DISTRICT GOVERNMENTS AND DECENTRALISED PLANNING
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democracy, the people are sovereign and therefore distribution of
P°we,r fh°uld be from the base upwards. The Grama Sabha of a
andal, the fundamental unit of democracy, should determine
what po wers it should keep for itself for the purpose of administra
tion and development of the Mandal. The residuary powers will be
tOj the, °ther IeveIs- SirnilarlY>
district government
should decide what powers it requires for the purpose of administ
ration and development of the district and again the state govern
ment should decide likewise. The resources have to be distributed
correspondingly. This exactly, should be the way of distribution of
power. I he very expression of democratic decentralisation carries
an odour of condescension. We are not doing any favour to the
people by giving back certain powers to them. We forget that the
p°wer belongs to them. One who has power in his hands always
thinks that he is best suited to use it and gives a hundred reasons as
to why others cannot be trusted with the same poft/er.
The experiment we have started in Karnataka with full confi
dence m the ability and wisdom of the people has already shown
the signs of success. I am sure this will be a model system to the rest
countiyhave the experience of one financial year and
the initial problems have been sorted out in a democratic manner. I
tllat the remaininS problems that we are discussing
^ththe Adhyakshas ofZilla Parishads will also be resolved shortly
We have fulfilled one of the important promises we made, in our
Election manifesto, to the people of Karnataka.
BANGALORE
JULY22, 1988
4
)
I
Karnataka’s Panchayat Raj System
i
I. General
Karnataka s Panchayat Raj system has been recognised as the most
tar-reaching effort in democratic decentralisation in the country. The objective
is to meaningfully carve out a third tier of Govemment-the District Government. The State Government has consciously framed a system which gives
status and stature to the panchayat raj bodies; entrusts them with all those wel
fare, development and civic functions and responsibilities whose ambit lies
within their respective jurisdiction; equips them with resources by way of
budgetary support, staff and powers to perform these entrusted tasks satisfaconly with statutory autonomy of decision-making. This will give to its people
the factum of full participation and secure their deep involvement in the
ongoing challenge of socio-economic development with distributive justice.
II. Chronology and Statutory Framework
2. The Karnataka Zilla Parishads, Taluk Panchayat Samithis, Mandal
qq^ Nyaya Panchayats Act-1983- received presidential assent on
SASSrS™"’" 2 1985 ’hM CMed
R
/wen6* of,1959: The Karnataka Village Panchayat and Local
Boards Act 959 introduced the earlier system of panchayat raj, with directly
elected Taluk Development Boards/Village Panchayats, co-terminus with
taluks/groups of villages. It related to the Community Development Blockretained the district administration structure more or less intact; and the
eputy Commissioner as its head was responsible for both development and
regulatory functions. A District Development Council was provided with a con
sultative, advisory and coordinating role. No plan/non-plan scheme dr staff
were transferred to these elected bodies; though these bodies were utilised by
t0 imP]enienf various local-oriented plan schemes
and the BDO was the Chief Executive Officer of the Taluk Development Board
In the planning/development process, they were almost entirely implementing
bodies, not plan formulating bodies.Ihe 1983 Act has replaced this Act
5
4. Constitution and Commencement ofBusiness:
- Elections to the Zilla Parishads (ZPs) and Mandal Panchayats (mandais) took place in January, 1987.
- Notifications constituting them were gazetted immediately thereafter.
- A conference of the elected members of these panchayat raj bodies
was held in Bangalore in January, 1987 chaired by the Chief Minister.
- Elections of Adhyakshas and Upadhyakshas of ZPs and Pradhans and
Upapradhans of mandals were completed in February/March, 1987.
- Both bodies appointed their Standing Committees and Chairmen
thereafter.
- Rules under the Act were framed and gazetted to the full extent
required for constituting the bodies and enabling them to commence business,
in 1986 and early 1987.
- A High-Power Committee under the chairmanship of the Chief Sec
retary was set up in March 1985 and resolved various administrative and pro
cedural problems. It continues as the main authority for resolution of inter
department issues. It has held 31 meetings and taken 457 operational decisions
until June 30,1988.
- The Chief Secretaries of the ZPs were appointed in February/March,
1987 and were all in position before April 1,1987.
- Transfer of schemes for administration by the ZPs and mandals was
effected on April 1, 1987 (copy of order at Annex-I) with the requisite budget
provision; all the requisite posts thereunder; as also, staff to man those posts.
- Fresh posts as required were created for these bodies before April 1,'
1987
°r^erS
dsputation there-against finalised within March/April,
- Thus, all effective steps to usher in PANCHAYAT RAJ and ensure the
full-fledged functioning of these institutions had been taken and the bodies
became fully operational and did commence business on April 1,1987.
III. Basic Structure
5. Gramsabha: The gramsabha is the basic tier of the system and is a
college comprising all eligible voters under the panchayat raj system i.e., all
persons above the age of 18 years of that village. There is a gramsabha for each
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of the 27,024 inhabited villages in the State. It is required by law to meet not
less than twice a year but is encourged by the Government to meet more often,
say 4 to 5 times a year. It discusses and reviews all development problems/programmes of the village; selects beneficiaries for all
beneficiary-oriented programmes transferred to the panchayat raj system;
plans for local improvement, including minimum needs, welfare and produc
tion-oriented programmes including the cropping pattern for the season for
the village, etc.; constitutes the Land Army consisting of all able bodied per
sons, etc. The Government envisages the gramsabha as the very bedrock of
panchayat raj and endeavours by all means to provide the fullest consideration
to decisions of the gramsabhas. Attendance of senior officers for every gram
sabha meeting, drawing up records of their discussions, and monitoring action
thereon, has been insisted upon.
6. Mandal Panchayat: The Mandal Panchayat is the first elected tier of
the system. It is entrusted with all civic functions and powers and responsibility
for development and welfare programmes with an intra-mandal orientation.
The number of seats is one for every 400 population. 2,536 mandals (including
67 deemed Panchayats) have been constituted with 55,188 elected members.
25% of the membership has been earmarked for women (of which at least one
should belong io SC, ST) and 18% forSCs/STs. The mandal covers a group of
villages with a population, as per 1981 census, between 8,000 and 12,000.
suitably reduced for die “Malnad” (hill areas). The average configuration of a
mandal is given at Annex-II. The Pradhan and Upapradhah are elected by the
elected members of the mandal.
7. Taluk Panchayat Samithi: This is a purely nominated body compris
ing, ex-officio, all the Pradhans of mandals in the taluk; all MLAs/MLCs representing any part of die taluk (excluding urban areas); members of the ZP repre
senting any part of the taluk; President, TAPCMS; President PARDB; plus five
members belonging to SC, ST, backward classes and women by co-option
with the approval of the ZPs. The MLA representing the major part of the taluk
is die Chairman of the Taluk Panchayat Samithi. This body is entrusted with
advisory, supervisory, review and inter-mandal coordination functions
vis-a-vis the mandals of the taluk.
8. Zilla Parishad: The ZP is the second direcdy elected tier of the pan
chayat raj system. Its functions, responsibilities and powers are formulated to
render it unambiguously the head of the district’s development and welfare
administration. It administers schemes and programmes transferred to it; or
evolved by it; maintains cadres for manning the ZP & mandal staff; formulates
7
the District Plan; frames and approves its budget; and,approves the budgets of
the mandals. There are 19 ZPs,one for each districtfi.e., all except Bangalore
Urban) with 887 directly elected members. Members of Parliament and mem
bers of the State Legislature whose constituencies cover the district or a part
thereof, are members of the ZPs but do not have the right to hold office in the
ZP. Similar reservations for women and SCs & STs as in the case of mandals,
are provided for the ZPs also. ZPs have one seat for every 28,000 population
except the Kodagu ZP which has one seat for every 12,000 population. The
Adhyakshas and Upadhyakshas of ZPs are elected by members of the ZP. The
Adhyaksha of the ZP has the rank of a Minister of State and the Upadhyaksha
the rank of Deputy Minister. The Adhyaksha has been declared the executive
head oftheZP.
9. State Development Council: At the apex of the panchayat raj system
is the State Development Council which is chaired by the Chief Minister and
comprises the Adhyakshas of al! ZPs in the State, six ministers of the State and
the Development Commissioner as member-secretary If is to meet once a
quarter and provide a forum for continuous review and direction of the pan
chayat raj movement in the State; in addition to providing a sounding board for
policy and procedural formulations as also interaction between the politicial
executive and the panchayat raj system.
10. Staff: The official machinery of the ZP is headed by its Chief Secret
ary. The post is encadred for the IAS and has been given the status and powers
of a major Head of Department. The Chief Secretary of the ZP is invariably
senior in rank to the Deputy Commissioner of that district who now continues
to be responsible for the maintenance of law and order, land revenue administ
ration and all other regulatory functions which are vested with the State Gov
ernment. Each ZP has a strong accounting and internal audit set up under a
Chief Accounts Officer who is drawn from the State Accounts Department. It
also has a planning cell of experts headed by a Chief Planning Officer. The dis
trict level officers with their supporting staff of all development departments
have been brought under the ZP. More than 50% of the 4.5 lakhs (approxi
mately) State Government employees are now on deputation in the ZPs.
Group A and Group B staff will continue to be on deputation from Government
Departments; arrangements to permanently absorb/directly recruit Group C &
D staff by ZPs including senior staff of the mandal panchayats (who will be from
regular ZP cadres) is underway. The necessary cadre constitution and recruit
ment rules are under finalisation and are to come into force in 1988-89.
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Each mandal has a Secretary and the Village Extension Worker/Agricultural
Assistant on deputation from Government. Mandals are being entrusted with
powers to locally appoint other subordinate category staff with the prior
approval of the Chief Secretary of the ZP to meet strictly local needs.
11. Devolution of Schemes: In deciding the devolution of schemes the
pnnciple has been observed that all schemes with a mandal orientation, have
been transferred to the mandal; all schemes with an inter-mandal inter-taluk
or district orientation have been transferred to the ZP; the schemes remaining
m the State sector being strictly those with a pronounced inter-district orienta
tion or World Bank and other externally-assisted programmes. The entire spe
cial component plan and the tribal sub-plan is made over to the ZPs for
implementation.
12. Resources: The State Government has effected from its budgets,
a massive transfer of resources to the District Sector. It constitutes at present the
bulk of ZP/mandal resources. The sectoral allocations for the District Sector are
distinctly provided in the State budget. The district-wise allocation thereof is
provided in a link document which forms an integral part of the Budget docu
ments. The ZP has freedom within the national discipline of “earmarked funds”
and “minimum needs programme”, to make inter-sectoral reallocations of the
funds so transferred to it.
- In 1987-88, this amounted to Rs. 951 crores - Rs. 220 crores out of
the total State Plan of Rs. 870 crores, Rs. 597 crores from the State’s non-plan
budget of Rs. 3134 crores and Rs. 134 crores as central share of centrally spon
sored schemes implemented by these bodies. Significantly, when the State
Plan was cut to Rs. 769 crores, the allocation for panchayat raj bodies was
retained at Rs. 220 crores.
qqh In 1988-89’the total District Sector provision budgeted for transfer is
Rs. 837 crores and Rs. 597 crores from the State non-plan budget of Rs. 3,516
crores. Significantly, when Planning Commission reduced the draft State Plan
outlay from Rs. 1,000 crores to Rs. 900 crores, again the District Sector
schemes provision was reduced from Rs. 245 crores to Rs. 240 crores only.
an inCrease of 9% in plan Provision for the District Sector
over 1987-88 compares with an increase of 3.4% in the total State Plan outlay.
The conscious effort of the State Government to support the funding of the Dis
trict sector is thus, quite patent.
9
- The plan provision includes an untied per capita grant of Rs. 10 per
year from the State Budget to be shared by the ZPs and mandate in the ratio
1:3. This is given by the State Government over and above the transferred
schematic provisions. This is intended to enable the institutions to have money
at their disposal to take up activities of their choice.
- The 1987-88 budget was formulated in the normal manner before the
panchayat raj institutions came into being. A provision was made however, to
enable them to transfer up to 10% of the provision under any scheme/sector to
any other scheme/sector at their discretion, in order to provide for some
plan/programme formulating autonomy. In 1988-89, they participated fully in
the plan formulating process in a grass roots-to-top approach.
- There is a statutory provision for setting up a Finance Commission
every 5 years to determine the principles on which the resources are to be
shared between the State Government and panchayat raj institutions and the
basis on which allocations would be made among the ZPs/mandals. Pending its
recommendations, the inter-se allocation is based on the Gadgil formula which
takes into account population; unemployment; per capita income; etc. For
ensuring equity in the distribution of funds to mandate by the ZP, another for
mula has been presenbed, namely population; area of the mandal; dry land
area; population of agricultural labour; and, per capita resources raised by the
mandal.
- ZPs do not have powers to levy taxes or cesses but have powers to
raise their own resources by borrowings, investments and remunerative assets,
etc. They retain all accruals from income-generating schemes which are trans
ferred to them. Mandate have the power to levy traditional taxes like property
taxes, taxes on transfer of property, etc. It is hoped that these will in due course
provide considerable independent funding to the panchayat raj bodies.
13. Control: The State has retained over the ZPs only the power of dis solution for excess or abuse of their powers, persistent default in or incomepetence to perform their statutory duties. Reconstitution by election is mandatory
within six months of such dissolution.
- In respect of mandate, the ZP has similar power of dissolving the man
dal plus the power to approve the annual budget, and the power to suspend any
resolution or order of the mandal or its officer/s. Here, too, reconstitution by
election is mandatory within six months. There is a conscious effort to ensure
that the mandate function autonomously, independent of the ZPs; even as the
10
ZPs are expected to function autonomously, independent of the State Govern
ment.
- Observance of national and state priorities and observance of statutes
is required. Significantly,the State has not stipulated any priorities to which the
panchayat raj bodies are required to conform, save those which flow from the
national priorities like k‘MNP”. “earmarked funds”, etc.
IV. Some Features
14. Women: While reservations for SCs/STs are to be found in pan
chayat raj systems of almost all states, the reservation to the extent of 25% for
women in the Karnataka system is unique. It has thrown up a work force with
all the power and prestige of an elected representative numbering over 14,000
in every nook and comer of the State. The latent reservoir of new leadership
and energy which this has generated, is patent.
- Within the reservations for women, there is again a provision that at
least one shall belong to SC/ST community, thus providing for representation
for the weakest amongst the rural womenfolk in the democratic, decentralised
Government set up.
15. Weaker Sections: In the unlikely event of no person from the
backward class being elected in any mandal, the Act requires the ZP to nomi
nate two persons of this category to the mandal.
16. Accent on Youth: The voting age has been brought down to 18
years,giving vastly enhanced scope for rural youth to participate in district gov
ernance.
17 Massive Transfer of Resources in favour of ZPs/Mandals: The
transfer of provisions schemes to the ZPs and mandals from the State plan and
non-plan budget is, perhaps, the most massive sharing of the State budget by
transfer to the panchayat raj bodies. The attendant transfer of staff to the com
plete control of the panchayat raj bodies is there in only a very limited number
of States.
18. Autonomy: The extent of autonomy statutorily ensured to the ZPs
and the mandals is unique in the Karnataka system. Thus,
i) No government officer can suspend a resolution of a mandal or a ZP.
ii) There is no provision to declare the Divisional Commissioner or, for
that matter, any other government officer as the controlling officer.
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iii) The DRDS has been abolished and its functions, covering as they do
the whole range of anti-poverty and area-oriented schemes, merged fully into
the ZP.
iv) Subject to budgetary ceilings and national/state priorities set by the
Government of India/Planning Commission, plans/budgets formulated by he
mandals are not amended by the ZP/State Government; similarly, district plans
of th ZPs incorporating, inter-alia, such mandal plans are not amended by the
State Government.
v) There is no apex body above the ZP like a District Planning Board
District Planning and Development Council comprising not only Zilla Panshad
members but also other functionaries of Government such as the Deputy Com
missioner of the district or the District Minister.
vi) The Adhyaksha is, by statute, declared to be the executive head of
the ZP He is also the Chairman of the District’s Kamataka.Development Prog
ramme (KDP) Committee which meets on the 11th day of every month and
reviews all plan progress as also action under all other major areas of develop
ment and related activites. Its membership includes not only the,ZP'Chief Sec
retary and district heads of al! development departments under the ZP u a so,
the Deputy Commissioner, the district heads of other departments of the State
Government, district heads of statutory bodies, lead banks service undertakings,etc. Decisions of the KDP are respected by all concerned.
vii) The elections to the ZPs and mandals are conducted by virtue of
Rules framed under the Act, under the superintendence, direction and control
of the Chief Electoral Officer.
viii) Electoral reforms, such as free supply of electoral rolls to all candi
dates have been introduced already for these elections.
V. Relationship with others
19 The merit of the Karnataka system is that it embodies a conscious
decision to share effectively and sincerely with the panchayat raj bodies, the
powers hitherto concentrated in the State Government and the district
administration. Having done this, the success of the institutions and the system
will be governed by the effectiveness with which a harmonious working
relationship is evolved between these bodies and other major instruments of
both development and regulatory administration. Karnataka s dispensation in
this respect are summarised as follows:
IO
20. UMi Deputy Commissioners of Districts and other State Govern
ment Functionaries: The Deputy Commissioner (DC) is outside the direct panchayat raj institutional framework but continues to represent the State Govern
ment at the district level. All conscious efforts have been made to ensure that
the equation between the DC and panchayat raj bodies is based on mutual
respect and appreciation of the complementarity of each others roles to secure
the maximum public good. DCs and other Government officers at the district
level are required to attend meetings of the ZPs whenever invited to do so in
the context of specific subjects relating to them. Informal meetings of the ZP
functionaries and the DCs/Divisional Commissioners to sort out matters o
mutual interest have been encouraged. In subjects where the involvement of
the DC and other State Government officers at the district level is important for
optimising results, the DC has been inducted as a senior member of the con
cerned district committee as e.g., in regard to family welfare, small savings,
CLUMP, etc. and designated as co-Chairman/ co-Vice-Chairman where the
Chief Secretary is, respectively, the Chairman or Vice-Chairman. By and large,
relationships are smooth, cordial and effective.
21. With Heads of Departments: HODs have been encourged to look upon
the panchayat raj bodies as the new and more effective instruments available to
them for pushing through their departmental goals and programmes. They
continue to be fully responsible to Government for effective implementation
and fulfilment of targets for even decentralised schemes. They have the statut
ory right to inspect works and schemes and send their observations to the ZPs.
ZPs have also appreciated the strong need for technical guidance and supervi
sion by the HODs and their senior officers to secure good implementation.
Government has required HODs to discharge these responsibilities punctili
ously Coordination issues between departments and panchayat raj bodies are
ironed out in the High Power Committee headed by the Chief Secretary and in
the State Development Council chaired by the Chief Minister.
22 With District Ministers, MLAs, etc: The District Minister continues
to be the Chairman of the 20-Point Programme Committee of the District. The
Adhyaksha has been inducted as its Vice-Chairman. The comrnlt^pdo^
review at regular intervals the progress under various items of the Zu-roin
programme and action based on such reviews is taken by all concerned. Dis
trict Ministers in their capacity as MLAs/MLCs (provided any part of their con
stituency is part of the district) are members of the ZPs in which capacity they
attend meetings of the ZPs and participate constructively in decision-making,
13
as do other MLAs, MLCs and Members of Parliament. Thanks to the proximity
of decision-making and decision-makers to the voters/field,such discussions
and decisions have tended to be constructive, equitable, fair and non-partisan.
In mm, it has contributed to enhancing the effectiveness of the panchayat raj
bodies.
23. With non-Government Organisations and Cooperatives: A
two-day workshop was organised by the State Government in March, 1987
bringing together the Adhyakshas and Chief Secretries of ZPs, representatives
of a large number of non-governmental organisations in the State and the
heads of departments/statutory boards/public sector undertakings, etc. and
Secretaries to Government. This was primarily to consider the new equations
which have to be evolved in the context of the new system. The State has
always attached high importance to the role, of non-governmental organisa
tions in development and welfare administration and, by and large, the pan
chayat raj bodies are continuing the tradition. Government has recognised the
need to provide strong economic institutions as complements to the panchayat
raj system. Of these, the cooperative movement has-unique importance.
Government has accordingly taken a decision to render the jurisdiction of primary cooperative societies co-terminus with that of the mandal. Steps towards
the requisite re-organisation so involved will be swiftly taken. This considera
tion is also responsible for providing associate membership of the ZP to the
President, District Cooperative Central Bank, and representation on the Taluk
Panchayat Samithi to the TAPCMS and the PARDB.
VI. Nyaya Panchayats
24. To secure speedy and inexpensive justice in civil and criminal mat
ters of a relatively minor nature, Nyaya Panchayats have been envisaged under
the Act. It comprises five members of whom not less than three i.e. the major
ity, will belong to the following reserved categories which are generally
accepted as weaker sections of society:
1. SCs/STs
2. Backward Classes
3. Women
Having regard to the delicate and sensitive nature of this authority,
safeguards have been introduced by the statute, such as, the subject matter of
the suit or the case be of a very minor nature; exclusion of imprisonment from
its competence; exclusion of lawyers from proceedings; the majority of the
14
Nyaya Panchayat membership comprising acknowledgedly weaker sections of
the population, etc. However, the effectiveness of social sanction, the wide
spread experience that truth surfaces locally without elaborate evidentiary pro
cedures; the salutary effect of shortening the span between crime and punishm
ent, injury and redress; need to be utilised in any system of decentralised
democratic administration. That is the major rationale leading to these provi
sions. Government has further recognised that the positive attributes of this sys
tem can surface more confidently after the working and credibility of these
institutions have stabilised. Government has therefore taken a conscious deci
sion to bring Nyaya Panchayats into effect, five years after the commencement
of panchayat raj.
VII. Support Systems
25. To enhance the effectiveness of panchayat raj bodies in optimally
promoting good local government particularly in socio-economic development
and welfare administration, some major support systems and programmes are
necessary. Karnataka has initiated these and launched a massive plan to
upgrade coverage thereunder in the coming years.
26. Training: The need for a comprehensive programme of training is
obvious. The philosophy, the responsibilities and the powers of the panchayat
raj bodies have to be understood; the procedure and implementation
mechanics governing schemes and programmes transferred to these bodies
have to be fully grasped; the budgetary, accounting, planning and financial
control areas have to be studied and comprehended; above all, the important
area of relationships with other functionaries concerned with administration at
the local, regional and state levels has to be appreciated and put on the sound
footing of mutual respect and inter-dependence. The requirement not only
involves initial training but continuous re-orientation and updating, through a
mix of seminars/workshops, local peripatetic training and institutionalised train
ing as well. The training has to cover staff of the panchayat raj bodies at senior,
intermediate and junior levels as also staff of the departments, representatives
of non-governmental organisations and co-operatives, members of State
Legislature and Parliament and, above all, the elected members of the ZPs and
mandals. The programme has been launched from early 1987 onwards. Sub
stantial funding support is required to ensure its organisation and implementa
tion on a truly comprehensive and systematic footing. Various possibilities for
the same are being explored.
15
27. Data Base: When planning and implementation responsibilities
resided principally at State headquarters, macro-oriented data was principally
relied upon as a tool for both plan formulation and monitoring. With gramsabhas and mandals becoming effective participants in the planning and
monitoring process, obviously, the available data base and update mechanism
is an inadequate tool. Karnataka has been the first state to evolve the concept
of a computerised rural information and monitoring system. This has now been
dovetailed with the hardware provisioning under the National Informatics
Centre Programme. Karnataka’s approach, however, has been very advanced
and has generated a great deal of interest even in the Planning Commission
and other wings of Government of India. Fourteen Task Forces have been set
up for this work. The accent has been on evolving a data gathering and update
mechanism which will virtually provide updated information not older than 10
days, with the following broad configuration:a) Family wise.
b) Survey No. wise.
c) Infrastructure element wise.
The data thus gathered will cover demographic, agroeconomic,
socio-economic, natural resources, minimum needs and infrastructure attri
butes; the data flowing directly from the field where the action is and reporting
responsibility will be made to reside, to the district for keying in; from where the
outputs will flow downwards to the taluks, laterally to the district level offices,
and upwards to the State headquarters. The work of these task forces is co-or
dinated by a committee chaired by the Development Commissioner; the task of
which has been to identify attriubtes of all these three configurations required
by each department for the purposes of planning and monitoring each of its
schemes/programmes. The work of the task forces is nearing completion and
all reports and systems involved therein will be finalised by end September,
28. Comprehensive Land Use Management: The major outcome of
the panchayat raj system is a newly generated ability within the administration
at local levels i.e. district and mandal to observe, conceptualise and prog
ramme development activity in an exceptionally comprehensive and co-ordi
nated fashion, effectively recognising the inter-dependence, inter-connection
and linkages between programmes of various departments and inputs/outputs
of various schemes. The State sees this development as providing the sharpest
16
possible focus to a basic tenet of good development programming, namely, a
land use policy and a comprehensive land use management approach. Its
absence hitherto has been conspicuous and the disastrous consequences
thereof have manifested themselves in compromised agro-climatic situations
resulting in erratic seasonal conditions year in and year out and erosion of basic
resources like soil, tree cover, ground water, fodder, fuel and other rural energy
requirements etc. Karnataka has evolved a land use policy approach and a
Comprehensive Land Use Management Project (CLUMP) and initiated a pilot
effort at implementation in 15 mandals comprising 192 villages in five districts,
presenting a variety of agro-climatic and socio-administrative situations. The
policy focuses on the importance of restoring and sustaining, a minimum tree
cover to promote the vital evapo-transpiration and monsoon precipitation
cycle; compute and monitor this not for the State as a whole, but for each mandal, and, possibly, for each village; estimate the habitat development and
infrastructure development required and set apart the land required for this use
with no cunent user which will compromise its later use for habitat/infrastructure; recognise the crucial importance of bovine management and the related
area of waste land management as a factor governing ecology and
environment conservation; secure local solutions for good rural energy
management: and rapidly extend innovative but established technology for
watershed management involving optimised soil and water management with
an accent on in situ moisture conservation, and using stored water and ground
water resources to supplement the basic resource of monsoon to bring about a
massive increase in crop intensity and, thereby, in agricultural productivity. In
the fifteen mandals where this programme has been initiated, the gramsabhas
have enthusiastically endorsed the programme and the mandals have contri
buted massively to the successful completion of the surveys. Detailed project
formulation exercises are in progress and outputs from these will be presented
to the gramsabhas in the next few weeks before being considered by mandal
and ZPs for execution and implementation.
The Comprehensive Land Use Management Project takes the watershed
as the technical unit of planning all land-based activity and the mandal as the
administrativeunit.lt also provides the basic framework into which all other
programming could be fitted in, to optimise results under various schemes.
29. Supporting Physical Budgets: Good programme formulation by
the mandals and ZPs will require the preparation and continuous monitoring of
the following physical budgets, the objective being to balance these in as short
17
a time frame as possible on tl„
J----- - and UIC
the demand
the supply 51(
side at the mandal
level and, to the fullest extent possible, at the village level also.
a) Rural energy budget
b) Fodder budget
e) Employment budget, with its concomitant promotion of land armies
ot all able bodied persons
d) Water budget for irrigation support to all arable and some non-arable areas as well.
30_ Karnataka’s panchayat raj system has broken distinctly new
E
m enSityJ°f attentiOn t0 detaiI in framin9
stahite; during their
widest possible consideration and examination by the legislature; and, thereaf
ter, in the administrative arrangements needed to effect as trouble-free a transiPTSI? 6 10
?ewLsySteni’ have piayed their role in rendering the
transition fairly smooth. It is beyond human ingenuity to envisage and provide
for every eventuahty and contingency that may arise in such a basic transformation of the system of administration. Merit lies in what the Government has
done, namely, to recognise the possibility of problems arising from time to time
.Ton th63 6 n’rhtnI1SnJS and an environment for quickly considering and resol
ving them and while doing so. never losing sight of the basic objective of a sin
cere trans er of power to secure for the people, a better and more responsive
administration.
Mo _uMeanw^le’ even in this short span of fifteen months, some remarkae results are witnessed. For example, attendance of school teachers, medical
officers, para-medical staff in rural institutions improved remarkably; revenues
from assets transferred to these bodies, such as auction of fishing rights in tanks
have jumped up; financial improprieties by mandal office-bearers have been
“Posed m gramsabhas and culprits have made good losses caused or gains
wrongfully obtained. These are significant, positive gains of a vibrant decen
tralised democratic government at work to secure to its people the benefits of
responsive administration.
18
i
ANNEX 1
I
GOVERNMENT OF KARNATAKA
I
Rural Development and
Panchayat Raj Secretariat
)
I
Sub: Transfer of Plan Schemes to Zilla Parishad/Mandal Panchayats
Preamble:
The Karnataka Zilla Parishads, Taluk Panchayat Samithis, Mandal Pan
chayats and Nyaya Panchayats Act, 1983 (Karnataka Act No. 20 of 1985)
hereinafter referred to as “the Act”, envisages functions to be carried out by
Zilla Parishads and Mandal Panchayats and it is necessary to specify clearly the
responsibilities entrusted to them.
2. The High Power Committee constituted for implementation of the
Act constituted a Sub-Committee to delineate the schemes that can be trans
ferred to Zilla Parishads and Mandal Panchayats and also frame the delegation
of administrative, technical and financial powers keeping in view the functions
spelt out in the Zilla Parishads Act.
3. The said sub-committee in consultation with all Secretaries to Gov
ernment and Heads of Department recommended the schemes which may be
retained at State Level and schemes that may be transferred to Zilla Parishads
and Mandal Panchayats having regard to their functions as enumerated in the
Act.
4. The recommendations of the sub-committee were considered in
detail by the High Power Committee which recommended transfer of schemes
to Zilla Parishads and Mandal Panchayats as specified in Statements I and II.
5. The recommendations of the said High Power Committee have
been accepted by the Government for implementation. Hence the Order.
Order No. RDP183 VAC 86, Bangalore, dated 1st April 1987
1. Government of Karnataka hereby transfers the ongoing schemes
included in the VII plan to Zilla Parishads and Mandal Panchayats under Sec
tions 182 and 56 respectively of the Karnataka Zilla Parishads, Taluk Panchayat
Samithis, Mandal Panchayats and Nyaya Panchayats Act, 1983 as specified in
Statements I and II respectively appended to this Order for implementation
during the year 1987-88.
19
a) All externally aided projects of different departments
i ai a^vities of various Boards and Corporations.
c) All Research and Training Programmes and Projects of a Pilot
nature.
d) Institutions/Schemes having their operation in more than one dis-
e) Life irrigation schemes taken up by Public Works Department.
ing condiSnsT3"8^ °f ‘b®5® SChemeS “ SUbJeCt tO the ,oUowninn i L •In the,plannLin9 exercise the entire district should be the unit of Planporations1"9 °n y SUCh C1V1C fUnCtiOnS 3S are Perfomied by municipalities/corbVhc ch II
scheme/projectAvork involving an outlay of more than Rs 2
akhs shall have the technical sanction of the competent Departmental Officer
ZiSa Parisha3?3"011011 “
scheme/Pr°ject/work shall be accorded by a '
a“ 0"-30ins “%
m17 j Where1ver functions have been clearly assigned to Zilla Parishads
and Mandal Panchayats in externally aided projects of any Department the
planning, scope, location, etc. should be decided by the concerned Denari
ment in consultation with Zilla Parishads/Mandal Panchayats as the case may
cemriP tSX1* ?'r°'eC'S
“Ch
a* 'h<! ,nsl’n“ °‘lhc
Can be Cn,M'!‘, “
PanshldsttlXir
^4^
2II»
th«™proXamUm?emf’ S°
Zi"a
WiU be in a position to take
Plans ThS I
c,o2S,d1eration at th* time of formulation of the District
S"SS “P
mdtaer Wl!Sra,'“ d plan
20
yi- J116 T0US CorP°rations’ Boards and Statutory authorities in the
State which implement programmes having considerable imnart nn tk
Krishad0"0? k lifAOf thefdistrict should “^tantly keep in touch with zJla
th d P them informed of their programmes. If necessary they may
i
I'■
concerned Heads of Departments shall codify as early as possible a “Manual of
>thlich Sh/4
0Ut’
resard t0 each scheme, (a) Policy (b) Obiec-
k The,
sha11 be implemented in accordance with the
monthly physical and financial schedule fixed by the Zilla Parishad/Mandal
Arfhef^th the t’me °f approvai of its Budget under Section 198/124 of the
£ b! ® ‘he commencement of the financial year. Wherever any targets have
been fixed by Government of India/State Government, they shall be followed.
hu thp tL p16 krTmSS °f ™Plementation of the schemes shall be reviewed
by Ae Zdla Panshad/Mandal Panchayat every month in the same manner i is
presently m vogue and in such other manner or format as Government mav ’
Sbed daTes^6 t0 time
rePOrtS ShaU be SCnt t0 Gover™ent on the
crho^
ndf aIs,°,wil1 be released by Government in accordance with the
chedule so fixed and having regard to unspent balance in previous releases.
.
XI. Under sub-section (2) of section 183 of the Act, Government has
the power (a) to inspect schemes/works (b) to review their nrooress with
respect to the schedules fixed (c) to evaluate the performance under schemes
dal Panchayat budget under Section 124.
2i
COMIWUMtTY health cell
t7/K(^tF‘COr)Sl^rks^d
XIII. In case any Zilla Parishad/Mandal Panchayat wishes to modify
any rules governing an on-going scheme or wishes to introduce any new
scheme, such modification shall be mutually agreed upon between Govern
ment and the Zilla Parishad before the plan is finalised for the succeeding year.
No new post shall be created except as an integral part of a scheme of the Zilla
Parishad/Mandal Panchayat so agreed upon.
By Order and in the name of the Governor of Karnataka,
T.H.NAYAK,
Under Secretary to Government,
Rural Devt. and P. Raj Department.
22
STATEMENT I
List of Zilla Parishad Schemes
Schemes transferred to Zilla Parishads for which they will be responsible.
Agriculture
1. Taluka establishments
2. Seed Farm units as per annexure to this Statement
3. Plant protection
4. CSS for Eradication of pests and disease on crops in Endemic Areas-Control of special pests of Agricultural Importance
5. Scheme for Crop protection against Turpod Borer
6. Coffee stem borer control
7. CSS for Intensive Cotton District Programme - Rainfed
8. CSS for Intensive oilseed development Programme sunflower Develop
ment
9. CSS for National oilseed Development Programme
10. Development of Sugarcane
11. Agricultural Fairs and exhibitions
12. Transferred Scheme of Farmers Training and Education Centres
13. Bidar Integrated Rural Development Project
Horticulture
1. CSS for development of Cashew (Plant Protection)
2. Coconut Development on Canal bunds
3. Aland Project of Intensive Development of Horticulture (Cocoa
Development)
4. BII
5. Distribution of Minikits
6. Marketing of Fruits and Vegetables
7. Training of farmers
8. Assistance for Development of Nurseries
9. Horticultural Buildings
Soil Conservation
1. Soil Conservation works as watershed basis
23
Animal Husbandry
1. Direction and Administration
2. Opening of Rural Veterinary Dispensaries and Upgrading of Rural Vet.
Dispensaries to Taluka Type
3. Mobile Veterinary clinic
4. Hospitals and Dispensaries
5. Establishment of Cross Breed Heifer Project
6. Artificial Insemination Project (Transferred from DRDS)
7. Kg Breeding Station
Fisheries
1. Executive Establishment.
2. Buildings
3. FrDA - Intensive Development of Inland Fish Culture-1 Grant in Aid
4. C^S-FFDA-Intensive Development of Inland Fish Culture
5. Fish Production, Rearing and Distribution
6. Manculrure (Revenue and Capital accounts)
7. CSS for Pilot Project for Development of Brackish water Fish Culture
8. Maintenance of landing and Berthing facilities
9. NCDC sponsored scheme for Financial Assistance for Fisheries Co-opera
tives - Subsidy, Investment and Loans
10. Exhibitions
11. Fisheries Link Roads
12. (a) Transferred scheme of Infrastructural facilities to Coastal fishing vil
lages
(b) Buildings (Revenue and capital)
Forest
1. Buildings
2. CSS soil conservation scheme in catchment of River Valley Project
(100% G.O.I.)
Rural Development
1. Per capita grant to Zilla Parishads (Grant-in-aid)
2. Remuneration to Biogas supervisors
24
Minor Irrigation
1. Water Tanks
2. Direction and Administration
3. Tribal sub Plan
4. ConstructionofNewtanks
5. Construction of pickups, Anecuts and Feeder-channels
6. Restoration of tanks including breached tanks
7. World Bank assisted Minor Irrigation Projects (Tanks with an autchkat of
less than 200 hectares)
8. Flood Control and Kharland Schemes
Roads and Bridges
1. Roads in Sugar Factory areas
2. Railway Safety works
3. Other Roads Formation
4. Direction and Administration
5. Machineries and equipment
6. Survey
7. Asphalting of roads, treating sub grade and preparing the surface
8. Construction of bridges and culverts and improvements to exislng ones
Nutrition
1. Transportation charges of foodgrains
2. Administration
Primary and Secondary Education - Primary Education
1. Inspection
2. Primary schools
3. Construction of Classrooms - Grant in Aid (MNP)
4. Residential schools for talented SC girls in 4 divisions
5. Programme for continuing education (Akshare sene) (MNP)
6. Appointment of school mothers
7. Supply of free text books, stationery and uniforms etc. (MNP)
8. Buildings
Secondary Education
1. Inspection
2. High Schools
3. Residential High Schools
4. Private High Schools completing five years’ existence (Grants-in-aid)
5. Buildings
Indian Systems of Medicine
1. Opening of and Maintenance of Ayurvedic Hospitals
2. Upgrading of Ayurvedic Dispensaries
3. Additional Staff to Ayurvedic and Unani dispensaries
4. Opening of Homeopathic dispensaries in rural areas
5. Opening of Unani dispensaries in rural areas
6. Upgrading of Unani dispensaries
7. Opening of nature cure dispensaries in rural areas
Rural Health — 2210
1. Health Sub-Centres
2. Extension of Primary Health Units
3. Primary Health Centres
4. Health Sub-Centres
5. Upgrading of Primary Health Centres (Community Health Centres)
6. Buildings
7. Provision for ambulance
8. Establishment of blood banks
9. Centrally sponsored Scheme of National T.B. Control Programme
(State share)
10. Mobile Health Units
11. Buildings
Other Hospitals
12. Buildings - Ancillary Sub-Centres (additions and alterations)
Primary Health Centres Buildings
13. Buildings - Health Sub-Centres
14. Taluka level General Hospitals
15. Provision of X-ray facilities to Taluka hospitals
Other Expenditure
16. Buildings - Primary Health Units
17. Centrally sponsored school services
18. Repairs to hospital equipments
19. I.C.Ds. Projects
26
20. Drinking Water Supply to Rural Health Institutions
21. Mental Health Project
22. Centrally Sponsored National Leprosy Control Project
23. Centrally Sponsored Eradication of Felaria Programme
24. National Guinea Worm eradication
25. National Programme for Control of Blindness
Rural Health - 4059
1. District health offices buildings
Rural Health - 4210
1. Upgrading of Primary Health Centres (Community Health Centres) Buildings
Family Welfare
1. Family Welfare Bureau
2. Rural Family Welfare Centres (Under PHC)
3. Rural Sub-Centres (Opened Under Family Welfare)
4. Urban Family Welfare Centres run by State Government
5. Universal immunization programme
Transport Family Welfare
6. Rural Family Welfare Centres
7. District Family Welfare Bureau
8. State Health Transport Organisation
9. Scheme of Issue of Karnataka Lottery Tickets to acceptors of Sterilisation
10. Mass Education - Publicity and Propaganda
Welfare of SCs and STs
Welfare of Scheduled Castes
Economic Development
1. Supply of Sewing Machines
2. Law, Medical and other Professional graduates
3. Award of Prize money to Students who passed in SSLC in 1 Class
4. Award of Prize money for College Students
5. Admission of Scheduled Caste Students to the Institutions like
Ramakrishna Ashrama
6. Financial Assistance to Voluntary organisations of construction of Hostel
Buildings
7. Supply of Free Text Books and Uniforms (Vidya Vardhaka Scheme)
97
8. Hostels
9. Payment of Extra Boarding Charges over and above the Post-Matric
Government of India Scholarships
10. Grant-in-aid to private Hostels (Boarding Charges)
11. Residential Schools
12. Trainees in Industrial Training Institutions and Industrial Training Centres
13. Starting of Government Hostels for College Students
14. Payment of Extra Study Tour Charges
15. Training centres in Self-Employment Schemes
16. T.C.H. Training for Girls
17. CSS of Pre-Matric scholarships to the children of those engaged in
unclean occupation
18. Subsidy for construction of Houses
19. Providing Electricity to Harijan Houses
20. Legal Assistance
21. Contribution to NREP for construction of SC/ST Hostel Buildings
22. Scheme for Removal of Untouchability Centrally Sponsored Scheme for
book banks for SCs and STs Students in Medical/Engineering degree
colleges
Welfare of Tribes
23. Award of Prize money to SSLCI Class Students
24. Award of Prize money to College Students
25. Hostels
26. Payment of Extra Boarding and Lodging charges
27. Grant in aid to private Hostels
28. Ashram Schools
29. Payment of Extra Study tour charges to post-matric students
30. Training Centre for Self-Employment scheme
31. Providing Electricity to ST’s Houses
32. Buildings (State and Centrally Sponsored Scheme)
(a) Hostels for Boys
(b) Hostels for Girls
Welfare of Backward Classes and Minorities
1. Hostels for denotified tribes
2. Supply of books and equipments to post-matric students
3. Payment of extra study tour charges to post-matric students
28
4. Grants for General Hostel Buildings (Transferred from Education Department) Grant-in-aid
5. Incentive to Hostelers
6. Pre-matric hostels for boys and girls
7. Post-matric hostels for boys and girls
8. Increasing the student strength in pre-matric hostels (new schemes)
9. Improvement of hostels (new schemes)
10. Training for self-employment (new schemes)
11. Supply of Sport materials
12. Construction of BC Hostels under NREP
13. Buildings
Stipendiary Employment Scheme for Unemployed Graduates and
Diploma Holders
District Planning Machinery
1. Strengthening of District Planning Machinery (State and Central)
Social Welfare
1. Scheme for care and maintenance of destttutes/orphan children
2. CSS of Integrated Child Development Service
3. CSS for Care and maintenance of Destitutes and ophan children
4. Creches for working mothers
5. BIRD
6. Social Input for Area Development
7. Taluka Mahiia Mandals
8. Widow/Devadasis remarriage
9. Taliya Bhagya
Housing
1. Supervisory Establishment of People’s Housing Schemes
2. Residential accomodation for village level functionaries
Sericulture
1. Farms
Karnataka Sericulture Project with the Assistance of World Bank
2. Technical Service Centres
3. Administration
29
Sericulture Co-operatives
4. Subsidy
5. Investment
6. Assistance to Sericulturists - SCP village and small scale industries
Village and Small Industries
2851 Village and Small Industries
1. District Industries Centres - (CSS)
2. Interest subsidy for artisians
3. Collective Handlooms/Centres (Subsidy)
4. Housing Colony (Handlooms)
5. Big Dye Houses (Handlooms) .
6. Improved Appliances (Handlooms)
7. Training of Handloom Weavers
8. Managerial grants to primary handloom weaver societies
9. Assistance to Coir Co-operatives
10. Apiculture
4851 — Capital outlay in village and small industries
11. Investment in handloom weaver Co-operative Societies
12. Investment in Coir Co-operative Societies
13. Share capital investment to Industrial Co-operatives
6851 — Loans for Village and Small Industries
14. Big Dye Houses - Loans
15. Housing Colonies - Handlooms
16. Loans to Collective Weaving Centre - loans
17. Loans towards share capital to new members
18. Improved appliances
19. Loans to Industrial Co-operatives
20. Loans to Coir Co-operatives
21. Seed Margin Money for tiny and SSI Units in Rural Areas
Co-operation - 2425-Co-operation
1. CSS of NCDC - Construction of Rural Godowns Subsidy
2. Completion of Incomplete Godowns - Subsidy
3. Interest in MT loans to small and marginal farmers, agricultural labourers
4. NCDC scheme of construction of Godowns by Marketing Federation
subsidy (State share)
30
5. Interest subsidy on loans to Marketing Societies
6. Special Component Plan
7. NCDC scheme of students consumer societies
8. Interest subsidy to weaker Co-operatives including wholesale
Co-operatives
9. CSS of revitalisation of Weak Co-operatives
7
10. Construction of Business Premises
4425 — Capital outlay in Co-operation
11. Investments in District Central Co-operative Banks
12. Investments in Service Co-operative Societies
13. Investments in Urban Co-operative Banks
14. Share Capital contribution for setting up of Grainage-cum-Chawki
rearing centre by Sericulturist-cum-Farmers Service Co-operative
Societies - NCDC Scheme (State Component)
15. Additional share capital by Government on behalf of small and marginal
farmers to obtain irrigation loans
16. Contribution to Primary Marketing Societies for the purpose of working
capital (Investments)
17. Share Capital for construction of Godowns by P.A.C. Marketing
Societies/ Federation under NCDC III Project through World Bank
Assistance for storage (State Component)
18. CSS for NCDC Share Capital for construction of Godowns Cotton by
PACs/Marketing Societies/Federation under World Bank Assistance
19. Share Capital Contribution to Processing Societies and Other Societies for
establishment of Processing Units - NCDC Scheme
20. CSS NCDC Scheme .of strengthening of share capital base in PACs on
revitalization/development and business activities (central share)
21. Share Capital contribution to Fruits and Vegetable Growers Co-operative
Societies
5475 Capital outlay in other General Economic Services
22. NCDC Scheme of Distribution of Consumer Articles in rural areas Investment
23. Students Consumer stores - NCDC Scheme
24. CSS - Assistance for opening small branches by Consumer Co-operatives
for Weaker Section
25. CSS - Assistance for opening departmental stores/LSR/Common Kitchen
Centre
3^^ "HO
31
|^8
26. CSS of NCDC for providing Margin Money to Agricultural Credit
Services/ Co-operative Societies for distribution of consumer goods in
rural areas
27. CSS Scheme for rehabilitation of weak consumers Co-operative Societies
28. Central Co-operative Wholesale stores - Investment
6425 — Loans for Co-operation
29. Loans to TAPCMS - linking credit with production and marketing
30. Loans towards Share Capital for the members of Sericulturist-cumFarmers Co-operatives
31. CSS of NCDC - Loans for setting up of Grainage-cum-Chawki rearing
centres
32. Loans for purchase of defaulters’ properties by Government in PLD Banks
33. Loans for construction of Godowns - NCDC Scheme — loans to Marketing
Societies
34. Central Sector Scheme of NCDC - Loans for construction of Godowns
35. Loans for completion of Incomplete Godowns
36. Loans to Co-operative Societies including House Building Co-operative
Societies
37. Working Capital Loan to Employees’ Co-operative Societies
38. CSS - NCDC loans for small and medium sized processing units
39. Interest free loan for additional share capital in Co-operative Societies
(Special Component Plan)
Tribal Sub-Plan (6425 loans to Co-operation)
1. CSS Scheme for providing assistance to co-operative institutionsand
weak co-operatives
2. CSS Scheme of NCDC loan for construction of godowns
3. FA for opening of processing units of forest produce by LAMPS
4. Loans for opening of purchase and sale point
7425 Loans for other General Economic Services
40. NCDC Scheme - Loans for distribution of consumer articles in rural areas
41. CSS - Opening of small branches by consumer co-operatives for weaker
section
42. CSS - Opening of departmental stores LSR/Common Kitchen Centres
3456 — Civil Supplies
43. NCDC Scheme of distribution of consumer articles in rural areas - subsidy
32
44. Students Consumer Stores-NCDC Scheme
45. CSS of subsidy for opening of small branches of consumer co-operatives
for weaker sections
46. CSS of Assistance for opening of Departmental Stores, LSFO and
Common Kitchen Centres
47. Assistance to weak consumer stores including Wholesale Stores - Subsidy
48. Assistance for purchase of van for rural distribution centres
2230 — Labour and Employment
49. Assistance to Labour Co-operatives - Subsidy
4250 — Capital Outlay on other Social Services
50. Investment in Primary Labour Co-operatives
2204 - Sports and Youth Services
1. Construction of Gymnasia and Scholarship to Rural Gymnasts
2. Flood lighting and other improvements for playgrounds
3. Grants for construction of Indoor Stadium and Open Air Theatres
4. Regional Youth Centres at District Level
5. Youth Camps and Rallies
6. Maintenance of Students’ Hostel
7. Assistance to DYS for purchase of sports materials
8. Teenage Clubs and Hobby Grounds
33
Mandal Schemes — Category-II
Schemes in respect of which the Mandal Panchayats will be responsible
only for:
a) . Planning, including selection of beneficiaries and identification of
works and
b) . Supervision, monitoring and reporting of the schemes/works
Family Welfare
1. Village Health Guides
2. Compensation (I.U.D., Vasectomy and Tubectomy)
3. Additional Compensation to acceptors of Vasectomy
4. Special Incentive Scheme
Rural Water Supply
5. NRWS-Piped Water Supply Schemes
6. ARWS - Piped Water Supply Schemes
7. Borewells (State and Centre)
8. Mini Water Supply Schemes (State and Centre)
Housing
9. HUDCO Assisted Peoples Housing Scheme (including Bank Assisted)
Welfare of SCs and STs
10. Award of Merit Scholarships for SCs and STs
11. Award of Pre-Matric Scholarships for SCs and STs
12. Government of India Post-Matric Scholarships for SCs and STs
Welfare of Backward Classes and Minorities
13. Award of Pre-Matric Scholarships
14. Award of Post-Matric Scholarships
Tribal Sub-Plan (of all Departments)
15. Tribal Sub-Plan
16. Special Central Assistance for Tribal Sub-Plan
Special Component Plan (of all Departments)
17. Special Component Plan
18. Special Central Assistance for Special Component Plan
36
Social Welfare
19. Construction of Anganawadi Buildings
Nutrition
20. Special Nutrition Programme for Pregnant, Nursing mothers and for
pre-school children (including TSP and SCP)
21. Midday Meals
Agriculture
22. Tribal Sub-Plan
23. Special Component Plan
Horticulture
24. CSS for laying out Demonstration Plots for Cashew
25. CSS for subsidised Plantation of cashew in Non-Departmental Area
26. New Area Expansion-Aromatic Medicinal Plants
27. Plantation Crops
28. Spices
29. Expansion of Area under Vegetables
30. Expansion of Area under Fruits (Citrus)
31. Expansion of Area under commercial flowers
32. Dry Orchards
33. Tribal Sub-Plan
34. Special Component Plan
Soil Conservation
35. CSS of customs hiring services
36. CSS of assisting small and marginal farmers land development and supply
of input kits
37. Soil Conservation and field trials and dry farming technology (implements)
38. Tribal Sub-Plan
39. Special Component Plan
39A. National Water-Shed Development Programme
Animal Husbandry
40. Grassland Development
41. Tribal Sub-Plan
Fisheries
42. Subsidy to Inland Fisheries for procuring fishing gear
37
I
■
}
£
43. Subsidy to fish farmers for construction of fish culture tanks
44. Subsidy to fishermen for improvement of traditional fishing
45. Construction of fish farms (departmental and PWD)
Forest
46. Soil Conservation (Afforestation)
47. Social Forestry Project (World Bank/ODA/UK aided)
48. CSS Social Forestry including raising of rural fuelwood plantations
49. CSS of Decentralised Farms
50. Danda assisted integrated development of Dakshina Kannada district
Co-operation
51. Women’s Cooperative Societies (Assistance and Investments)
52. Tribal Sub-Plan
a) Subsidy for construction of cattle sheds/godowns
b) Subsidy for opening of purchase and sale points
c) Financial assistance for opening of firewood depots by LAMPS (Assis
tance and Investment)
d) Financial assistance for opening of processing units of forest produce
by LAMPS (Assistance and Investment)
e) Grant-in-Aid for enrolment and incidental cost of tribal members as
members of Tribal Societies
f) Additional share capital to members of LAMPS
Rural Development
53. Rehabilitation of Bonded Labourers
54. Development of women and children in rural areas (DWCRA)
55. Special Livestock Production Programme
56. Drought Prone Area Programme (Centre and State)
57. National Rural Employment Programme
58. Rural Landless Employment Guarantee Scheme
59. Rural Employment Guarantee Scheme
60. CSS of Financial Assistance to new assignee of land on imposition of ceil
ing on land holdings
61. Integrated Rural Development Programme
62. Anthyodaya
63. Assistance to SF/MF for increasing agricultural production -subsidy on
wells, pumpsets, fuel etc. on IRDP pattern
38
64. Western Ghats Development Programme
Sericulture
65. Chawki Rearing Centres
66. Tribal Sub-Plan
Sports and Youth Services
67. Youth Clubs
39
ANNEX 2
MANDAL LEVEL CONFIGURATION
1. Total Number of Mandals *
2536
2. Average Number of Households
2079
or say 2000
3. Average Number of Bovines
5553
4. Average Total Geographical Area
7500
(Hectares)
5. Average total area available for cultivation
6725
n
6. Average area under cultivation
4717
»>
7. Average net sown area
4175
8. Average area under irrigation (1987-88
estimates—20% of net area sown)
835
9. (a) Average ultimate exploitable/hamessable
n
irrigation potential
2165.35
(b) Average addition to exploitable ground-water
potential due to improved recharge
196.85
(c) Average additional irrigation potential due to
diversion of Paddy/Sugarcane land to
Dry-cum-wet/Semi-dry crops
639.37
(d) Sub total (a)+(b)+(c)
3001.57
(e) Increased duty of (d) due to efficent use of
water-40% of (d)
1200.63
(f) Total assumed supportive irrigation cover
available (d) + (e)
4202.20
»
or say
4200.00
includes tentative delimitation in Bangalore Urban District and converted
Municipal Councils, etc.
j
40
Decentralised Planning
In Karnataka
Brief background: Planning at the district level was introduced in Kar
nataka from 1961-62. The District Plans took the shape of disaggregation of the
State Plans. The role of the district planners was mainly consultation and super
vision, and the district plans continued to be formulated at the State level and
implemented by the official machinery responsible to the Heads of Depart
ments in the State. A small outlay, generally around Rs. 1 crore per year, was
provided for creation of remunerative assets by the Village Panchayats and
Taluk Development Boards. A provision of about Rs. 5 to 6 crores per year for
the entire State was made from 1983-84 onwards and distributed among the
districts to be spent on schemes of local importance.
2. Democratic decentralisation and districtplanning: Decentralisation
of planning at the district level in real terms is possible only with appropriate
institutions and an organisation framework, responsive to the needs of the
people. The setting up of ZPs and mandals effectively from April 1, 1987
marked a total departure from the existing systems, as for the first time an
elected district body acquired the authority to plan, as well as execute, all
developmental activities relevant to the district. Apart from the transfer of the
district staff of development departments to its control, each Zilla Parishad was
also provided with a planning unit, consisting of a Chief Planning Officer, and
six other specialists in various fields, including an economist and a statistician.
The planning staff undergo periodic training and attend refresher courses, to
enable them to acquire expertise in their work.
3. The Karnataka model ofdecentralisedplanning in operation: During
• 1987-88, the ZPs had merely to implement the schemes that were already a
part of the State’s plan budget.The real process of decentralised planning as
per the Karnataka model, could be taken as having commenced fully from the
year 1988-89. The distribution of the Plan outlay transferred to the ZPs was
made among the various districts on the basis of the following indicators and
weightages, in order to achieve regional balance.
41
Weights (%)
Indicators
1. Population
2. Backwardness in Agriculture as measured by the value of
Agricultural output per hectare.
3. Backwardness in Irrigation as measured by the proportion
of Irrigated Area to Net Area Sown
4. Backwardness as measured by the value of
Industrial Output
5. Backwardness in Communications as measured by Road
and Railway mileage per 100 Sq.Km. and per lakh of
population
6. Backwardness in Financial Infrastructure as measured by
size of population served by each commercial and
Cooperative Bank
7. Backwardness in Medical and Health facilities as measured
by the number of hospitals per 1000 population/bed
population ratio.
8. Backwardness in Power Supply as measured by the
proportion of villages electrified
9. Problems of the Weaker Sections:
(a) as measured by the proportion of SCs/STs in
the population
(b) as measured by the proportion of Landless
Agricultural Labourers
10. Special Problems of Malnad areas and Drought
Prone Areas:
(a) as measured by the area under forest
(b) as measured by the rural population of drought
prone areas
11. Literacy Percentage
12. Performance in Family Planning Programme
TOTAL
50
5
7
5
5
2
5
5
2
2
2
2
5
3
100
42
- The above criteria cover allocation of plan funds among ZPs. Similar
criteria have been fixed for determining the share of mandals in the proportion
of the plan funds allocated to ZPs which are to be earmarked for mandals cov
ering schemes transferred to them. These are as follows:
Indicators
Weights (%)
1. Population
50
2. AreaofMandal
15
3. Dryland Area
15
4. Agricultural Labour Population
10
5. Per Capita resources raised
10
- The 10 per cent weightage to resources raised by mandals is given
keeping in view the need to encourage those who perform better in mobilising
resources. A similar indicator is not included for ZPs, since they do not have
taxation powers. For the year 1987-88, this indicator was not operative since
mandals were constituted only in January 1987, and became operational only
on April 1,1987. The weightage given to population was consequently raised
from 50 to 60 for the year 1987-88 only.
- The Government order on this poinfis copied at Annex - III.
4. The Planning Process: The Karnataka model provides for planning
right from the village level. The Grama Sabha is the village assembly, where
programmes for the development of the village are discussed and their
implementation commented upon. The next larger formation is the Mandal
Panchayat which consists of a group of villages. Each Mandal has its own sub
plan, relating to local works, such as water supply, sanitation, rural communica
tion, etc. It has also the responsibility of planning and supervising certain works
carried out by the Zilla Parishad within its jurisdiction. The Mandal Panchayat
plan becomes a part of the Zilla Parishad plan. They also have the civic jurisdic
tion exercised formerly by the Village Panchayats over village amenities.
The Taluk Panchayat Samithi is an advisory body which has powers to
supervise, review and co-ordinate.
The Zilla Parishad is the final planning and implementing authority in the
District. The Zilla Parishad prepares the district plan, which includes the Mandal
plans, thereby giving a totally representative character to the composite plan.
This process has been designed to ensure that, in some way or the other, every
local aspiration, even at the village level, is taken note of.
43
5 The Planning Calendar. A calendar of events for the planning pro
cess has been adopted, so that the Zilla Parishad plans could be smoothly
incorporated into the State sector plans:
Each Zilla Parishad intimates the tentative outlay of its plan
End July:
for the next year.
Mandals send their plan proposals to the Zilla Parishads.
Mid August:
End September: Zilla Parishads finalise the entire district plan and send it to
the State Government.
The Planning Department of the State Government holds
End Sept to
discussions with ea'ch Zilla Parishad on its draft district plan,
End October:
for achieving consistency and for integrating the schemes
of the district sectors with those of the State sector. During
these discussions, the State Heads of Departments are also
present and contribute to matters pertaining to their sect
ors The District Plans are provisionally finalised, after ensu
ring that adequate provision is made for committed and
essential expenditure, such as ongoing schemes, salanes,
minimum needs programmes, etc.
Mid November: The State departments consolidate the schemes of the Zilla
Parishads and build them into the vanous sectors of the
State Plan. When this integration takes place, the State s
draft plan is ready for being presented to the Planning
Commission.
6. After the outlay of the State plan is finahy fixed by
Phnmng
Commission, changes, if any, resulting thereby are made in the District Pla
Such changes are of a very small magnitude. For instance the1"
district plan, as a result of scaling down the draft State plan for 1988-89 from
Rs 1000 crores to Rs. 900 crores was only from Rs. 245 crores to Rs.
crores. The final State plan, including the district sector rs then, incorP°r®te
the State budget, which contains a link document on zJlaP^had'
Zilla Parishad outlays are communicated to each Zilla Panshad after it is passed
by the legislature, for implementation from 1st April.
7 Level of discretion: An important question relates to the area of dis
cretion that is vested in the ZPs in development planning. A lumpsum alloca44
tion is made to each Zilla Parishad as its plan outlay. But the Zilla Parishad plan
has to provide for committed expenditure on salaries, spillover works,minimum
needs programmes, ongoing schemes relating to scholarships, farms, hospitals,
etc.,and the State’s share on Centrally Sponsored Schemes implemented by the
Zilla Parishads. During 1988-89, it was estimated that only about 14 per cent of
the total outlay was uncommitted. However, there is a wide area of autonomy
vested in the Zilla Parishads/Mandal Panchayats in the implementation of the
schemes. They can determine the location where relevant, decide on various
parameters of implementation, and, within certain limits, give up or add certain
schemes, and increase or decrease outlays. As spillover and committed works
get exhausted, the area of autonomy would increase considerably. This pattern
is consistent with the fact that the Zilla Parishads’ activities have to be integrated
with those of the State as a whole, and follow national priorities.
8. The position for the year 1988-89, is illustrative of the question:
(Rs. in crs.)
239.78 orsay
Total ZP Plan outlay during 1988-89:
240.00
Committed Expenditure:
1. Salaries
2. State share on CSS
3. Spilloverworks
4. MNP
5. Committed ongoing schemes related to scholar
ships, hostels, farms, hospital, drugs,
institutions, etc.
48.53
76.96
30.39
30.00
20.00
205.88
33.90 (14%)
Total
Balance of free outlay (estimated)
239.78
9. Progress monitoring ~~ The Karnataka model of monthly
multilevel review (MMR): Though the ZPs are vested with full autonomy to
formulate and implement schemes, within the scope of the legislative enact
ment, and State Government interference is minimal, nevertheless, there is
continuous monitoring of performance under these schemes at all levels.Such
45
monitoring is done at the following levels and on the respective dates:
a) Mandal Panchayat - by itself/Grama Sabha;
b) Taluk by Taluk Panchayat Samithi on 5th of every month;
c) Zilla Parishad by the Zilla KDP (Karnataka Development Programme)
Committee chaired by the Adyaksha on 11th of each month;
d) State by the State KDP Meeting chaired by the Chief Secretary - on
16th of each month.
10. The day of the month for review by each authority is fixed in such a
manner that the review reports are available to the next level in time. At each
level, attendance .is required at the highest local executive level. Each depart
ment in turn also carries a detailed scheme-by-scheme. review at correspond
ing levels, which gets related to the multi-sector KDP review.
46
ANNEX 3
Proceedings of
The Government of Karnataka
Sub: Planning Process under Zilla Parishad and Mandal Panchayats Set-up.
Preamble
Karnataka Government have enacted the Karnataka Zilla Parishads,
Taluk Panchayat Samithis, Mandal Panchayats and Nyaya Panchayats Act (ZP
Act) 1983, with the intention of progressively decentralising decision making
powers on all vital developmental matters affecting people’s life. The Planning
Process is an instrument in translating this objective into reality. All the
elements included in the Planning Process namely, Areas for Planning, Plan
Formulation, Administrative, Technical and Financial Sanctioning powers and
Plan Implementation should be made to achieve this basic objective of
decentralisation. Decentralised plan formulation process is a first and an
important step in this direction.
Cabinet considered the paper on “Planning Process under Zilla
Parishad and Mandal Panchayat Set-up” at its meeting held on 7-10-1986 and
gave its approval for it.
Government Order No. PD 3 PRN 86
Bangalore, Dated 19th December 1986
Government are pleased to approve the following process of
planning under Zilla Parishad and Mandal Panchayat set-up. This process will
come into force beginning from 1987-88.
2. Considerable experience has been gained in Karnataka in
implementing the District Planning Process since 1978-79. This has helped in
clearly demarcating the District Level Schemes from the State Level Schemes.
Government have already approved the functions and schemes that are to be
transferred to Zilla Parishads based on the Official Committee’s report on
“Decentralising Development Activities to Zilla Parishads and Mandal
Panchayats”. With this, the Areas for Planning at the State Level and Zilla
Parishad Level have been clearly demarcated. Similar exercise is underway
with regard to the Zilla Parishad schemes that are to be transferred to Mandal
Panchayats. The Rural Development and Panchayat Raj Department will issue
necessary orders with regard to schemes transferred to Zilla Parishads and
Mandal Panchayats.
47
Lumpsum Allocation
£lbtf?'7F=”“
u.™xs
actual process of thinking on local level planning, translating the ideas into
concrete developmental programmes have not had the adequate exposure to
5' J1?3 tlumPsum a,1°cation includes not only outlay from State Plan
Family Welfare,etc_ However, Schemewise allocation of funds willbe resorted
be inditafed r2
^T565 r°f P'an formuIation lumpsum allocation will
4B
budgeting will be Major Head of Account-wise in the Budget documents of the
btate Government. In other words, the lumpsum under each Major Head of
Account wi l be arrived by aggregating each sectoral plan of all Zilla Parishads
and Mandal ranchayats.
.nJ M7' j Pi6'6 t1"6 S°me difficulties in allocating plan funds to Zilla Parishads
and Mandal Panchayats m the form of lumpsum allocation.Firstly thenorms for
different schernes prescribed at the State Level are likely to undergo
modificatons .Further, as regards new schemes different norms may be
adopted by different Zilla parishads and Mandal Panchayats. Whether to allow
tor such a vanation m the norms for schemes both ongoing and new is an
important issue. It has been decided to allow for changes in the norms, if any so
long as the schemes are formulated after assessing the local conditions and
requirement However this relaxation will not apply to Centrally Sponsored
and Central Sector Schemes, individual beneficiary schemes, subsidies
scholarships and nutrition programmes.
8. There are some important schemes like Minimum Needs
Programme which are now treated as Zilla Parishad and Mandal Level
bchemes. So long as there is conformity' between the lower tiers of
Government and the State Government as regards the priorities for such
schemes, triere may not be any problem. But conflicts arise if their perspectives
tor such schemes differ. In order to avoid any such possible conflicts, it is
necessary to earmark outlays for some of these important schemes, which the
btate Government thinks are to be implemented.
9. Hence, it has been decided to earmark outlays from the lumpsum
for certain programmes which the State Government thinks are important.
Planning Department will indicate this, while indicating lumpsum allocation for
plan formulation. Even at the time of release of funds earmarking will be
resorted as per Planning Department’s allocation. Such earmarking is also
done by the National Planning Commission while approving the State Plan.
Criteria For Allocation Of Plan Outlay
10. For realising the objective of regional balance through
ecentralised planning Government have approved the following criteria akin
to Gadgil FormuWor distribution of plan outlays among Zilla Parishads. As per
this criteria b<
backward regions/areas get a relatively higher share of outlay
compared to developed regions.
49
INDICATORS AND WEIGHTAGES FOR
DISTRIBUTION OF PLAN OUTLAY
Indicators
Weights (%)
1. Population
2. Backwardness in Agriculture as measured by the value of
Agricultural output per hectare.
3. Backwardness in Irrigation as measured by the proportion
of Imgated Area to Net Area Sown
4. Backwardness as measured by the value of
Industrial Output
5. Backwardness in Communications as measured by Road
and Railway mileage per 100 Sq.Km. and per lakh of
population
6. Backwardness in Financial Infrastructure as measured by
size of population served by each commercial and '
Cooperative Bank
7. Backwardness in Medical and Health facilities as measured
by the number of hospitals per 1000 population/bed
population ratio.
8. Backwardness in Power Supply as measured by the
proportipn of villages electrified
9. Problems of the Weaker Sections:
(a) as measured by the proportion ofSCs/STsin
the population
(b) as measured by the proportion of Landless
Agricultural Labourers
10. Special Problems of Malnad areas and Drought
Prone Areas:
(a) as measured by the area under forest
(b) as measured by the rural population of drought
prone areas
J
11. Literacy Percentage
12. Performance in Family Planning Programme
~TOTAL
50
50
5
7
5
5
2
5
5
2
2
2
2
5
3
100
criteria
cniena suggested above take care of the allocation of olan
nIs j.™n9 Z‘ a Parishads on an equitable basis giving weightaqe to back
ward, distorts.
Similar
criteria
needs to be fixed for determining the share of
» «
.
—
—— --W.WW IV vv UACU 1UI UE
Mandal Panchayats. For this purpose certain proportion
“S
« Utt* ‘J* !*•
?■.
Dutea amongst Mandals. For distribution of
u/ proportion among Mandals
of this
Government have approved the following criteri;ia:
Indicators
Weights (%)
1. Population
50
2. Area of Mandal
15
3. Dryland Area
15
4. Agricultural Labour Population
10
5. Per Capita resources raised
10
12. A 10 per cent weightaae to
-- ----------------- * *«**v*mio wuw ueuuiiii ueuer
SOlJ
Jdo’s not
mf J^easo
.uLfCes
cesHiSimilar indicator is not included for Zilla Parishads since they
do not have taxation powers. However for the year 1987-88 this indicator will
no. be operative since Mandals will come into being during January 1987
not
J^W-sTon^96 9‘Ven t0 P°pu!atiOn Wil1 be
I
fr0111.5010 60 for the
ha. alrJL C
for
Parishads and Mandal Panchayats .
and intndi
f Per Z?
t0 S° int0 the Problems of income
and expenditure of these bodies. This Commission will look into the aspects
Jrin^8 Ik p.venue,stann9 and W111 su99est a formula for allocating funds cov
ering boto Plan and Non-Plan expenditures of Zilla Parishads and Mandal PantauTn ’ T‘ SUCh hW5 the Commission gives its report and the Government
takes decision on it the cntena suggested above for distribution of plan funds
among Zilla Panshads and Mandal Panchayats will be adopted.
Calendar For Planning
fi f
Vn ™r 1,16 existin9 planning process in the country, State Plan is
finalised by the Planning Commission before it is budgetted. State’s Draft Plan
°
Ptanning Commission usually in October/November every year.
i the establishment of Zilla Parishads, they will become responsible for for
mulating and implementing the District and Mandal plans. State’s Plan has to be
Ult
HEaT-P^W05315 of aI1 ZiIIaParishads which would
fr- i£j t E!
Ct. M a, rs Hgftxj
BANGALORE- 5S0 001
"S"/)
\
1
H0 .
incorporate Mandal Plans and its own programmes formulated at the State
Level before the Draft Plan is sent to the Planning Commission. For so doing,
the plan exercise at the Zilla Parishad level and Mandal Level should begin ear
lier than at the State Level. In order to facilitate this a tentative allocation will be
intimated to each Zilla Parishad and Mandal Panchayats against which Zilla
Parishads and Mandal Panchayats shall formulate their plan proposals for the
next year. For this purpose Government have decided to adopt a tentative
reasonable outlay for the State even before the Planning Commission holds
resources discussions with the State. Unless a Calendar for Planning is fixed
and followed strictly, it would not be possible to formulate the State’s Plan by
incorporating Zilla Parishad and Mandal Plans. Hence the Government have
decided to adopt the following Calendar for Planning:
15th July
Adopting the tentative size for the State’s Annual Plan of
the next year.
25th July
Government in the Planning Department to indicate to Zilla
Parishads and Mandal Panchayats the financial ceiling with
in which their Annual Plan should be formulated for the
next year.
15th August
Mandal Panchayats to send their plan proposals to
Zilla Parishads.
20th September Zilla Parishads'to build the Mandal proposals into the
District Plan and send the Draft District Plan to the Govern
ment in the Planning Department and concerned State
Head of the Department.
28th Sept, to
Discussion with the Zilla Parishads on their Draft District
25th October
Plan by the Planning Department for achieving consistency
and integration of District Sector with State Sector Schemes/
Plans.
10th November Govemment/State Heads of Depatments to consolidate
these proposals and build them into the State’s Draft Plan
and send the same to the Planning Commission.
15th January
Approval of the Planning Commission to the State’s Plan
25th February
Finalising the State’s Plan Budget in the light of Planning
Commission’s approval to the State Plan and finalising the
District Plans of Zilla Parishads.
52
1st Week of
March
Presentation of the State’s Budget to the Legislature along
with the link document giving schemewise,sectorwiseand
Zilla Parishad-wise outlays.
Planning Department As Nodal Department
15. For effectively implementing the process of decentralised planning
under Zilla Parisad set-up there is need for high degree of coordination, consul
tation, guidance, interaction and resolution of conflicts at different tiers viz
Mandal Panchayat, Zilla Parishad and State Levels. Determining the size of
the Zilla Parishad and Mandal Panchayat sector outlay, distribution of the same
among Zilla Parishads and Mandal Panchayats on the basis of objective criteria,
earmarking of outlays for some programmes from the lumpsum, fixation of
physical targets, guiding the Zilla Parishads in the formulation of district plans,
ensuring incorporation of the plan proposals of Zilla Parishads in the State
Plan, finalisation of District Plans, communicating the approved plan of Zilla
Parishads,etc.are some of the important functions to be performed at the State
Level. At present the Planning Department does most of these functions. It has
7 technical divisions, viz., District and Regional Planning Division, Project For
mulation Division, Employment and Manpower Division, Perspective Planning
Division, Plan Monitoring and Information Division, Evaluation Division and
Special Studies Division, which can guide and advice on all aspects of Planning
to the District Planning Team. District and Regional Planning Division is already
performing the functions like determining the size of district sector outlay and
its distribution to districts on the basis of objective criteria, guiding the district
planning units in plan formulation, coordinating the matters relating to district
sector schemes at the State Level, finalisation of district plans and bringing out
a link document to the Budget giving districtwise and schemewise outlays, etc.
These functions will be continued under Zilla Parishad and Mandal Panchayat
set-up also.
16. Further, there are various development programmes which get
implemented at the district level by autonomous bodies like the corporations
and Boards, which function with State-wide authority. These activities will
have to be brought together to get a total District Development Plan. The Cent
rally Sponsored and Central Sector Schemes will continue to be operated by
the Heads of Departments in so far as the proposals on a Zilla Parishad basis
have to be sent to the Central Ministries and seek funds from the Centre
towards such schemes. In short, the District sector (State Component of the
53
Plan) including the Zilla Parishad Plans, which in tum contain the Mandal Panchayat Plans, the State Sector Plans and the Central Sector and Centrally
Sponsored Schemes are all to be brought together on a regional basis keeping
the Zilla Parishad’s jurisdiction in view. All this necessitates that a coordinating
department like the Planning Department, apart from its other Planning func
tions, will have to function as a nodal department for giving guidance and for
achieving integration in the matter of the Zilla Parishad Plans.
17. Hence, Government have decided to continue the Planning
Department as a nodal department for giving guidance in all matters concern
ing planning for the development of Zilla Parishads and Mandal Panchayats.
18. A Separate Government order will be issued by the Rural Develop
ment and Panchayat Raj Department on matters pertaining to financial powers,
budgetary procedures, accounting procedures etc.
19. In brief, the Government have approved the following procedure
for planning by Zilla Parishads and Mandal Panchayats. .
(i) To accept the Planning Process under Zilla Parishad and Man
dal Panchayat set-up as set out in this order.
(ii) To indicate Plan outlay in the form of lumpsum amount to
Zilla Parishad and Mandal Panchayat for plan formulating purpose,
with earmarking of outlays for MNP and other important program
mes.
(iii) To adopt the criteria suggested at para 10, 11 and 12 of this
order with proposed weights for distribution of plan outlay among
Zilla Parishads and Mandal Panchayats.
(iv) To prescribe the Calendar for Planning as indicated at para
13 of this order.
(v) To continue to treat the Planning Department as the nodal
Department for dealing and guiding any of planning func
tions concerning Zilla Parishads and Mandal Panchayats as
indicated in (i), (ii), (iii) and (iv) above of para 19 of this order.
54
By order and in the name of the
Governor of Karnataka
Dr. D.M. Nanjundappa
Commissioner & Secretary to Govt.,
Planning, Institutional Finance &
Statistics Departments.
Copy To:
1) Chief Secretary to Govt.
2) Additional Chief Secretary to Govt.
3) Development Commissioner
4) Financial Commissioner, Finance Department
5) All Secretaries to Govt.
6) All Divisional Commissioners
7) All Deputy Commissioners
8) Heads of Departments
9) All Chief Planning Officers
10) Joint Secretary to Government, Planning Dept.
11) Directors of all Functional Divisions, Planning Dept.
12) Deputy Secretary to Govt., PP-I, Planning Dept.
55
GOVERNMENT OF KARNATAKA
NO:PD2DPB87
Karnataka Government Secretariat,
Planning Department
M.S. Building, Bangalore - 560 001
Dated: April 16th, 1987
CIRCULAR
a
Sub: Continuation of schemes of Zilla
Parishads and Mandal Panchayats.
The normal practice was for various Secretariat Departments of Govern
ment to issue continuation orders of all the ongoing plan schemes during the
first week of April every year. With the establishment of Zilla Parishads and
Mandal Panchayats and with the issue of Government Order relating to transfer
of schemes (Vide G.O.NO:RDP 183 VAC 86 dt: 1.4.87) the procedure for issu
ing continuation orders needs to be changed.
The Government in various Departments will issue continuation orders
for the following schemes.
(1) Schemes not transferred to Zilla Parishads (State Sector Schemes)
(2) All Centrally Sponsored and Central Sector Schemes, even if they
are transferred to Zilla Parishads and Mandal Panchayats.
(3) All externally aided schemes/projects.
The Chief Secretaries of Zilla Parishads will issue orders of continua
tion/sanction for all those schemes listed in the link document (issp-ss^c sms to
zudnx&jj arsa
- oii&faFS
tewSfso) except centrally sponsored, central
sector and externally aided schemes/projects, after getting the approval of
Zilla Parishads. It is possible that some of the Zilla Parishads have already
approved their plan programmes for the year 1987-88 as given in the link
document. In that case, Chief Secretary may issue necessary orders for con
tinuation/sanction of those plan schemes mentioned above. Wherever the Zilla
Parishads have not yet approved the programmes, the Chief Secretary con
cerned may take immediate action to place the subject before the Zilla
Parishads after getting their approval for the programmes, issue necessary
orders of continuation/sanction for the schemes mentioned above.
56
This may please be treated as most urgent since otherwise the
implementation of plan schemes/works will be held up.
TARA AJA1 SINGH
Joint Secretary,
Planning Department.
To:
1. All Secretaries to Government
2. All the Chief Secretaries of Zilla Parishads.
3. P.S. to Chief Secretary, Addl. Chief Secy., Development
Commissioner and Finance Commissioner.
4. All Chief Planning Officers.
57
ZILLA PARISHAD OUTLAY 1988-89
(Rs. in Lakhs)
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
District
1987-88
Allocation
1988-89
Allocation
as per criteria
Bangalore (Rural)
Bangalore (Urban)
Chitradurga
Kolar
Shimoga
Tumkur
Mysore
Chickmagalur
Dakshina Kannada
Hassan
Kodagu
Mandya
Belgaum
Bijapur
Dharwar
Uttara Kannada
Gulbarga
Bellary
Bidar
Raichur
1054
456
1216
1360
1021
1341
1726
806
1231
998
448
1008
1463
1501
1640
812
1428
917
667
1120
1095
474
1216
1360
1151
1436
1726
806
1231
1096
448
1008
1715
1742
1771
963
1713
1071
891
1487
22213
24400
TOTAL
58
PLANNING PROCESS IN KARNATAKA
(Illustration of 1988-89 plan)
,r~
STATE PLAN OUTLAY
Provisionally fixed at Rs. 1000 crs
J______________ _
I
State Sector
Rs. 756 crs
ZP Sector
Rs. 244 crs
Government communicates outlay of ZP
and Mandals and asks ZPs to prepare composite
district plans (JULY)
|
Distribution among
departments and fin
alisation of sectoral
allocations.
(OCTOBER)
ZP distributes outlay to each Mandal based
on criteria (AUGUST)
V
Mandals hold Gram Sabhas, finalise their plans
and send to ZPs (AUGUST)
ZP prepares district plan by integrating Mandal
plans with own plan, and sends to Government
(SEPTEMBER)
Government level meetings with each ZP,
attended by Heads of Departments, to finalise
the plans (OCTOBER)
I
Sectoral outlays of State and district plans
integrated in each department, and^
State Plan finalised (NOVEMBER)
Draft State Plan discussed with Planning
Commission and finalised for an outlay of
Rs. 900 Crs (JANUARY)
Outlays in State sector (Rs. 660.69 crs)
and ZP sector (Rs. 239.31 crs) revised and
incorporated in the State budget
(FEB-MARCH)
I
!
I
Approved outlay communicated
to the ZPs (MARCH)
59
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