with

educational

attainment whilst generally varies. 14 are graduates, 2 teachers.
3 advocates and 3 doctors.

They come from well educated families

with much political experience, receiving guidance, encouragement

and

support

favourable

as

a

result.

Their

background is notable.

into politics is relatively recent.

political
thought

parties
only

only

relatively

comfortable

For all of them, their

or

entry

Most joined their respective

during the previous 3 to

4

of entering politics actively 3 years

years

and

ago.

They

have been corporators for just about three years since 1992 civic-

elections .
The

Process of entering into active city politics :-

asked

the

The

women

corporators

in

Bombay

following

aspects

as

explanation

for

relatively lower participation in

politics

by

were

women
i.)

Women are less likely to be selected by their political

party

9

ii)

Women

see

the

political

style . and

system

as

being

point

(ii)

inappropriate for them

iii) Women lack overall confidence
iv)

Household and family responsibilities and

Most

of the women corporators in Bombay agreed with

and

(iv).

with (i) and (ii) running fairly close

Increased

participation

system

Reasons for

Female Participation

(30

incentive

increased

were related directly to the adoption of
percent).

in

behind.

Infact,

this was

politics as municipal corporators.

a

quota

the

major

entering

active

seen

encouraging women to think about

female

as

They stood in wards

reserved

for and contested by women so that all the women had been elected
for
f-

ft

the

Bombay.

first time they stood for the

The

municipal

main reasons indicated for their

elections

success

in

in

the

I

civic elections in 1992 were as follows
*

Women were seen as sincere

Women were seen as likely to be more effective than men
t.

The

political

party

image was seen

as

important

factor

(suggesting that politics of the party remained salient).
Most

women

candidates contested on party tickets.

But

whether

independent or on party ticket. women get elected and continue to
retain their seats would have to be seen over a period of time.

With
friends

the

encouragement and

support

of

family.

and party. they entered the city political scene with

a

desire to address what they referred to as women's and children's

issues.

10

- Specifically.

they stood for improvements in

the

However, how far they have been able to improve the situation

in

following civic services :
i-

Water supply;
Cleanliness; and
Garbage disposal

the existing situation is yet to be analysed.
Womens

Issues

themselves

as

and Politics

having

Hie women

been active in

interviewed

local

campaigns before entering party politics.

describe

organisations

and

Although none had been

active members of a women's group or organisation.

Most

had been involved in campaigns ovei'

issues

- and all of them said that they were supporters

women s

movement

and

ready to fight for it.

When

women"s
of

the

women

are

elected on party ticket will they speak for party or for women as

a whole?

Will there be a conflict

of their loyalities ?

Women corporators interviewed in Bombay were asked

several aspects questions
.K

Women's legal rights and equal opportunities

K

Attempts to work with other groups in attacking

social

inequalities,

of which women's

fundamental

exploitation

is

a

major part
*

Pushing

for

a radical change away from

a

male

dominated

civic society
Dealing with all the matters concerned to women.

These

statements

corporators

were

found to be recognisable

by

who favoured (ii) and (.iv) with just one

11

the

women

corporator

preferring

suddenly

number

However

(i).

women

who

are

confronted with the entirely different scenario in

the

corporators

elected municipal bodies reel at a disadvantage.
Experience

or

analysis

here

being

a Bombay Women

relates

to

the

Corporator

impact

Our

of

the

study

increased

participation by women on the form and content of decision making

in

local

government.

One of the most interesting

findings

to

emerge from our study was the women corporators' affirmation they

they had been able to voice their concerns and initiate action on
them.

Above

all, they felt that as corporators

they

had

the

power to raise issues in the municipal corporation. take them

up

directly with Municipal officials and push for work to be carried
out in localities.
to

Tills related not just to various issues

affect women alone. indeed many felt it difficult co

such issues and other urban issues.
not

been

asked

to deal only in

areas

pertaining

children and health, but to tackle all

issues.

However

officials

isolate

They reported that they

issues.

the

seen

of

the

to

city

had

women s

management

corporation

reveals

different angle of the story.
Because

of this, we asked them how

experience

of

expectations

with particularly interesting results.

political

office

compared

reported experience with respect to :
support from constituents
%

support from family

support from male corporators
t.

support from other female corporators

+.

support from municipal officials

12

with

their

actual

their

prior

Nearly

all

*

ability and capacity to push forward ideas and,

•K

performance over previous year

All

women

corporators

felt that they were

able

to

meet

the

aspirations of their constituents with regard to service delivery

of urban amenities and redress of grievances of people.

However,

the question of the accountability of women corporators to

their

constituents brings to the focus the pattern of present electorol

system.

With

no system of impact analysis, feedback.

from

the

people about corporators performance, or compulsory communication
with voters in the area in between elections, the entire

process

is restricted to voting once in every 5 years.

ASPIRATIONS

We

find women corporators in Bombay

reporting

a

failure to meet some aspirations
*

Employment generation

Cleanliness/environment; and
K

Community participation

Above all, we find ambitions frustrated in respect of low

income

groups

women

in

the

city.

corporators

in

Bombay have space to voice their own

constituent's
political

political

It

would

be

seen

that

while

and

their

on

their

they

have

in

our

aspirations, to raise issues

agenda and generate discussion and debate.

yet to realise all these goals in practice.
CORRUPTION

The

research

women

time

question

corruption cropped

of

and again, particularly the

and men in this respect.

differences

between

and

others

All our respondents

13

up

were

emphatic

in claiming that women corporators are

corrupt than men.

happenings
feel

in

far

But the further exploration in view of

Bombay, tells us different story.

We

less

recent

sincerely

that if the women concerned remain 'uncorrupted' then

they

may well impact strongly on the local governance of Bombay

city.

But the. question is - Whether it is possible ?
The

overall

analysis

indicated

that

women

corporators in Bombay had pushed-ideas on city management issues.

set

the

debate

for

achieved

mixed

results.

environment,

poverty.

their objectives.

in

Their ambition

community

practice

to

deal

participation

they
with

and

had
clean

employment

generation etc. had. so far, been frustrated.
The

reality,

but

reservation of electoral seats has

reservation for women is not just

a

become

a

question

of

bringing a certain number of corporators in municipal bodies, but

those

elected

should highlight a wide range

including

gender

generation

of

issues

such

of

civic

issues,
women,

as

violence

against

employment, economic

equality,

criminalisation.

environment etc. ,,It is necessary to have broad spectrum of urban

issues

for

political

reservation

bringing and activating women

The

process.

issue

now is

into

the

mainstream

whether

a

30

percent

for women will alter these processes or not ?

Will

this innovation empower women or will the old process continue to
keep

them

.political

in

their place ?

power

is

just

Bringing

women

to

positions

the

step-

in

our

first

of

social

transformations.

Women in India have discussed whether this

progress or not.

They wonder 'is this just a populist gimmick on

the

part of the ruling party to win women voters?...

steps ensure greater and more meaningful political

14

will

is

such

participation

of women?'

percent

(Kumari, 1993).

reservation

manipulation

by

for

the

Kumari

constituency.

Critics of the moves towards the
women say

this

Congress party to
adds

is

simply

cultivate

•’The

of

electoral

political

women

autonomous

organisations have their doubts about the 30 percent

sears as they fear that by

30

as

a

women s•
reservation

participating

in

the

corrupt electoral process. the women's rights activists will

get

co-opted

in

pursued

to achieve very narrow and short-term political

the process of opportunistic.

debased

politicking
goals”.

However, she also points to some encouraging experiences of
reservations found in Maharashtra, Gujarat and Karnataka

seat

States.

'Elected women members have proved their worth by their excellent

work

in

construction of school buildings

and

bio-gas

plants.

water supply. generation of self-employment opportunities.

and

scholarships

collections.

for

All

needy

and

poor

students

and

books

improved

the women interviewed by us welcomed

the

30

percent of reservation seats. which provided them the opportunity
to

enter active politics in city like Bombay.

They stated

that

men, almost from all political parties, were not keen that

women

be

large

given

numbers.

given

such

a

an

opportunity to move

away

from

their

limited

of existence at home and prove their worth in big

Bombay.

effective

chance to contest civic election in

Most of the women corporators felt that reservation has

women

spectrum
like

a

in

city

However, almost all of them emphasised that to

be

civic service delivery area one must belong

a

to

political party, since without powerful backing and support,

one

is a lone voice which can be easily ignored.

Some

men corporators have been hostile to the

30

percent reservation. arguing that women are too inexperienced

to

govern cities.

Women answer that while they are inexperienced in
15

mafia politics, they have a great deal of experience of real life

of

issues.

organising and campaigning.

But they

are

fearful,

too,

that the 30 percent reservation may be mere tokenism.

that

the women who got into political power through

might

be

mere

place-women, only

because

this

of. their

and social background. and not likely to fully

and

for improvement in the lives of women.

example.

considers that the impact of the

has

to

been

powerful

faced

promote average and

women with feminist convictions.

women

rather

But the

Karnataka

for

strategy

than

difficulties

by women trying to enter politics have encouraged

for the idea of reservations.

the

support

Kaushik,

reservation

flexible

route

political

linkages
work

And

support

The experience of Maharashtra

shows that the system of reservation operates

and

through

notification of a certain number of constituencies/wards

“women's wards”.
viable

one

7

as

The question here is, whether this aspect is

a

The

is

Karnataka

experience

shows,

there

manoeuvring to see that the more difficult wards. such as, slums.
where muscle and money power is rampant, are earmarked for women.
Yet

the

reserved

wards in Bombay, witnessed

lower

levels

of

violence CFFS- 199?).
Those who support this strategy stress the need to
strive

the

to get women's perspective and priorities projected

policy

priority

to

and

decision making process

and

to

specifically women's issues in urban
Tli us

reservation, affirmative action

give

into

greater

areas.

and

quotas

for women in elections. legislatures and administrative positions

have

India.

emerged

as important demands in the

women's

The 74th amendment of the constitution

movement

indeed

in

contains

some very important provisions which are sure to make for a great

improvement

in

the

working

of

16

the

local

self

government

institutions

in the urban sector.

Similarly the reservation

of

seats for the scheduled castes,'"scheduled tribes.
women and even
backward classes is a progressive step
towards involving all
sections of the society in the
governance of local bodies.
Hie
reservation for scheduled
castes and tribes has however been in
existence and quite well implemented
for decades. The idea ‘Of
reservation for women,
is more recent but has already been
enthusiastically implemented.
REQUIRED IN-PUTS
Hie

the

increasing emphasis on local

governments

as

focal point for city development. and the changing roles

of

these

heavy

governments

in fulfilling that growing

mandate,

puts

burden

their

Today,

elected

representatives

on

elected

people.

need to be knowledgeable about

an

increasingly

complex

set of interrelated urban issues. they must develop

skills.

a 11 i t u d e s

role.

of

in response to the changing nature

new

of

their

The need to provide training has never been greater.

Most

tlie

training relate to what the councillor

is

required

to

know. to perform her role within the legislated boundaries of
position.
by

a

Wliat elected councillors are required to know to abide

laws. rules and regulations laid down
over decades

difficult

to grasp in anything but short.

quickly

programme.

Hie

training should help councillors

knowledge.

It

is important to list what the

cannot

rather

do

the

often

administered
acquire

elected

than what she can do to be

is

this

official

responsive

to

a

Training should

be

designed in such a way which will equip the
women councillors

to

rapidly changing environment in urban areas.

perform better in the city development process.

17

Women members require to be trained to enable them

to

perform

elected
or

their role effectively in

city

management.

members of the municipal bodies may not have

Newly

experience

knowledge about several municipal administration aspects

and

it is essential to provide appropriate training in-puts for

this

purpose

to

help

them

to

perform

their

roles

effectively.

Analysis of the participation of women representatives shows that
all of them have not really been successful in representing their

issues.

Women

systems

actually work.

need to be trained so that they

Areas of training would

understand
include

how

gender

sensitisation, urban development aspects, leadership development,

etc.
Thus,

ensured

if

women

development

political education and training should
are to effectively participate

In

process.

formulated

Maharashtra

State,

in

the

the

recently

policy indicates that the government is committed

provide

the support needed to equip and train women to

their

role

as

decision

makers

in

local

be

self

take

city

to

on

government

institutions.

It is then. that women corporators will be able to
use

reservation

ladder

to

become

system

as a stepping stone

effective

in

city

in

the

management.

eventually to do away with the need for reservations.

I■ - F -

t = 1. r k. - K

la

-.-.R-y.

political

issues,

and

i

REF E R E M C E S

1.

Harry

J, Honour T, Mac Gregor S, and Palnitkar, 3-(1994)

Women

and

Local

Governance

Innovations

in

Local

Governance, paper presented to the Annual Conference of
British

Sociological

Association,

University

of

the

Central

Lancashire, March 1994.
2.

Barry

The

J, Honour T, Mac Gregor 3, and Palnitkar, ’3 (1994)

Women Movement and City Governance, paper presented

Annual

Conference

of

the Women's

Studies

Network

at

(UK),

University of Portsmouth, July 1994.
3.

FES,

(1992) - Women in Politics - Forms and Processes,

New

Delhi.
4.

UNCHS (1994) Training Manual for elected corporators.

5.

Kumari, R ted) (1992) Women in Decision Making - C.S.R., New

Delhi.
6.

Municipal Corporation of greater Bombay, Year Book, 1994-95.

7.

Palnitkar

S (1994) and Barry J (1994) - Research

Study

on

comparative study of Women Corporators in Bombay and London,

Mega Cities Project.
8.

Government

of

Maharashtra, Policy for

Women,

June

1994,

Bombay.
9.

All

India

Institute

of Local

Readings in Local Government.

19

Self

Government

(1994)

DSV2-- S

rajsmmcBss
mmJLOI’AMJKIT

WINING AND
WORKSHOP PROGRfiMhO

f

owci’icli.

LlI-e.

in

fuLLn^i i

CATHOUC HOSPITAL
ASSOCIATION OF INDIA
157/6, Staff Road,
Gunrock Enclave
Secunderabad 500 003
Andhra Pradesh, India

i
i

CHAI TRAINING - AN INTRODUCTION

[Tow COST COMMUNICATION SKILLS )

The Catholic Hospital Association of India (CHAI) is one
of the pioneer institutions in the country to bring health
care to the poor and needy as early as 1943. Today
CHAI has around 2650 member institutions • big and small
spread across the length and breadth of India serving
millions. The ultimate goal of CHAI is to build-up healthy
communities where peace, justice and love will prevail.
To achieve this goal CHAI collaborates also with Chris
tian Medical Association Of India (CMAI), Voluntary Health
Association of India (VHAI) and like minded voluntary
organisations.
CHAI believes in achieving its motto, ‘HEALTH FOR
MANY MORE’ through Community Health Development
Programmes in micro and macro levels. The concept of
CHAI’s Community Health and Development is. a pro
cess of enabling people to exercise collectively their re
sponsibilities to maintain their health and development
and to demand them as their right
The evaluation after 50 years of CHAI’s continued ser
vice to the people has brought out the need for Human
Resources Development in Health and Development as
one of the means to achieve its ultimate goal. Hence we
bring to our member institutions and other like minded,
the following training programmes and workshops to de
velop the human resources development at various lev
els to serve and empower the community for a better
tomorrow.

Aim : To train participants to make their own low cost
communication methods and materials

(community ORGANISATION )

Topics covered :

• Roles and importance of communication in
Community health and development
• Elements, barriers and approaches
• Three phases of Communication
• Preparation of low cost A.V. aids
• Message formation
(COMMUNITY HEALTH PROGRAMME MANAGEMENT )
Alm : To equip the participants in simple management
techniques suitable for Community health
programmes'Projects.

Topics covered :

• Situation analysis
• Organisation structure
• MIS
• Motivation and Team building
• Book keeping
(PARTICIPATORY RURAL APPRAISAL)
Aim :To train the participants in the various PRA

techniques

Topics Covered :
Aim : To equip the participants in various skills involved
in Community organisation.

Topics covered:
® Concepts of community organisation
© Approaches in community organisation
© Philosophy and functions of organisation
• Sustainability in Community organisation
( COMMUNITY HEALTH PROGRAMME PLANNIhlG)
Aim : To train the participants involved in community health
to plan a systematic programme for implementa
tion.

Topics covered:
© Concepts and Approaches to community health
© Elements of Community Health
® The five vital steps in planning
@ Analysing few existing community health programmes

• Importance and usefulness
© Pre-requisite of PRA
• Various methods in PRA
• Evaluation
(CLW TRAINING )
Aim : To equip the participants to tram the CLWs

Topics covered :

• Roles and responsibilities of CLWs
• Selection criteria
© Value based education
• Preparing Curriculum
• Training techniques

( COUNSELLING SKILLS]

( PARTICIPATORY TRAINING METHODS )

Aim : A step-by step approach to need based
counselling

Aim : To equip the participants to plan their own
participatory training methods.

Topics covered :

Topics covered:

• The person and well being
• Individual and Family Reconciliation
• Stages in pastoral care
• Skills practice

• Concepts and principles
• Steps in planning
• Different methodologies
• Skills development

[pastoral care]

( HEALTH EDUCATION]

Aim .'Astep-by step approach to pastoral care in difficult
situation

Aim .-To train the participants in developing and
implementing Health education programmes

Topics covered :

Topics covered:
• Concepts and principles of health education
• Identification of health needs and problems
• Common diseases and First Aid-Health Education
techniques
• Educational evaluation

• The person and well being
• Individual and family Reconciliation
• Stages in pastoral care
• Skills practices

LONG TERM TRAINING
( HERBAL TRAINING (BASIC) j

( TRAINING OF TRAINER^)
Aim .'To impart knowledge and skill to the participants in
treating common ailments with herbal and home

remedies.
Topics covered :

• Basic principles of Ayurveda
• Identification of medicinal plants
• Diagnosis of diseases
• Preparation of herbal medicines
• Treatment with herbs
( RATIONAL DRUG THERAPY ]

I

Aim :To evolve rational methods for drug usage and to
popularise these methods.

I

The watch word in Community Health and Develop
ment is •Sustainability’. To achieve this, we do need to
train and equip the man power in institutions striving haul
to make it a reality Realising this need, CHAI is lool um
forward to tram personnel in different regions of India in
various skills and make them self contained to develop
others in their respective regions Hence training of Tram
ers Programme has become vital
This is offered on periodic basis to the selected opted
individuals from CHAI member and NGO circle Tfiey
will undergo the number of different pmcjrammes oe|j
nized by CHAI and will l?e given the Imai diploma Ih-' >'
members will be utilised to meet the various training n»•• -d-.
in their respective regions in the country apart from their
respective organisations.

I

Topics covered:

• National Drug Policy
• Essential Drugs
• Hazardousdrrational Drugs
• Drug Information and Ethical Marketing
• Self Reliance & I.D.I.

(TRAINING OF TRAINERS (HERBAL)]

The pre-requisite for this training is the basic training
offered by CHAI for six days or a practitioner of heil>al
medicines for a minumum of two years
This training is basically focussed at equiping the al
ready trained or practitioners to become full fledged tram
ers to promote this alternative system of medicine in Ini''

with our traditional and more safe system of treatment.
The duration is 5 weeks residential and is conducted in
November every year at CHAI herbal garden in
Secunderabad.

URBAN COMMUNITY
HEALTH PLANNING AND MANAGEMENT

The mushrooming of slums have increased in the coun
try. These slums are characterised by inhuman living
conditions. It is estimated that more than 30% of the city
population live under such condition.

So the need has become very urgent to address these
issues. Due to the magnitude of these issues, we do
need to approach them in a systematicand well planned
way. Hence, this training programme becomes imminent
to anyone concerned about the urban poor
Duration : 12 Weeks.

infotnuitic-vi and ^<-'1

THE EXECUTIVE DIRECTOR
CHAI
P.B. 2126, Gunrock Enclave
Secunderabad - 500 003 India
Tel: 848293, 848457
Fax: 0091-842-811982
Tlx: 0425 6674 CHAI IN

SPECIAL FEATURES

One of the largest NGO network in the world

52 years of successful community service to the people
»• Highly qualified and experienced faculty

(GENERAL INFORMATION )

O All programmes are open to male and female
participants.
O All the programmes are residential in nature.
O All the participants are expected to be in the venue by
the previous night of the programme or at the latest 2
hours prior to the starting of the programme.
O Each programme has got different fee structure
according to the inputs planned and the materials dis
tributed.
O Participatory training methodologies used in all the
programmes.
O Certificates are distributed on successful completion
( SPECIAL INFORMATION^)

☆ Programmes other than listed here will also be
entertained as per the needs and requests from the
organisation depnding on our availability
A Mission orientation and community health orientation
programmes are available from 2 days to 6 days du
ration on request.
☆ Request fortraining of a group isencouraged. Where
individuals need to be trained, will be combined with
other groups.

Guest faculty from within the country and abroad

Herbal garden
»• Computer lab

<*• Publications
Audio visual aids

»«• Training manuals for self directed learning
’«■ Post training consultancy services

««■ Training follow up programmes
«• Exposure to various NGOs in health and development

**■ Participatory training methods
Self and peer evaluations

:

w/ 2 3
Improving Health and Nutrition of the Urban Poor
- Lessons from Kerala and Tamil Nadu

1.

Issues and Problems

Kerala and Tamil Nadu are both highly urbanised with 26.39% and
1.1
34.15% urban populations respectively. There is also a growing trend in
urbanisation.
The trends in poverty levels in urban /and rural areas nationallly
1.2
reveals that while rural poverty Is declining, urban poverty is increasing.
While then is generally no disaggregated, intra-urban data available,
1.3
it is generally accepted that the health and nutrition status of the urban poor
is deplorable.

1.4
Health and nutrition status is correlated with several soci-economic
factors such as illiteracy, unemployment, lack of safe water, lack of sanitation
facilities, lack of household food security, inadequate housing etc. SC/ST
populations, children and women are more vulnerable; wasteful expenditure on
alcohol, tobacco and drugs and non-participation of men in family health and
nutrition actions are also important factors.
1.5
Availability of health facilities in terms of hospitalsand doctors (both
public sector and private sector) is not a problem in urban areas, but the
problems are more related to access, cost, and lack of outreach services and
programmes.

2.

Approaches to improving health and nutrition of urban poor.

Five major components have been identified for a comprehensive strategy;
these are as follows:
2.1

Coordination and convergence of existing services, programmes and
schemes for eg. IPPV, ICDS. UBSP etc.

2.2

Creating new services and infrastructure

2.3

Mobilising the private sector and NGOs

2.4

Community level awareness and involvement in health and nutrition
related actions

2.5

Poverty alleviation especially related to water, sanitation, housing,
women’s employment and household food security

Case study of Tamil Nadu
In Tamil Nadu the major approach has been the City or Town Planning
(completed tor 20 towns). Under the leadership of the District Collector and
Municipal Commissioner, the various concerned departments drew up an action
plan focussed on achieving the CSD goals including health, nutrition, education,
water, sanitation etc. The emphasis was on how to reach the urban poor,

especially the women and the children. By gearing up existing services and
undertaking micro-level planning, the benefits will be extended to the hitherto
unreached populations.

Traditionally, the NGO sector (namely Rotary) has been involved in a
massive way in the immunisation programmes especially in the Polio campaign.

4.

Case Study of Kerala

In Kerala a totally different approach has evolved with community
mobilisation and women’s empowerment as the basis for local community action and
convergence of various services and schemes.
As an evolution of the UBSP and CBNP programmes of UNICEF, Community
Development Societies have been formed in each of the 18 towns and are to be
formed in all 57 towns by 31 March 1995. Women from poor families are organised
into formally registered societies called the Community Development Societies
(CDS) and they plan and implement programmes for the betterment of the whole
family and community with special focus on health and nutrition.
The poor families have been identified by the community themselves on the
basis of a Nutrition Risk Index consisting of nine risk factors viz: illiteracy,
unemployment, lack of safe water, lack of sanitary latrine, sub-standard housing,
eating only two or less meals per day, belonging to Scheduled Caste or Scheduled
Tribe, having one or more children under five years of age and alcoholism in the
family. Families with four or more of these risk factors are identified as being
poor or at high risk of malnutrition and ill health.

The organisational structure of the Community Development Society consists
of the Neighbourhood Group (NHG) at the neighbourhood level of 25-40 families,
the Area Development Society (ADS) at the ward level and the Community
Development Society (CDS) at the town level. In Alleppey town there are 350
Neighbourhood Groups and 24 ADS. At the NHG level, an elected five member
committee undertakes a rapid survey of the families, identifies the high risk
families and prepares a micro plan for interventions and activities addressing the
identified risk factors. The micro plans from NHGs are consolidated at ADS level
to the mini plan and at the CDS level to the CDS plan.
Resources are mobilised by converging various services and benefits from
existing government programmes and schemes, by approaching banks and other
donors and by self mobilisation through thrift and credit societies. With
resources from Government, Municipality, UNICEF and Banks, the CDS has been
able to provide support for the micro plans and miniplans in a substantive way.

Activities undertaken include provision of community wells and taps,
household sanitary latrine, loans for shelter improvement, loans for income
generating activities, the formation of thrift and credit society, setting up of
kitchen gardens and food grain banks, health and medical camps, health and
nutrition education, and non-formal adult education. Other activities include
community lights, raising of pathways and community libraries etc.

The CDS has been charged with the responsibility of selection of
beneficiaries from among its members for the existing anti-poverty programmes
in the urban sector such as the Nehru Rozgar Yojana (NRY), Environmental

Improvement of Uban Slums (EIUS), Urban Basic Services for the Poor (UBSP)
and Low Cost Sanitation (LCS) Project etc.

The CDS has operationalised the concepts of community assessment, analysis
and action by the poor, empowerment of women, convergence of services and
benefits and intersectoral coordination.
5.

Role of NGOs and private health sector
5.1

5.2
pockets

Offer free/low cost health care services
Initiate/undertake outreach

services

in

selected

unreached

slum

5.3
Participate in national health programmes especially Child Survival
and Safe Motherhood Programme (BFHI, FRUs, NIDs, Polio eradication)
5.4

Participate in city/town planning processes

5.5
Initiate/undertake actions to mobilise communities by organising and
empowering women from poor communities

< •

A

/

URBAN BASIC SERVICES FOR THE POOR
REVISED GUIDELINES
I

The Urban Basic Services Programme in India was initiated during the seventh
1.1
five year plan period for urban poverty alleviation. The programme was funded by the
central and state governments and the UNICEF. The National Commission • on
Urbanization which examined the implementation of the urban poverty alleviation
programmes in the country, recommended for its universalization covering all urban
areas. Based on the experience of implementing the Urban Basic Services (UBS)
programme during the seventh plan period, and the recommendations of the NCU, the
government revised it as "Urban Basic Services for the Poor (UBSP) Programme and
integrated it with other urban poverty alleviation programmes, namely. Environmental
Improvement of Urban Slums (EIUS), Nehru Rozgar Yojana (NRY) and Low Cost
Sanitation (LCS). The revised UBSP programme is under implementation in about 280
towns as of July 1994.

12
The Guidelines for the implementation of the programme were initially issued by
the Ministry of Urban Development, Government of India, in June, 1990. The additional
guidelines were issued from time to time based on needs and requirements. During the
implementation of the programme different models based on diverse state situations
emerged. In view of the emerging trends, experiences gained, it has become necessary
to give flexibility to the states to articulate their own suitable approaches to reach the
urban poor faster and to achieve the 8th Five Year Plan objectives including NPA goals.
New opportunities such as the 74th Constitutional Amendment Act (CAA), National
Plan of Action (NPA), etc., indicated the need to review and modify the guidelines in
order to improve the effectiveness of the UBSP Programme in the future. The
modifications to the guidelines have been evolved on the basis of two national level
consultations. The first consultation on the Guidelines was preceded by state level
consultations. The second consultation on Convergence and Reaching the Urban Poor
was attended by state UBSP teams as well as by senior officials of different ministries
and departments in related convergent sectors.

1 of 20

2.

GOAL :

UBSP is a (Jynamic process which functions with the broad goal of creating a facilitating
environment for a significant improvement in the quality of life of the urban poor. This
is envisaged to be achieved through community organization and mobilization,
empowerment of communities, especially of women in order to equip them in the roles
of decision-making and community management and a process of convergence to
enhance the reach and effectiveness of the existing sectoral programmes for the urban
poor who are found not only in slums but in a wide range of conditions and places. It
aims to introduce a pro-poor orientation in the design of new programmes and evolve
innovative partnership arrangements to fulfill the community's critical needs. It aims to
ensure a sound foundation and evolve new approaches to promote the participation of
the urban poor in their development as well as improvement of cities and towns within
the context of the 74 CAA.
UBSP as a strategy is flexible and adaptable encouraging local innovations and variations
at the state, city and community levels in response to local needs and state priorities in
the context of national goals. The UBSP is to contribute positively towards achieving
national goals and implementation of National Plan of Action among all urban dwellers
with participative strategies and plans encompassing the needs, concerns; experiences
and opportunities among all city residents including the poorest.
By improving the quality of life of urban poor
the quality of life of everyone in the city improves

3.

OBJECTIVES :

To achieve the eighth plan objectives of targeting 500 cities and 1.4 million urban poor
households (an estimated 7.0 million population) by 1996-97, with the aim of universal
coverage in a phased manner of all urban poor households with three specific objectives:

2 of 20

3.1 Effective Achievement of Social Sector Goals : ,
To provide a platform to other sectoral programmes with a view to facilitating effective
and rapid achievement of social sectoral goals including those incorporated in the
National Plan of Action for children in cities and towns by targeting the poorest through
the community-based participatory processes in harmony with the provisions of the 74th
Constitutional Amendment Act
3.2 Community Organization, Mobilization and Empowerment:
To establish and support self-reliant community based women's and other organizations
to actively participate in planning, implementation and monitoring of community
development programmes.

33 Convergence Through Sustainable Support Systems :
To enhance the convergence process through :
facilitating adequate and effective coverage of the urban poor in all urban
programmes through information dissemination and exchange;

evolving innovative approaches to partnerships across departments, private
sector,NGOs and other potential actors for maximizing the coverage of urban
poor for socio-economic development and improving their quality of life;
establishing linkages between community and city level planning and
management structures through a systematic devolution of resources and
responsibilities to match with community needs, capacities and efforts at resource

mobilization.
4.

STRATEGIC PRINCIPLES :

Participation of the target groups in identifying needs, prioritization, planning,
implementation, monitoring and feedback

3 of 20

Convergence of programmes and schemes of national, state, district and municipal
governments in urban poor neighbourhoods to ensure such areas are targeted and the
population fully covered towards achieving the set national goals for social sector. This
includes convergence of all urban development/urban poverty alleviation programmes.
Cost effective innovative actions to supplement or bridge finance actions to prpmote
coverage of essential goals, aiming at sustainability through community action and
convergence.
Child-mother focus to ensure the most vulnerable groups are targeted.
5.

COVERAGE AND PHASING :

5.1 Target 500 dties/towns during Sth Five Year Plan: The following will have priority
while selecting new UBSP towns:
a.

UBS towns not covered by the above but with staff presently financed under state
resources.

b.

Demonstration towns/areas from April 1995

c.

New towns - Class I cities or metros based on municipality's willingness to
provide staff.

d.

For additional towns/dties to be taken-up in future, priority should be given to
those towns which have large number of urban poor population and relatively
poorer performance on available indicators of NPA goals, as available through the
reliable and comparative sources.

The urban poor for the purposes of the programme may be considered as those
living below’ the defined poverty line, including those living in the slums famibes living
in small scattered clusters and colonies; undeveloped settlements on the outskirts of
dries; pavement dwellers and street children and any other related categories which are
underserved by ongoing programmes. Spedal attention to SC/ST/BC and others as
identified in respective states be encouraged. However non income criteria for
identifying the genuine benefidaries i.e. poorest of the poor may be utilised for economic
benefit schemes like NRY. (For non-income criteria - see Annexure I).
52

4 of 20

53
Targeting the Poor: The UBSP should identify approaches for a broad spectrum
of urban poor communities in order to demonstrate alternatives for a rapid expansion
in the future. The approaches to be adopted may vary depending upon the type and
status of the group with the principle of promoting universal coverage of basic need

attainment through community support and convergence.

The UBSP
programme iniuauy
initially would
population)
54
The
UBSP programme
womu target
idrgci 2000 households (10,000 r
~x------ ,
in cities with 1,00,000 population; 4,000 households in cities having population between
A. J two and three lakhs; 6,000 HH in cities having population between 3-4 lakh and 8,000
in cities having population between 4-5 lakh; and 10,000 households in cities with above
5 lakh population.

55
UBSP is not designed to continue intensive inputs and interaction in the same
communities ad infinitum. It is expected that Cos will provide intensive time for about
2-2 years in an area (10,000 population) and then will move on to new areas after
' handing over the responsibility to the registered community groups (in a systematic
manner) and decrease the intensity of their involvement and interaction with the older
neighbourhood groups. This is to enhance coverage and to promote a process of
community self-reliance without depending on such a facilitator for too long a time. The
time frame may vary - but a facilitator (community organizer) must support, the
community and city level planning systems, not implement directly over a prolonged
period of time.
56
For continued action and support to the UBSP systems developed at the
community level over a period of time, a city level UFA Cell or CDS should be
constituted. This cell should be responsible to ensure that these groups are involved and
consulted on city and area-specific development plans and programmes even after UBSP

resources are completed.
1

6.

ORGANIZATIONAL FRAMEWORK AND RESPONSIBILITIES :

The programme
promotes community organization with special
focus, on women
6.1
. „
v
•
-------with supporting and facilitating mechanisms responsive to the groups•/ needs of
- , mobilise
appropriate
resources, but moving towards selfdevelopment with a view to
i
..
reliant community-based organization and linking them with city and sectoral processes.
The community organizations include neighbourhood groups (NHGs); neighbourhood

5 of 20

development committees (NDCs)
development societies (CDSs) :

63
Neighbourhood Group (NHG) is an informal association of women living in a
mohalla or basti. Geographic contiguity and homogeneity should be the basis to carveout the boundaries of the NHGs. At least one women resident among them who is
willing to serve as a volunteer should be selected as a Resident Community Volunteer
i(RCV) through community consensus or election or any other democratic process. There
should be a change or rotation, if need be, of such volunteers at periodical intervals.
The responsibilities of the RCVs indude :

C)

to serve as a channel of information and communication among the families in

the duster;
(ii)

to represent the views of the group in the neighbourhood committees and
community development sodeties and other forums,

(iii)

to support planning, implementation and monitoring of activities at the

neighbourhood level;
Civ)

•

to foster and encourage partidpation in community improvement;

Neighbourhood
Development Committee (NDC/NHC) is a more formal
63
„
association of women from the above neighbourhood groups located m close proximity
feasible
2nd as I—-——within
---------the same electoral ward. The committee should consist of all the
RCVs from the neighbourhood groups. There can also be a provision for honorary
membership without a voting right for Cos, representatives of other programmes m the
community like ICDS supervisor, school teacher, ANM, etc. The NHC may form special
need-based sub-groups i.e. Primary Education, Health, Nutrition, Sports, Culture, etc.
as and when required. The NHC would be responsible to .
——

-- -

«

« «

•

•

_

A-l- —

1

0)
(ii)

identify local problems and priorities;
provide suggestions for group involvement in meeting community needs and

goals (mini-plans);

6 of 20

support local action with partnership of responsible agencies including

(iii)
community contracts;

provide feedback to agencies of programme effectiveness and out-reach, especially
Civ)

for children and women;

develop community capacity through training in association with Cos, NGOs and
(V)

other sectoral departments;
(vi)

develop community-based -thrift and credit systems.

various schemes.
• t-s i
ont Societies (CDS) are formal associations of the above
^S’ZTwBd orX level based on common goals and objectives. The society may
NHCs at tne
y
MHCs/NDCs with honorary membership

persons. The CDS would be responsible to :
represent needs of all the communities, especially women and children;

CO
liaise and link-up with agencies and departments to promote action in the
(ii)

(in)

community towards fulfillment of their needs;
identify specific training needs and arrange for their organization;

prepare community plans and proposals, mobilizing resources from the

Civ)

community, city or other sectoral departments.

The community development societiesfeho^be registered underJ^^^
Registration Act to provide access to grant-in-aid under various sc

a

wider financial and credit base.

7 of 20

6.5
Representation to NHCs and CDSs should be provided in ward level
committees in cities/towns with more than 3 lakh population under the 74th CAA.
In towns with less than 3 lakh population, such representation to NHCs and CDs
could also be extended in the Area/subject matter committee.
7.

PROJECT ADMINISTRATION :

7.1
To support community organization and processes at the town level, there should .
be one community organizer for about 2,000 identified families to act as a catalyst. The
CO, preferably a woman, should be a full-time functionary either recruited, transferred
or contracted. The CO should be a graduate either in Sociology, Social Work, Home
Science or Psychology with a proven record of working with the communities or an
inclination for community work Provision should also be made for allowing promotion
of community organisers who have excelled in the field and have a working experience
of at least 5 years. The CD's responsibilities include :
organizing

and

community

C)

facilitating and prorpoting
structures / groups;

(H)

guiding and assisting the community in need assessment and formulating plans;

(iii)

working with the community to implement and monitor the programme;

(iv)

liaise with the sectoral departments to establish initial contacts with the
community;

(v)

facilitating community skill enhancement through interactive experiences;

(vi)

organizing community level training and information sharing.

voluntarism

i

At the town
72
____ level, there should be a Urban
_____ Poverty Alleviation (UPA) Cell under
the charge of a Project Officer (PO) of the ULB. It is
i a coordinating body of all UPA
programmes. It is responsible to generate local municipal contributions, promote
linkages and convergence with all the sectoral departments. The Cell will coordinate,
plan and implement all the UPA programmes such as UBS, UBSP, NRY, EIUS, LCS,
schemes for night shelters for urban pavement dwellers and other special schemes for

8 of 20

im

n nun

SC, ST, women, etc. The PO will be the overall incharge of UPA cell at the city town
level and is supposed to play a vital role in respect of community organisation and
convergence of inter sectoral inputs. The PO must have a post graduation degree in the
subjects as mentioned for COs and should have at least 5 years experience in respect of
community organisation/working with the community at grass root level. The
functions/responsibilities of the UPA Cell/Project Officer would include :
Cl)

guide and monitor the work of CO(s);

Ci)

prepare city convergence plans based on the community plans and sectoral
programmes at district and municipal level. -

Cm)

promote integrated and coordinated implementation of UPA convergence plan;

(iv)

promote linkages of UBSP structures with the new structures under the 74th
CAA;

(v)

mobilize the human and financial resources at the city level;

(vi)

review and approve community action plans.

(vii)

monitor programme activities at city level (MIS)

73 District level :
At the district level, the State Government will constitute District Urban
Development Agencies (DUDAs) with^full time^.A.S. Officer to work under Collector
as District Project Director (DUDA) duly supported by other necessary staff. States in
Hilly regions and Union Territories may set up State level/Regional level Urban
Development Agencies according to their specific requirements. The Project Director
(DUDA) will supervise, coordinate and guide the project as well as the project staff
associated with U.P.A. programme and UBSP in particular. The UBSP should work
under the overall guidance and supervision of District Collector. However, the day to
day work relating to Urban Development including Urban Poverty Alleviation should
be entrusted to the District Project Director (DUDA) who may also designate as District
Coordinator (UBSP).
where . the’ urban
population is more than thirty per
------- Tin
fir District,
.. ...............
‘
cent, a Joint Collector Urban Development may be appointed^ This will fix responsibility

9 of 20

as well as ensure convergence of inter sectoral inputs at the district and town levels.
The functions of DUDA/District Project Director (UBSP) should include mainly.

0)
(ii)

fiii)
(iv)

develop a policy for urban poverty alleviation at the district level;
promote arid facilitate convergence with the sectoral departments at district/town
levels;
Promote information and experience exchange within the district
monitor city convergence plans and implementation at district level.

7.4 State level :
At the State level a programme implementation cell known asjkate UPA cell^in
the office of the Director and Commissioner of Municipal Administration, shquld be
constituted to coordinate with the State Monitoring Committee cell as well as ^istrict
Collectors^ District Project Director (DUDA) Municipalities and associated training
institutions. This Cell will be responsible for the implementation of UBSP/UPA
programmes (s) including review and approval of Municipal and District Action Plans
pertaining to urban poverty alleviation. The Cell would be under the Director
(Municipal Administration) and will have specialities in the areas of education, health,
nutrition, marketing technology, social survey etc. alongwith other supporting staff. In
those State where State Urban Development Agency (SUDA) is functioning with
appropriate staff as implementing agency it will serve as the State UPA Cell but with
a Director/Comissioner of Municipal Administration as the Chief Executive of SUDA
supported by the full time Additional/special Director. Guidelines for restructuring of
SUDAs will be prepared by the Ministry of Urban Development in order to make them
effective institutions to monitor urban development programmes. The State level UPA
cell/SUDA will be responsible to :

develop the state urban poverty programme and policy;
provide technical support to district/city to achieve convergence targets and
participatory systems;
,’
(iii) monitor and assess the programme; (MIS)
Civ) plan, coordinate inter-city visits;
(V)
plan, coordinate and monitor the State Training Plan
(vi) mobilize resources and determine allocations based on the need and performance;
(vii) guide and supervise the programme implementation through visits to the projects.
(viii) Report bi-annually programme status to SUDA

0)
Cn)

10 of 20

75 National level :
At the national level. Ministry of Urban Development is the Nodal Agency. The
work is looked after by the UP A division, headed by the Director/Deputy Director
(UPA) under the overall change of Jt. Secretary. The national level Monitoring
Committee (NLMC) monitors the progress of implementation of the UBSP programme.
The functions of the UPA division will include :

(iv)
(v)
(vi)

develop integrated and comprehensive UPA policy in the context of 74th CAA
and other national goals;
approval of state UPA plans, monitor and assess the state performance;
facilitate the process of convergence through linkages with sectoral
ministries/departments;
provide technical support and formulate a training strategy;
provide channels of information exchange amongst states;
mobilize resources from donor agencies.

8.

PLANNING PROCESS :

CO
(ii)
(iii)

Need based planning and action through community participation and
convergence is the basis of UBSP. To promote such a process, the following steps may
be adopted :
8.1

(i)

Rapid Appraisal: Rapid appraisal of all low-income representative communities
focussing on specific problem areas to understand the reasons, behaviour and
willingness of the communities to participate. The city UPA Cell undertake such
appraisal and compare the data with information from the non-target areas. This
data to be maintained per area for community-need assessment and later
monitoring and evaluation.
(

(ii)

Spatial Mapping : It is desirable to mark-out all urban poor clusters city wide
and the availability of locational facilities related to basic needs and NPA Goals.

(ill)

Need Assessment: To gain a proper perspective, assessment of community's felt
needs and their priorities should be undertaken by the NHGc and NHCs with the
support of city UP A Cell/CO. This may be undertaken through community self
Il of 20

survey and community spatial mapping exercises. Alongside, the UPA Cell
should undertake an assessment of different sectoral programmes to match the
programme components with felt-needs to assess availability of finance and the
related allocations.

Civ)

Developing Action Alternatives : The City UPA Cell, with the support of
NHCs/CDSs should review the convergence processes for meeting the prioritized
and appraised needs and develop action plan alternatives by mobilizing resources .
from community, city, state departments, private sector, NGOs, and other
institutions.

(V)

Community Action Plans : The NHCs based on action alternatives and
community's own priorities should develop a community action plan for
discretionary funding from the funds allocated to the NHC.

(vi)

Need Linked Credit Plans : The CDS and NHC should prepare credit plans to
meet the specific contextual needs of the NHCs and explore prospects for
loan/finance/grants from^extemal financial or other institutions (eg. NABARD,
HUDCO, Banks, NGOs., etc.).

(vii)

City Convergence Plans : The City UPA Cell should prepare financial flows and
workplans in response to the convergence possibilities, partnership arrangements,
training needs and selective use of UBSP funds to meet the critical gaps. The city
cells should also prepare Expansion strategies to cover all the urban poor in the
dty. NRY, HUS, LCS,et£, schemes should be included in the sub-sector UPA
plans.

(viii) State Training Plan : Based on a need assessment, an annual training plan for all
the UBSP functionaries, elected representatives, volunteers and other resource
I
persons should be prepared by the state UPA Cell and the state level training
I
institutions.
,

fix)

State Action Plan : Detailed state action plan detailing the technical support,
research and advocacy, information exchange, dissemination, monitoring system,
etc., should be prepared by the state UPA Cell with the support of the state level
training institutions.
'

12 of 20

I

(X)

National Action Plan : The UPA Division, Ministry of Urban Development,
Government of India, should prepare a national action plan outlining the national
efforts for technical support, research and advocacy, linkages with international
donor agencies, information exchanges, etc.

9.

MONITORING AND REVIEW :

Urban poverty alleviation is a comprehensive and integrated programme involving
several sectoral departments. Effective implementation of UBSP programme involves
effective convergence of inter-sectoral inputs at every level. This requires constant review
and monitoring.

9.1
At the National level. National Poyerty Alleviation Council, will be constituted
under the Chairmanship of Minister (Urban Development), Vice Chairmanship of
Secretary (Urban Development) and consisting of Secretaries from other sectors such as
Health, Education, Women & Child Development, State Secretaries, representative of
Planning Commission and reputed NGOs etc. This Council will meet once a year to
decide policy issues regarding Urban Poverty Alleviation Programme.
92
An Inter Ministerial convergence Forum under the Chairmanship of Secretary
(UD) and consisting of Secretaries of other Ministeries, Planning Commission and NGO
representatives, etc. will also.be constituted. This Forum will meet once in four months
to facilitate and monitor Inter Ministry convergence.
9.3
A State level Monitoring Cell at the Secretariat level will be formed to coordinate
with Government of India, State level Developments such as Education, Health, Women
and Child Development, Housing Social Welfare etc., as well as UNICEF and State level
training institutions. This cell will deal with policy level coordinators, guidelines and
monitoring aspects. It ■ will be under the overall control of the secretary Urban
Development/Municipal Administration and be directly looked after by an Additional
Secretary/Joint Secretary in charge of Municipal Affairs.

9.4
At the District Level, district level UPA commijttee with District Collector as the
Chairman and Additional /Joint CoTlector as the Direct Project Director (DUDA), will be
constituted to ensure the convergence of programme taken up by various specialist
department such as Health, Education, Women & Child Development, Social Welfare,

13 of 20

District Housing Corporation, SC/ST financial Corporations. The Additional ,' Joint
Collector i.e. District Project Director (DUDA) will be supported by appropriate technical
as well as other support staff.

9.5
As the city/town level, a UP A committee will be formed as part of the 74 th
Constitutional Amendment Act (CAA) to monitor the programme biannuallv. The
committee will facilitate convergence with other sectoral departments and approve city
specific plans.

10. NGOs INVOLVEMENT:
The NGOs encompass a wide spectrum of associations like cooperatives, service
organizations with experience, staff and adequate institutional support. Registered
Community Based Organizations (CBOs), i.e., NHCs/CDSs under the programme may
quality as well as NGOs. These NGOs and CBOs may be involved preferably at
community^ request in UBSP targetted slums. NGOs may also be supported if the
activity has the potential for wider city level application. NGOs to qualify for support
need to demonstrate willingness to promote development approaches aimed at
community self-reliance.
The NGOs may be involved in :
Process oriented tasks

Community mobilization and organization

Service delivery

Cost effective and innovative mechanisms
without duplicating the existing government
programmes

Supportive services

Research, documentation, communications

Technical support

Training; support in technical areas like thrift
and credit

Out-reach mechanisms

Ability to reach underserved groups among the
targets, (i.e. unauthorized colonies, street
families, etc.) in cost effective, participatory^
approaches and to promote convergence

14 of 20

■'

1

11. DEMONSTRATIVE ACTIVITIES :

be based on
or GOi/state resources. This may
■^^“nse 'o< partnerships amongst the private sector, NGOs, communities,
financial institutions, etc.

12. TRAINING :

,2.,

Training support is

at a.>

^C
pX“"
“mmiTmembers'and
chairpersons They should be included in all state and city framing plans.
Community : Volunteers including RCVs, NHC and CDS members, community leaders

and other community resource persons.
City : Appropriate municipal functionaries; city level resource persons;

elected

representatives, NGOs; programme functionaries.
District: Selected district officials and functionaries to promote convergence.
State : State urban and sectoral functionaries; elected representatives; NGOs; members

of state level training and research institutions.
National : Urban and sectoral functionaries, national
elected representatives and NGOs.

research and training institutions.
i

12 2 Training advisory committefe should be established at national, state and city levels
to formulate appropriate strategies and to ensure need-based course content, targe , g,
participation and assessment of training activities on an ongomg basis.

12.3 Training content should be need-based aimed at reaching theh
objectives. It should be reviewed periodically to ensure relevance to
state,

ty.

15 of 20

.i
i
1

communitv context. It is to be participatory, action oriented and appropriate to the target
group. Measurable objectives to assess effectiveness should be a feature for all courses.
12.4 The states which has been receiving UNICEF assistance for selected key result
areas including ’Training" since 1991, will follow the existing guidelines and precedure
for UNICEF assistance. However, the type of courses and total training days should be
chalked out in view of perceived training needs to strengthen the implementation of the

UBSP.
12.5 National training institutes identified by the GO1 should be responsible for training
of trainers and extending technical support to state level training institutes and state
governments. They should develop communication material, undertake research and
coordinate, formulation and implementation of training plans with the states.

13. INFORMATION/COMMUNICATION/ADVOCACY :
Under UBSP, there is a need to ensure at national, state, district, city and community
levels a sound information and data base which reflects needs, opportunities as well as
resources and gaps in order to maximize the outreach and coverage of existing
programmes and identity’ emerging needs. State and city analysis of schemes and
programmes in operation should be undertaken and documented for use by
functionaries and volunteers. Relevant and appropriate materials should be developed
based on the programme guidelines including local language manuals, handbooks,
leaflets, videos, research studies on urban poverty' and its effect on women, children,
families, etc. Under Convergence principle, the technical and professional resources
available on goals in various sectors should be identified and used as appropnate at
different levels to avoid unnecessary wastage of time and materials. Studies conducted
by other departments or agencies should be encouraged to include urban poor sub
samples wherever possible to obtain data of intra-urban differences on a regular basis.
14. MANAGEMENT INFORMATION SYSTEM :
I

MIS will cover basic operational information to support planning, convergence and
monitoring of the programme at all levels appropriate to the needs and responsibilities.
Qualitative data systems within a concurrent evaluation framework will be utilized.

16 of 20

J

»

15. FINANCIAL PATTERN :

'

objectives.

15.2 Allocation of Funds :
a.

Centre to States: The central funds for the UBSP should be allocated after
deducting 1% for administrative expenses and programme related support and
« for dted NGO assistance at a national level. The allocatton amongst he
states and UTs will be done on the basis of incidence of urban poverty as per the
latest available estimates from the NSS or planning commission. The minimum

floor amount for a state/UT should be Rs. 10 lakhs.
b.

States to Cities/Towns: Of the total funds available at the state level mcludmg the
^TZhTre, 75 per cent should be allocated to the towns and cihes on the basis
of urban popuhhon covered in the previous year or expected coverage during the
current year or utilisation of resources or performance m the previous yean
Twenty per cent should be allocated f6r meeting the admimstrahve expenses

SUDATnd the state UFA Cell and training activities. The remaining en p
should be earmarked as an incentive fund for cities and towns or allocation,
based on the performance and municipal contributions to the city UFA activi i .
c.

Citv/Town to NHC : The total funds available at the city level should include a
city share of 10% (in the year 1995-96 to be enhanced to 25% by 1999-2000) whic

may be used as follows .

upto 20% for the administrative expenses of the city UFA cell including the
i.

salaries of the project staff;

ii.

upto 1% for imprest money to COs for occasional activities in slum
settlements;

17 of 20

iii.

d.

upto 35% for support to convergence activities, for innovative action plans
and to provide technical support to NHCs/CDSs for the activities, viz.,
maternal and child health and nutrition, basic education (pre-primary and
primary),water,sanitation and environmental improvement, literacy
(especially for women), needs of girl child and adolescent girls, children
in especially difficult circumstances, social, cultural and cooperative
activities, income generation, thrift and credit activities, etc.

iv.

24% for community action plans to NHCs to be allocated on the basis of
total target population, year of operation and the NHC performance;

v.

15% to be g?ven as grants to the NHCs on the basis of savings mobilized
by them to be used for IGA loans to women; and

vi.

5% for local level training.

The allocation over a time needs to be reduced for item (iii) and increased for
items fiv) and (v) to promote convergence.

e.

For item (iv) and (v), the funds should be transferred to the authorized
community structures. For item iii, the transfer to the community structures

should be to the maximum possible extent.

:
m
me municipa] '•level, an UPA fund should be created with all the resources
15.3
At the
aXlabTe i^der UBS, UBSP, NRY, LCS, EIUS, and other development schemes. Specific
allocations for the targeted groups under special component plan should also form part
of the UPA fund. As feasible, sectoral resources may be included. The releases from e
fund must be effected based on approved action plans of the NHCs and CDSs.

16. OTHER DIMENSIONS :
i

UBSP cannot be seen in isolation. In its aim to reach out befter, serve and involve the
urban poor, it must be linked with other national efforts. These include :
74 CAA and linkages of UBSP systems and neighbourhood groups with the national and
dty level committees to be established.

18 of 20

A

UFA which comprises other projects including BUS, NRY. LCS, expects that UBSP
should precede such programmes with the community organization systems „h.ch wtll
promote community involvement and enhance benefits to those most tn need.

NPA: The National Plan of Action for Children embodies national targets for children

and women to the year 2000 AD., reflecting all relevant sectors.
environmental consciousness and action. UBSP Programmes
Agenda 21 - promotes
encompass basic principles of Agenda 21, particularly participatory mechanisms. UBSP
provides a base for primary environmental care which focusses on what communtbes

can do to upgrade environmental standards and sustain them.
fhP Rights of the Child to which India is a signatory which embodies
X * vision is to reach ah urban poor irrespective of where
they live.

Alma Ata - Health for All by year 2000 AD., ts yet to be reabzed o ^the urban ^or M
an active proponent, India has led the way in rural Prtmary Health Care (PHQ but lap
behind in a comprehensive PHC package for the urban poor, especially for women and
children UBSP can help achieve these goals.
UPMFA - Govt, of India has endorsed the principle of universalizing primary ^ucation
by 2000 AD with specific focus on the girl child. This requires spechc action
targeting among urban poor communities and UBSP can play a role.

Others :

f

The nationally endorsed recommendations and actions arising from other global or
national evente to be Included as relevant in the programme context. Th,s may include .
I
The UN Social Development Summit;
I ,
The UN Population Summit in Cairo;
The 4th World Conference on Women, Beijing, 1995;

♦

Others;

19 of 20

i

i

The vision of UBSP is not serving a few slum pockets. It is to benefit alt
urban dwellers with the active participation of all residents of the city to
make it a Healthy and Productive Environment for everyone especially
children and women.

17.

SUMMARY:

The UBSP is more than a scheme in and of itself. It aims to promote community-based
organizations in poor and undeveloped clusters in the cities and towns. It aims at
ensuring these groups receive the entitled Government services from central, state and
munidpal programmes. It provides for "gap” filling financial support until such ongoing
programmes fully cover the target areas. And lastly, it provides for resources, matched
with community and family investments in promoting the community itself to take
ongoing responsibility for its improvement aiming at making these families and
neighbourhoods full partners in city development.

It is emphasized that the first line of action is convergence with the responsible
department/agency at city or district level. In cases of this not being immediately
possible, UBSP resources are available based on community needs and interests for
financial support on the assumption that the responsible department will arrange for
appropriate support in two years.

The operational Handbook for UBSP will provide examples
to facilitate implementation of the Guidelines

!

i

20 of 20

Telephone - 657177

D.O.NO. 701-2/85-PADI
PEOPLE'S ACTION FOR DEVELOPMENTfINDIA)
GURU NANAK FOUNDATION BUILDING
NEW MEHRAULI ROAD
NEW DELHI-110067
7 August, 1986

ASHOK JAITLY
ASSISTANT GENERAL SECRETARY

l^v.

i

I enclose herewith a <copy of‘ the Minutes of the first
meeting of the Panel of Experts which was held in New
Delhi on 9 April, 1986. The delay in sending these minutes
is regretted.
In case you have any comments on the minutes, kindly
send these to me.

*u

Youts slncrely,

(ASHOK JAITLY)

Dr. Ravi Narayan
326 V Main 1st Block
Koramngala
Bangalore 560034
Karnataka

MINUTES OF THE MEETING OF THE PANEL OF EXPERTS OF PADI
HELD AT I HE NCDC CONFERENCE ROOM IN NEW DELHI ON
9 APRIL 1986

The list of the participants is at Annex-L
The participants were welcomed by the Genera! Secretary
to this first meeting of the Panel, who explained the background for
setting up such a group. Since all voluntary organisations
might not be experienced enough to formulate projects, it was considered
useful to bring together experienced people from amongst the voluntary
sector to help each other and infuse a degree of professionalism
amongst the smaller groups. The General Secretary invited the partici
pants to express themselves freely on what they expected their own
role to be and invited their comments on the draft guidelines which
had been circulated, as well as on any other matters of common interest.
The guidelines were extensively discussed. The observations
of the various participants were Experts should only be facilitators. They should
Impose themselves on other groups.

not

The knowledge and experience of local groups should
be given due importance whilst preparing projects.

In addition to the social skills of the Experts, technical skills and Inputs were equally important,,
spirit
of volunteerism, however, should not be compromised
in the process.

An Expert should not only be an evaluator but. more
Importantly, a catalytic agent providing counsel to the
smaller groups.

• 2 -

One role of the Expert would he to facilitate
an interaction between government and the people
which, in turn, should yield accurate feedback from
the Hehl
Experts should not behave or react like stereotype
bureaucrats,nor should they ;assumelthe role of
International funding agencies.
Experts should give priority towards id entifying projects
in the interior where projects were most needed.

The expert should not only identify a project.but
should monitor it, too, till its completion.
The word •expert? was itoo high sounding, and
with the spirit of vo lunteerism.

The Expert should organise programmes in the rural
areas to explain the role of PADI in rural development.
The state-wise distributioni of Experts was not
balanced: nine States had ]no representation*

The Expert should have a say in the decision
making process within PADI.
Experts should identify themselves with the weaker
sections whilst taking assignments.

tune

- 3 -

The role and functioning of PAD1 was alsr* discussed in
detail and the following comments and suggestions
were made by
the participants:
PA DI should be the ’single window* for voluntary agencies
to liaise with the Central Government
and facilitate
matters pertaining to other
Ministries and Departments
also.
The Panel would assist in making PADl*
s own working more
effective but internal organisational
changes were also
necessary to reduce time taken for .
sanctioning projects,
simplify procedures and respond to queries quickly.

Whilst the Pane! could assist in reaching smaller
groups.
it should not be const dered as a ’watchdog1 of FADE
The

agreement to be executed for FADI assistance w as
too onesided* and PADPs commitments also need
to be
includ ed.
PADi should provide assistance in removing bottlenecks
at the district and block leveis when voluntary agencies

came up against apathy from officials and hostility from
other vested interests.

PAD! could mediate in cases where there

were mhunder
standings between the Government and voluntary agencies

aw

*

The stamp-paper agreement deed has since been dispensed

with <

« 4 -

FADI should! initiate a process of making State
Governments more aware of the role and the contributton of voluntary agencies.

Experts to be appointed

in

the Panel should belong

to organisations and not ’unattached* individuals.
should consisder itself as part of the process
whereby the rural poor asserted
themselves and

PADI

established their rights lest
from many voluntary groups.

it

should be

alienated

FADI should facilitate a regular interaction with
experts on the Panel. They could become an effective
forum in themselves to• act
act as
as aa ’’pressure
pressure group*
for the proj ection ofr the interests of the voluntary
sector.
PADS should bring out a monthly magazine
to keep
voluntary agencies informed of the various efforts

being made in the voluntary sector in different parts
of the country.

In response to the comments and suggestions of
the Panel,
the General Secretary and Assistant General Secretary
indicated the
following As Government had earmarked a considerable quantum
of funds for voluntary agencies involved in rural
development, it was necessary that smaller groups
also had access to these funds.lt was impractical
for PADI to reach such groups by itself, and hence
the Panel to assist in this endeavour.
The

Panel

would

be

expanded

to

representation to all States and regions.

provide

balanced

- 5 Whilst PADI would certainly accept iits own liabilities
and commitments there were bound to» be disagreements
and differenes of opinion. PADI v jukl, however. not be

a party to cliques
agencies.

ar|d ideological debates amongst voluntary

it had already been accepted that a critical element in

the development process was to ensure that the rural
poor asserted and obtained their rights and Increased their
bargaining power. It was in this context that the Scheme
for Organisation of Beneficiaries had been conceived. This

would be implemented exclusively; through voluntary agencies.

Every effort would be made to streamline procedures and

speed up the process of project appraisal and approval.
In order to obviate 'bureaucrat!sation* and minimise overhead

expenditure it was the intention to keep PADI’s organisation
streamlined. This was another consisderatlon whilst setting
up the up the Panel of Exnerts.
Experts. Th
Thee question of setting

sip

Regional

Committees

or

State

PADs should

also be

viewed objectively in this context.
*

Dr*

B.K.

Sarkar, Joint Secretary, Department of Welfare
explained the role of voluntary agencies in the programmes for the
upSiftment and development of Scheduled Castes. Voluntary agencies

were invited to; get involved in the ‘ Special Component Plans for
Scheduled Castes being implemented through the State Governments.
An allocation of Rs. Joo la^hs was available for voluntary agencies
from the Ministry of Welfare for development programmes, removal of
untouchability and the like. It was suggested that an effective

legal aid system should be made available to voluntary agencies for
protecting and enforcing the laws pertaining to the removal of various
disabilities*

- 6 -

Shri N»C.Saxena, Joint Secretary, National Wasteland Develop*
merit Board explained the Board’s strategy in involving voluntary
agencies with their programmes* The following specific points
were brought to the attention of the Panek
Voluntary agencies should involve themselves actively
in tree plantation on lands owned by the rural poor,
on lands where patta rights had been granted and on
community lands with commuity participation.
Support would not be available for voluntary agencies
to develop their own land as this might result In creating
another form of landlordism.
In addition to providing funds for tree plantation and
decentralised nurseries, the Board could also support
training, workshops and evaluation studies*
The policy of the Board was to encourage mixed plantations
with preference for those species of trees which met
the requirements of fuel and fodder of the rural poor.

Stht. Sasmeeta Srivastava, Chairman, Central Social Welfare
Board, explained the various schemes tn which voluntary agencies
could also be involved* She emphasized that, in future, the Board
would concentrate on awareness building schemes and for this,
guidelines were under preparation with the help of voluntary organi
sations. Welfare officers of the Board .at the State level had
been advised to help the voluntary agencies in filling forms at
the local level itself* A time limit of 91 days for processing
a proposal had been set. Preference would be given to voluntary
agencies working in tribal and hilly areas, particularly with

- 7 children and rural women. The Chairman also mentioned that
State-level Boards were being reorganised in order to provide
greater representation to voluntary agencies who have field
experience.

Shri Upadhya of the Department of Non~Conventional Energy
Soiurces also interacted with the Panel and clarified various
questions relating to programmes for the development of alternative
energy systems in rural areas.
In respect of the terms and conditions for the Panel the
following were agreed upon:

Experts of the Panel would assist smaller groups with
technical expertise in planning and formulating viable
project proposals for assistance! by FADI.

Generally, this would be done after prior consultation
with PAD1. Experts may, however, on their own initiative
visit voluntary organisations within their own geographical
operation to assist in preparing projects for the consid
eration of FADL In such cases too, expenses within
reasonable limits would be met by PADU
Services of experts would generally be utilised in their
own geographical area of • operation or in a specific
functional area of specialisatioru

Appraisal and evaluation of projects could also be assigned
to experts by FADI depending upon the specific needs.
Format for such appraisal and evaluation and the time
schedule should be formulated by PAD! in consultation
with the expert.

area of

- 8 •
For appraisal and evaluation of projects, experts would
be eligible to actual travel cost as rayable to members
of the Governing Council of PADL The mode of travel
would be mutually agreed upon in advance.

Experts would also be eligible to daily allowance at
the rate of Rs. 100 to be calculated from the time of
departure from headquarters to the time of return*
Daily allowance would be calculated from mid night to
midnight. A stay of less than 6 hours in a day
outside headquarters would not be eligible for daily
allowance..
A professional fee, including cost of stationery etc*,
at the rate of Rs. 1000 per project would be paid to
the Expert after the project was sanctioned* PADI
could obviously not provide any guarantee that all
projects prepared by experts would finally be approved.

The meeting concluded with a vote of thanks to the chair.

/ '

SOUTHERN REGION CONSULTATION
HYDERABAD:16 JANUARY 1995
BASIC INDICATORS

Indicators

WORLD
SUMMIT
FOR SOCIAL
DEVELOPMENT
Copenhagen
Denmark
6-12 March 1995

Attacking
Poverty
Building
Solidarity

Creating
Jobs

India

Andhra
Pradesh

Karnataka

Tamil
Nadu

Kerala

million
million
million
%
%

838
435
403
17
8

67
34
33
16
6

45
23
22
16
4

55
28
27
19
1

45
23
22
10
1

Area

000 sq kM

3065

275

192

130

39

Population density

per sq kM

274

242

235

428

749

Urban population

%

26

27

31

34

26

Sex Ratio
- Rural
- Urban

1991

927
938
894

972
977
959

960
973
930

974
981
960

1036
1037
1034

Growth Rate
- Rural
- Urban

1981-91

24
20
36

24
18
43

21
17
29

15
13
19

14
3
61

Literacy Rate : 7 +
- Male
- Female

%

52.2
64.1
39.3

45.1
56.2
33.7

56
67.2
44.3

63.7
74.9
52.3

90.6
94.4
86.9

Crude Birth Rate
- Rural
- Urban

1993

28.5
30.3
23.5

24.1
24.3
23.4

25.5
26.7
23.1

19.2
19.3
19.0

17.3
17.3
17.2

Death Rate
- Rural
- Urban

1993

9.2
10.5
5.7

8.4
9.5
5.4

8.0
9.5
5.2

8.0
9.2
5.7

6.0
6.0
5.8

Infant Mortality Rate
- Rural
- Urban

1993

74
82
45

64
70
46

67
79
41

56
66
38

13
15
7

Child Mortality Rate

1993

33.4

22.4

23.5

20.1

8.4

Male life expectancy
at birth

yrs
1991-92

56

57.3

59.8

56.5

65.4

Female life expec
tancy at birth

yrs

56

60.3

62.4

57.4

71.5

1991-92

Total Fertility Rate

1991-92

3.4

2.6

2.8

2.4

2.0

Population
- Male
- Female
- Scheduled Castes
- Scheduled Tribes

Source:

unkeffO
United Nations Children's Fund

Registrar Generars Census of India
National Family Health Survey
Sample Registration System (Provisional)

: 1991
: 1992-93
: 1993

SASYA SANJEEVINI SANGHA (REGD), SHIMOGA.

on the activities of Sasya Sanjeevini Sangha
(S.S.S.): An association for conservation of medicinal plants and
revitalisation of Indian Systems of Medicine.
I
♦

*

*

The Malnad region of Shimoga district is
is part and parcel of
rich,
fragile Western ghats.This region is famous not only f or
its natural beauty but also for a variety of useful medicinal
plants. From time immemorial, people of this region are getting
the benefits
from these medicinal plants to treat number of
ailments.
The
increase in population has resulLed
in gradual
depletion of
rich natural resources
threatening the
very
survival of flora and the eco-system.
With a main veiw and objective of conserving these medicinal
plants
m the region and to give a fillip to the revival
of
different systems of Indian Medicine, a voluntry organisation Sasya Sanjeevini Sangha ( S.S.S.). ----hasf come into existence in the
District.

S.S.S.is a registered voluntary organisation serving the
cause with the active participation
IL... of general
-- and
-- 1 <co-operation
public,
Doctors of Indian Medicine, Karnataka Forest
Department
and FRLHT.
The committee of S.S.S.is headed by the Deputy
Conservator of Forests, Shimoga. The office bearers are drawn
from the practioners of Indian systems of Medicine
and devoted
general public who
keen to serve the people and society.
--- are
---- ---The
organisation has given a primary thrust
towards
conservation activities. The members are actively co-operating
wi th ithe
'
Forest Department in developing an exclusive medicinal
plants garden _- "Ashiwini Vana", r
’ is coming up over an area
which
of 30 acres near Gajanur.

The association has
identified number of
practicising
experts in different systems of Indian Medicine through out
the
district.
By
their
voluntray
co-operation
and
active
participation S.S.S.has so far conducted five free medical
camps
for the benefit of general public starting
from August
1995.
Nearly 1200 needy people have been benefitted by this acvtivity.

Contd..2..

//

2

//

is also undertaking mass awaremness campaign in the
S.S.S.
The
rural areas to encourage people to grow medicinal
plants,
in
villagers are taught the method of use of medicianal
plants
their- primary health care. People are responding favourably and
are actively participating in large numbers. Demonstrations and
people
on
lecture programmes
have been conducted to educate
Ladies
were
identification and use of different medicinal plants,
remed i es
exclusively trained about preperation and use of home
(mane maddu).
The association has planned to take the message to everydoor
to organise
of the citizens
in the district and is planning
service camps in all the Taluks of the district.
The association appeals to the philonthropists, organisations
and different Government departments to support generously to
work further in cherishing the dreams of the association.

G.N.SREEKANTAIAH I.F.S.,
President, Sasya Ssanjeevini Sangha and
Deputy Conservator of Forests, Shiomoga
Phone : 08182 - 42210

■1 H
> i

■

I

\

NOTE ON URBAN REVAMPING SCHEME

Tho» prpblent of Population growth was visualised quite early by
country's planner’s^, political loaders and administrators.
It was
therefore decided in first Five Year Plan to provide information
and services in regard to family planning and married couples
through existing health institutions and newly established clinics.
For this purpose, during the first plan period 126 Urban clinics of
4 types were established.
Staffing pattern and the population
covered by these Centres is shown in Annexure -I. A large number
of Urban Centres were subsequently established in a phased manner
(Annexure - II) .
At present
Centres are functioning
throughout the country.
The working of the Urban Family Welfare Centres (UFWCs) was
reviewed by Department of Family Welfare in 1976 and it was decided
to reorganise the four type of centres to three types with
following reduced staffing pattern.
Type

Population covered

Staffing Pattern

I

10000 to 25000

Auxiliary Nurse Midwife -1
i
. F.P. Field Worker (Male) *-l

II

25000 to 50000

F.P. Extension Educator/- 1
LHV
F.P.Field Worker (Male)
-1
A.N.M.
-1

' III

Above 50000

Medical Officer
(Pref. Female)
LHV
ANM
F.P. Field Worker (male)
Store Keeper cum clerk

-1
-1
-2
-1
-1

The working of -these Urban Family Welfare Centres was again
reviewed in the Conference of Chief Executive Officers of Municipal
Corporations held in April, 1982. At this Conference it was noted
that most of the Centres are equipped only to provide suplies and
FP/MCH Services have to be availed of from nearby clinics/
Hospitals.
*
i

t

1’

In order to remedy the existing situation and to improve the
outreach of Primary Health Care, FW & MCH services in the urban
slums or places inhabited by poor people, the Conference inter-alia
recommended setting up of a Working Group to go into the various
aspects related to improving the outreach services in urban areas
etc. Accordingly, the Ministry of Health and Family Welfare set up
a Group under the Chairmanship of Sh. S.V. Krishnan, the then

1

\

f '--w

Adaitionul Chl?f secretary , Government
covornment
““^"Tnd “recoMeS
the various issues raised in the “X1U Secretaries »<
^S^ah^s^^.r-P^^ -iarat
S^S^^-UTS\^^^^^o£’^.aboy^tatesUere
presentatives; of the
also requested to associate one or two re
The report on
Municipal
Coreporations~ of their States.
as ••Krishnan
recommendation of thio group IS popularly known

Committee Report".
■K1<L^NAN COMMITTEE :
SUMMARY OE RECOMMENDATIONS. OE

The committee recommended the following •
establishment OF FOUR TYPES OF HEALTH POSTS .

1.

The. health posts are to ■be; located preferably in
__
40% of this
in their vicinity according to the population covered.
belong
to weaker
slums/slum like areas
requirements may
, extended in
an,isat^°P,,P^5?^n (1991 urban
be progressively^ lowered and the or<3urban
population,
cover the whole
a phased manner to
t
of
urban
slums is given in
population along with population
Ann^xure - III).

i)

is to
E^nct-iohs^< Their main
addition
maternal and child
care population. to
The
’Health Care
Signed
The Primary
Pn^ry .•H^^h
Services.to the
Health Care
is defined as
and acceptable
accessible
----------. to• ?
a cost
community and the
cost the
their participation and at
prevention, education,
country can afford. This would innCfluX^e^eases.
For the

-"2^ « p5^°

i„S^ aS’^dtSKe

B

ScU

^hlons. : -

A.

Outreach Services :
i)
ii)

iSSSSn:^“Tlon about

M.T.P.
iii) Health Education :
Environmental sanitation.
a)
Personal Hygiene.
b)
Communicable diseases.
c)
Nutrition.
d)
M. C. H. & E. P. 1 •
e)
2

Planning .ethods and

\

Preventive Services :

D

Immunisation.
ii) Ante-natal, post-natal and infant care.
Prophylaxis against anaemia.
iv) Prophylaxis against Vit.
deficiency.
v)
Presumptive treatment of malaria.
vi) Identification of suspected cases of tuberculosis and
leprosy.
vii) : Filariasis.
viii) Infant feeding.

Family Planning Services :

i) . Nirodh, other conventional contraceptives and oral! pills.
;
ii) I.U.D. Insertion.
iii) Sterilisation and M.T.P. Services either through re.ferral
hospital or mobile vans provided under ROME Scheme or
through identic led institutions nearby existing or
created.

D.

Curative :

i)
ii)
E.

First aid during accidents and emergencies.
Treatment of simple ailments.

Supportive Services (Peferral) :

All the out reach services myst be backed up by institutional
services particular!,y in respect of : -

High risk maternity cases.
Sterilisation and M.T.P.
iii) Diagnosis and treatment of tuberculosis and leprosy.
iv) Laboratory services for diagnosis of malaria matter
requiring doctors services/hospitalisation .

i)
ii)

F.-

Reports and Records
i)
ii)
iii)
iv)
v)

ii)
I

Particularly in respect of :

Preventive Services.
Family Planning Acceptors.
Vital events.
Morbidity and mortality particularly in respect of a)
Malaria b) tuberculosis c) leprosy d) diarhoeal diseases.
Maintenance of Family cards of register for population
covered.

Type of Health Posts and population covered is indicated below
Type A
13

: For area below 5000 population
: For area with population 5000 - 10000

\

C : For, area with population 10000 - 25000
D ?
For area with population 25000 - 50Q00

If population of the area is more than 50000 then it is to be
divided into sectors of 50000 population and Health PostS-'provided.

iii) Staffing pattern of Health Posts
Category of
Staff

Staff admissible by type
of Health Posts

A
Lady Doctor
PHN
Nurse Midwife
MPW (Male)6
Class IV Women
Computer cum
Clerk
Voluntary women
Health WorkerQ
A:

1

B

1
1

C

D

2

1
1
3-4
3-4
1

■ n

1
*

*

*

•A

One for every 2000 population.
At present there is a ban on these categories of staff.

Q
Note ‘

2.

Type A to C Health Posts be attached to a hospital for
providing referral and supervisory services.
Type D
Health
Post to be attached to a hospital for
Sterilisation, MTP and referral.

Existing Urban Family Welfare Centres :

At present there . are 14 69 Urban Family Welfare Centres of
various types functioning in the country. No new Urban Family
Welfare Centre are to be set up. The existing Centres shall be re
organised into Health Posts gradually .as and when these cities will
be considered for revamping.
The State wise distribution of Urban
Family Welfare Centres may be seen at Annexure IV.
Pattern of
assistance, unit cost and budget for the 8th Plan and for 1993-94
are given in Annexure - V.
i ■! ”
3.

Existing Health Post :

The Health Post were established in 1983-84 to 1988-89 as per
recommendations of Krishnan Committee. So far approval of 1198
Health Posts (including 262 in Bombay and Madras under IPP V) has
been conveyed by the Government of India. The State-wise position

4

i

\

F

p

*

is indicated below : •
SI.
No.

States/UTs

Approved by Government of India

No. of Health Posts

1.
2.
3.
4.
5.
G.
7.8.
9.
10.
11.
12 .

Haryana
Gujarat
Karnataka
Madhya Pradesh
Maharashtra ,
Orissa
Punjab
Rajasthan
Tamil Nadu
Uttar Pradesh
Chandigarh
Delhi

TOTAL
•k

Q

A

.B

3
12
7
11

1
8
17
16

39
1

4

77

C

D

5
26
5
20
5
1

14
4
5
31
45
1
23
16
19
10
1
1

2
20
7
44
34 5
16
36
9
198
143

27

16
28
32
99
417*
17
64
90
2230
173
10
29

104

17 0

847

1198

Total

Sanctioned
thy;, State
Gowi&r ninent
16
28

99
273
%
64
90
200
250
10
23

Includes 139 Health Posts in Bombay under IPP V.
Includes 123 Health Posts in Madras under IPP V.

BByiPW. OF URBAN REVAMPING SHCEME BY SECRETARY fH&FWl
\ This Scheme was reviewed in December, «1985 under t&e then
Chairmanship of Secretary (Health and Family Welfare) and the
undermentioned decisions were taken :

1.
2.

4.

Ban on the filling up of the posts of MPW (Male).
Discontinuance of payment of hanororium to VoTuhtarry Women
Health Worker.
In the first phase, this Scheme be implemented in cities with
population’more than 2 lakhs as per 1981 Census.
I.I.P.S., Bombay and N.l.H.F.W. were asked to undertake a
survey of this Scheme in the States/Union Territories of
Chandigarh, Delhi, Maharashtra and Uttar Pradesh.

Both these studies highlighted the lack of in tec/ration of
Family Welfare with MCH, lack of supervision, lack of training of
staff, lack of suitable accommodation etc.
Further both studies
stressed the importance of Voluntary Women Worker and ELP.W. (Male)
and removal of the ban’ of both these categories of workers.
REFERRAL LINKAGES :

As per the recommendations of the KRISHNAN 'COMMITTEE the
HealthTPosts are to be established in the area itself for provision
of the Health and Family 'Welfare Services to the community.. It is
5

9

therefore to be ensured by the States that the outreach services
are provided by the Urban Family Welfare Centres/Health Posts to
the allotted population.
For handling the complicated1 cases a referral system need to
Welfare Centre/Health Posts
be developed and each Urban Family
1
,
should be attached to the nearest hospital/Post Partum Centre/First
Referral Unit for referral services.
Urban Family Welfare Centres and Health Posts should ensure
that the complicated high risk- women and other cases which can not
be handled at Urban Family Welfare Centres/Health Posts
are
referred to the nearest hospital; Post Partum Centre, or First
Referral Unit (FRU) . Records of all referred women from the Urban
Family Welfare Centre/Health Posts to the nearest hospital/Post
Partum Centre/First Referral Unit must be kept .at the Urban Family
Welfare Centre/Health Post for follow up action. ANMs/LHVs must
visit the referred women every week during her ante—natal, natal
and post natal period for follow up.
The specialist at the
referral centre should give high priority to attend the refered
cases.
It should be the duty of the doctor/ANM/LHV of the Urb
Family Welfare Centres/Health Posts to get feed back from tne
referred patients that they are given proper treatment by the
specialists.

The Urban Family Welfare Centres/Health Posts are to function
in close coordination with the ICDS Centres, Urban Basic Services
Centres in their area.
AREA PROJECTS :

The Department Qf Family Welfare has taken up specific area
projects for improving the Health and Family Welfare status of the
urban slum population in the major cities of Bombay, Madras, Delhi,
Calcutta, Hydrabad and Bangalore. These projects, m general have
inputs for strengthening the health and Family Welfare Service
delivery system in the urban slums especially m the context of the
Urban Revamping Scheme.
The details are as under :
IPp - v PROJECT IN BOMBAY
IPP - V Bombay

is being

implemented in the urban slums of

Health Posts have already been established. 22 Post Partum Centres
9251 Medical and
have been established against the target of 30.
have been trained so far*.
Para-medical 1functionaries
--------

An expenditure of Rs.26.29 Crores has been incurred up to
Max ch, 94.
The project has also been extended to New Mumbai
6

Municipal Corporation involving an expenditure of Rs.11.94 Crores
for setting up Urban Health Posts and a first referral unit in New
Mumbai area.
The State Government is required to implement
expansion activities on priority b^sisi so ithat they could be
completed by December, 1995 when the project is scheduled to
terminate.
IPP

V PROJECT IN MADRAS :

This project was intiated in September, 1988 for a period^of
seven years at a cost of Rs. 69.10 Crores for implementation in the
The
Districts.
Chengai-Anna
city
and
slums
of
Madras
The
very
successful,
implementation of the project has been
The
been
very
successful.
implementation of the project has
Health
Posts
has
been
fully
*• project target of establishing 152
.
.
. ,
of the
the project carried
carried out
achieved.
The mid-term evaluation of
during 1992, has indicated that the project objectives, to be
In
achieved by 1995, have been nearly achieved by April,, 1992.
ante-natal
and
post
natal
service
is
94%
Madras City, for example,
1‘
. coup\c protection rate is 50%. Immunisation coverage is 97.2-s and
institutional deliveries arc 99%.
AnXexpenditure of Rs.33.24 Crores has been reported up tp
also been
extended
to
23
March,
1994.
The' project hcis
State
Government
has'
started
the
Municipalities-of Tamil Nadu. The
preliminary work in this regard.
IPP - VIII PROJECT IN DELHI/ HYDRABAD, CALCUTTA & BANGALORE

The World Bank assisted IPP - VIII Project covering the urban
slum population of four major cities, namely Calcutta, Delhi,
Hydrabad and Bangalore has been sanctioned by the Government of
India on the 6th August, 1993 at a total cost of Rs. 223 Crores,
The share of the cities (excluding the physical and price
contingencies) is as under :
AMOUNT (RS. IN CRORES)

CITIES

29.05
75.28
35.00
26.03

Bangalore
Calcutta
Delhi
Hydrabad

The project in general, provides for setting up of Health
Centres, Referral Health Centres, training of Medical and para
medical staff, slum community participation and
voluntary organisations and private medical practitioners;.
The
concerned corporations arc. in the process of appointing he core
•staff and initiating other activities. An amount of Rs.1 Crore has
been released to" the concerned State Governments.

7

I

AREAS OF CONCERN
1.

Lack of coordination among different
a
agencies
at State,
district and City Level
providing Family ”
Welfare
-- i Services
through Health Posts.

2.

Poor outreach services.

3.

Poor utilisation of services
Centres and Urban Health Posts.

4.

at

Urban

Family Welfare

Poor maintenance
and maintenance of records namely,
eligible couple registers,
service registers, survey registers
etc.

5.

Centr::“„aa%'rinnfr,XCtnh

nitoring «
of Urba
Urban
"
u-Lii io^c^ Dy the Supervisory Officers.

6.

Low ]_priority attention -f
to Information, Education and
Communication
activities
making[
the
outreach
programm
ineffective.

7.

Non existence of referral linkage < '
of Urban Family Welfare
Centres and Urban Health Posts with
-i
the other Service
facilities in the area.

8.

Inadequately trained staff ]
• '
particularly
in providing
Family Welfare
Services,
for
example,
family
[planning
counselling,etc. paramedical staff
in
intra-uterine
2 devise
insertions.

i

I

;*

8

ANNEXURE - I
Staffing pattern of four types of Urban Family Welfare Centres
functioning before February, 1976.

TYPE

I

II

III

IV

PopiX^ation
coverqd ' . ..

upto
10,000

10,000
25,000

25,000
50,000

50,000
and jabove

Medical Officer

'1 (Part
time)
1

2 (Part
t i me)
I

2 (Part
time)
1

2 (full/
part time
1

1

1

1

FPFW (Male)

ANM
LBV/PUN

1

Extension
Educator

1

Store"keeper
cum Accountant

1

1

Attendont

1

Sweeper (part
time)

1
1

? ?

9

ANNEXURE

II

PROGRESS OF THE SCHEME

YEAR

*

UFWCs CENTRES FUNCTIONING

1951-56
1966
1969
1974

126
14 4 4
1800
1975

1984
1992*

2648 }
1469 } Three types

}
}
}
} Four types

Many Centres have been merged with Post Partum Centres or
reorganised into Health Posts.

I
!

10

ANNEXURE-III

ESTIMATED SLUM POPULATION 1991
(Figure in Lakhs)

SI. State/Union
No. Territory

(1)

(2;)

1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
24 .
25.

1.
2.
3.
4.
5.
6.
7.

Provisional
Urban Populcition
1991.

(3)

Estimated Slum
Population 1991
(4)

Andhra Pradesh
Arunachal Pradesh
Assam
Bihar
Goa
Gujarat
Haryana
Himachal Pradesh
Jammu & Kashmir
Karnataka
Kerala
Madhya Pradesh
Maharashtra
Manipur
Meghalaya
Mizoram
Nagaland
Orissa
Punjab
Rajasthan
Sikkim
Tamil Nadu
Tripura
Uttar Pradesh
West Bengal

178.13
1 . 05
24.71
113.69
4.80
14.1.64
40.45
4.45
1 8.3 9
138.51
7 6.76
153.48
304.96
5.06
3.29
3.17
2.10
42.32
60.01
100.40
0.37
190.27
4 . 19
.27 6.53
186.22

6.09
23.63
13.59
27.67
66.66
0.85
0.75
0.63
0.44
8.41
13.17
19.60
0.05
35.60
0.73
58.47
46.15

All States

2 074.95

439.36

A & N Islands
Chandigarh
D & N Haveli
Delhi
Daman & Diu
Lakshadweep
Pondichery

0.75'
5.7 5
0.12
84.27
0.48
0.29
5.17

0.15
1.15
0.02
24.19
0.09
0.05
1.23

All UTs

96.83

26.88

2171.78

466.24

All India :

11

i

\
\

42.93
0.21
4.14
35.34
0.83
25.67
6.83
0.94

*

•
STATEFtENT SHOWING NUFBER

OF URPPN FAMILY WELFARE CENTRES AS ON
1.4.1994.

517 ’State/Unfon
No .

Terr itory.

1.
2.
3.
4.
5.

Andhra Pradesh

Assam
Bihar
Gujarat
Haryana

T ypo-I

Typo- II

T ype-III

T o tnl

64
3
2
23
8

14
2
11
13
3

53
5
29
77
8

131
10
42
113
19

89
1
20

11
6

61

89*
12*
87

12

7

44

63

10

41
2
1

74
2
1

3

7

10

14
31
1
14

23
61
1
65
9

1
11

80
87

81
111

1

5
2

6
3

69

69

1

1

6.
7.
8.
9.
10.

□ammu & Kashmir
Karnataka
Kerala
Madhya Pradesh

11>
12.
13.
14.
15.

Maharashtra
Manipur
Meghalaya
Nagaland
Orissa

23

16.
17.
18.
19.
20.

Punjab
Rajasthan
5 ikk im
Tamil Nadu
Tripura

2
25

7
5

40

11
9

21.
22.
23.
24.
25.

Uttar Pradesh
Uost Bengal
A & N Islands
Arunachal Pradesh
Chand igarh

26.
27.
28.
29.
30.

D i N Haveli
Delhi

31.

Pondichorr y

Himachal

Pradesh

13

1

Goa. Daman & Diu
Lekhhfiduoep
Mizoram

All India
Control Sector

326

125

Total:

632

1083
208 +

1791
inciled figures not received.

*x

V

ANNEXURE

!
i

PATTERN OF ASSISTANCE:

URBAN FAMILY WELFARE CENTRES

1.

Type

III

II

I

(Amount in Rupees)

RECURRING

a)

Contingency

500

1,000

1,000

b)

Rent*

NIL

NI<L

3,000

c)

Staff Salaries(Approx.)

58,700

94,100

2,31,000

Unit Cost

59,200

95,100

2,35,000

*

Type I and II Urban Family Welfare Centres are attached
to a hospital or a Health facility, so no provision for
rent exist.

HEALTH POSTS :

2.

Type of Health Post

Pattern of Assistance

D

C

B

A •

(Amopnt in Rupees)
A

NON RECURRING
For purchase of Medical
and Office equipment

B

5,000

8,000

37,100

74,900

15,000

35,000

RECURRING

a) Staff Salary(approx.)
b)

1,49,800 4,59,300

Contingency

c) Rent per year 0

3,600

4,800

40,700

79,700

5,000

6,000

12,000

1,58,300 4,76,300

'

Unit Cost (Recurring)

0

F^r' Health Posts 'established after December,

13

2,500

1986.

ANNEXURE - V (CONTD.)
BUDGET :
The budget for the Scheme is shown below :
SCHEME

BUDGET PROVISION (RS. IN LAKHS)
8TH PLAN
1993 - 94

Urban Health Posts

8670

1300

Urban Family Welfare Centres

10000

1500

\
11

\

14

National Urban Development Struggle and Action Committee
Contact: i-A Goela Lane, Under Hill Road, Civil Lines, Delhi-110054,
Phone: 09868200316
E-mail: rajendra_ravi@idsindia.net

Having experienced multiple displacements first which pushed us from our rural homelands to

urban areas in search of livelihood opportunities and then a series of forces, which threaten to

drive us away from the city. We the people displaced or affected by urban development missions,

city beautification, slum clearances, urban infrastructure developments-, ill-legalized, marginalised

met this day on October 15th and 16th at Navi Mumbai, Kharghar. We at this consultation meet, as

well as, at the national rally against ’National Urban Renewal Mission” on 9th December 2005
at the Jantar Mantar New Delhi declare our vision and commitment towards, a right based, people

centered approach to urban development.

Affirming the principles of justice, equality, democracy and sustainability.

Asserting our rights to socio- economic and political spaces, opposing the gettoisation and

preserving diversity and plurality and opposing the visionless development missions and
government policies of development under the impact of globalization and liberalization.

We assert ourselves as citizens of a free country with rights and dignity and are proud of our

contribution to the city and the nation using very little resources. We are accused of dirtying the

city, clogging the transport system and being a stress on city resources, we vehemently oppose this
accusation.

And Also:

Asserting the fundament rights, directive principles and other basic features of the Indian j
Constitution.

Noting Government of India’s international legal obligations under the universal Declaration of
Human Rights, International Covenant Economic Social and Cultural Rights, International

Convenient on Civil and Political Rights and the International Labour Organisation’s convention
107, among other international conventions and

Upholding the pluralist, secular nature of the Indian Polity.

We believe and assert that:

1. All have equal rights over urban resources like land; water, electricity, housing and social

security benefits and none should be deprived on the basis of the time of entry into an urban

center for their struggle for dignified survival and livelihood.
2. All have equal rights to livelihood opportunities, which should take into account the concerns

of hawkers, small businessmen and street vendors.
3. Adequate and affordable housing should be the responsibility of the state. There needs to be

special provisions legal and in compliance with existing provisions for providing housing for
all the employees in the organized and the unorganized sector.

4. Provisions for homeless, handicapped and other deprived sections should be state
responsibility and should be incorporated in urban planning.
5. All have the right to participate in urban planning, development and monitoring of urban
developmental plans and have easy access to relevant information.
6. Security of tenure to all must be the basis for slum improvement and basic services should be

extended to all those who inhabit a place. Emphasis should not be laid on documents and

documentary evidences.
7. Development plan must be one that generates more livelihood (both of skilled and unskilled

nature) opportunities, these should support a dignified existence of urban poor and these
opportunities of some should not displace people from their habitat. Livelihood spaces for
hawkers and vendors should be in-built in the development planning process and it should be
done in consultation and participation with the hawkers and vendors.

8. Relocation of industrial units within city should be done only the consent of the people

involved and informal sector contribution to the economy should be adequately recognized.
9. Development authorities, which are structurally and functionally undemocratic, should be

replaced with more representative and participatory institutions keeping with the spirit of 74th

Constitutional amendment.

10. Globalization and taking over of retail business by corporate sector should be legally restricted

when such services can be made available by street vendors, hawker’s etc. The people in self
employment and ownership of activities should not be degraded to wage labour.

11. We demand changes in the Hawkers Policy. We want representation and participation at
national and state level in the policy formulation and implementation. The police act of 1932

should be repealed and the physical, mental and sexual abuse perpetuated by mafia, police and
municipal authorities punished.
12. The interpretation of the principal of eminent domain, on which the laws enabling
displacement and eviction of people of common property resources is based, is unacceptable.

Development plans should be aimed at minimal displacements.

13. In case of displacement due to urban developmental project, the socio ecological cost of
rehabilitation should be included in the budget of the project and cost benefit should be
publicly debated and accepted. Information regarding the project should be made available to
the public in the local language and community concern should be sought without pressurizing

and forcing the people.

14. All who are being displaced should be rehabilitated, with the affected people’s participation
and approval of rehabilitation package ensuring alternative livelihood and better standard of
living.

15. The onus of rehabilitation should rest with the state and not be sublet to quasi-judicial entities.

16. Joint ownership rights of the land/ property of the rehabilitated sites should be given in the
name of man and woman of the family.
17. Rehabilitation site should not be more than 2 kms. from the site of displacement.

18. Development of infrastructure — health facilities, education, amenities, mass public
transportation should be included as the cost of the project. Public transport should be

prioratised with the introduction of more buses and trains covering all sections.

19. Enactment of National Transport policy for all cities of India which should provide for

separate lanes for pedestrians, cyclists, cycle- rickshaws including all non motorised mode of
transport.

20. Small informal activities like street vendors and essential public amenities should be part of
National Transportation Policy plan so that the objective realties of the commuters can be

addressed.

21. Alternative livelihoods should be provided wherever livelihoods are affected. Efforts should
be to improve the status of living through training in such cases.

22. Adequate time should be provided before the start of actual project to mentally prepare the
affected people and reduce the trauma for displacement.

23. Preserve the diversity and plurality of the society.
24. The land Acquisition Act of 1894 (amend in 1984) a remnant of the colonial era — must be
abolished and replaced by a National Enactment, which defines all development parameters,
indicators, processes of planning. We demand no repeal of but strict implementation of Urban

Land Ceiling Act in each state.

25. Wc challenge the National Urban Renewal Mission driven by UPA government and its neo
liberal economic agenda of globalization, liberalization to privatize infrastructure, transport,
basic services like water, electricity, sanitation, health, education etc and will struggle to build

people centric and controlled development assuring livelihood and basic services for all.
26. A comprehensive national slum policy for improvement of slums and its environment should

be formulated immediately by involving slum dwellers.

27. Excess vacant land available with state and central government and its agencies should be
thrown open for affordable housing schemes.

•

National Alliance of People’s Movements (NAPM)
Youth for Unity and Voluntary Action (YUVA)

•

Shahar Vikas Manch- Maharashtra,

•

Lokayan- Delhi,

•

Pennurumai liyakam - Madurai,

•

Street Venders Association - Jharkahand,

•

Nirbay Banao Andolan Mumbai

•

Apnalaya- Mumbai

•

Hawkers Sangram Committee- West Bengal

•

Tata Institute of Social Sciences (TISS)

•

Human Rights Law Network

•

Commitee for Right to Housing (CRH)

•

National Venders Federation

Ankur- Delhi
•

Sanjha Manch- Delhi

•

Chintan- Delhi

•

Institute for Democracy and Sustainability

•

Sabarmati Front - Ahmedabad

•

Domestic Workers Forum - Bangalore

•

Rupantar- Chattisgarh

SHARC - Jharkhand

Media: RF_DEV_2_SUDHA.pdf

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