i Need Assessment Study of Urban Local Bodies and Panchayati Raj Institutions, Rajasthan conducted by Shiv Charan Mathur Social Policy Research Institute, Jaipur Dear Sir/Madam The Fourth State Finance Commission entrusted the responsibility of conducting a study on “Need Assessment of Urban Local Bodies and Panchayati Raj Institutions” to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. The objective of the study is to ensure that devolution is made in accordance with the ground realities and the funds so devolved are efficiently utilized by the Local Bodies for core functions in their respective area. The Fourth State Finance Commission is expected to present it’s final report to Her Excellency, the Governor of Rajasthan latest by30 th September, 2013. Before finalization of the report, Commission invites your valuable views/suggestions on the recommendations/findings contained in the Study Report. The Study Report is as follows:
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i
Need Assessment Study of Urban Local Bodies and Panchayati Raj
Institutions, Rajasthan conducted by Shiv Charan Mathur
Social Policy Research Institute, Jaipur
Dear Sir/Madam
The Fourth State Finance Commission entrusted the
responsibility of conducting a study on “Need Assessment of Urban Local
Bodies and Panchayati Raj Institutions” to the SCM Social Policy Research
Institute for taking up an assessment of the core functions identified by the
Commission. The objective of the study is to ensure that devolution is made in
accordance with the ground realities and the funds so devolved are efficiently
utilized by the Local Bodies for core functions in their respective area.
The Fourth State Finance Commission is expected to present it’s
final report to Her Excellency, the Governor of Rajasthan latest by30th
September, 2013. Before finalization of the report, Commission invites your
valuable views/suggestions on the recommendations/findings contained in the
Study Report.
The Study Report is as follows:
ii
Need Assessment of U LBs & Panchayati Raj Institutions
Contents
Foreword iii
Preface & Acknowledgements iv
List of Acronyms v-vi
1.
Introduction
1-26
2. Research Methodology 27-35
3. The Status of Panchayati Raj Institutions (PRIs) 36-65
4. The Status of Urban Local Bodies (ULBs) 66-112
5. Norms for the Core Functions for the PRIs 113-136
6. Norms for the Core Functions for the Urban Local Bodies 137-157
7. Human Resource and Staffing in Urban Local Bodies 158-171
8. Success Stories 172-189
9. Summary & Suggestions 190-204
Annexures 205-263
1. Tools for PRIs 205-229
2. Tools for ULBs
230-263
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Need Assessment of U LBs & Panchayati Raj Institutions
Foreword
Under the 73rd and 74th amendments of the Constitution, a mandatory provision was
made for constituting a Finance Commission by the State Government to review the
financial position of the Local Bodies - both urban and rural. It is praiseworthy that
the Fourth State Finance Commission of Rajasthan under the Chairmanship of Dr.
B.D. Kalla, took the initiative of conducting an in-depth enquiry into the physical and
financial needs of the local bodies in major sectors and the funds required for each
sector thereof. The Commission delegated the study on the Need Assessment of
Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy
Research Institute for taking up an assessment of the core functions identified by the
Commission. This included assessment of the financial needs, examination of the
efficacy and gaps in implementation of the core functions and suggesting physical
and financial norms for these functions.
The present report is the first of its kind in the State of Rajasthan and I am sure that
this would immensely help the Finance Commission in evolving a formula for
equitable distribution of the grants to be given to the third tier of governance.
Further, the report also comes up with suggestions to enhance the efficiency of the
local bodies so that the benefits really accrue to the common people as desired by the
Constitution of India.
(Dr. Sudhir Varma) Director, SCM SPRI
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Need Assessment of U LBs & Panchayati Raj Institutions
Preface & Acknowledgments
Needs assessment is practically ubiquitous today among planners and designers, often identified as the first step in any planning or design process. The discrepancy between the present condition and desired condition is measured to appropriately identify the need. The need assessment is a process undertaken with an aim to enhance the efficiency of a system. The Fourth State Finance Commission entrusted the responsibility of Need Assessment of Urban Local Bodies and Panchayati Raj Institutions to the SCM Social Policy Research Institute for taking up an assessment of the core functions identified by the Commission. The aim is to evolve formulae for an equitable allocation of grants to these decentralized development units - panchayats and urban local bodies. The task was a huge challenge keeping in view the large scope as well as a number of sectors that needed to be consulted during the process of the study. Keeping in view, the objectives and research questions, detailed tools were designed, field tested and adopted to the local settings. A two day intensive training programme was conducted at the Institute for the investigators. The investigators were then put on observed field work. Data was collected according to the prescribed methodology for the study. Data thus collected, were carefully entered, cleaned and analyzed. The findings have been tabulated and suitably documented. We believe the findings would be useful for the State Finance Commission for ensuring that the devolution is made in accordance with the ground realities and assure that they are efficiently utilized. On behalf of the institute, I express our deep sense of gratitude to Hon‘ble Dr BD Kalla, Chairperson, Fourth State Finance Commission for trusting our abilities and supporting us throughout the study. The support of the SFC Members, Shri Raj Pal Singh Shekhawat and Dr JP Chandelia are gratefully acknowledged. A special mention of Dr PL Agarwal, Member-Secretary, SFC whose interest and involvement in the Study was a source of inspiration for us. Thanks are also due to Shri SS Rajawat and SL Jain for their valuable support. The study would not have been competed without the support of the elected representatives at all levels, CEOs, BDOs, EOs and officials of the PRIs and ULBs who continuously supported us by providing the required information despite their busy and demanding schedules. At the Institute, we are indebted to Shri Pradeep Mathur, Chairman for his support. Wirds fail me to express the gratitude to Dr. Sudhir Varma, Director, SCM SPRI for his constant guidance, supervision and contribution in writing the report. Thanks are due to the team membersespecially Ms Sonu Pareek, Ms. Neha,Shri Pradeep Sharma, Shri Yogeshwar Singh, Shri Ranveer Singh, Shri Yogesh Chhipa, Shri Ramakant and Shri Vinod Kewalramani.
(Manish Tiwari) Joint-Director, SCM SPRI
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Need Assessment of U LBs & Panchayati Raj Institutions
List of Acronyms
BOT Build Operate and Transfer
BPL Below Poverty Line
BSR Basic Scheduled Rate
CC Road Cement Concrete Road
CEO Chief Executive Officer
CFC Central Finance Commission
CFL Compact Fluorescent Lamp
DDP Desert Development Programme
DLB Department of Local Bodies
DPAP Drought Prone Area Program
DRDA District Rural Development Authority
EFC Eleventh Finance Commission
EO Executive Officer
FGD Focus Group Discussion
GOI Government of India
GOR Government of Rajasthan
GPF General Provident Fund
JDA Jaipur Development Authority
JMC Jaipur Municipal Corporation
LED Light Emitting Diode
MNRE Ministry of New and Renewable Energy
MNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme
NIUA National Institute for Urban Affairs
NTR Net Tax Revenue
O&M Operations and Maintenance
PHED Public Health and Engineering Department
PPP Public-Private Partnership
PRI Panchayati Raj Institutions
PSP Single Phase Pump
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Need Assessment of U LBs & Panchayati Raj Institutions
PWD Public Works Department
RIICO Rajasthan State Industrial Development and Investment Corporation
RIUA Rajasthan Institute for Urban Development
RUIDP Rajasthan Urban Infrastructure Development Project
RLB Rural Local Bodies
RPSC Rajasthan Public Service Commission
RSEB Rajasthan State Electricity Board
RVVNL Rajya Vidyut Vitran Nigam Limited
SFC State Finance Commission
SGSY Swarn Jayanti Gramin Swarozgar Yojana
SHG Self Help Group
SPV Solar Photovoltaic
SWM Solid Waste Management
TAD Tribal Area Development
TFC Thirteenth Finance Commission
UDT Urban Development Tax
UIT Urban Improvement Trust
ULB Urban Local Bodies
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Need Assessment of U LBs & Panchayati Raj Institutions
Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) have
acquired Constitutional status after the enactment of the Constitution (Seventy-third
and Seventy Fourth) Amendment Act. The Amendment Act' 92 in Part IX and IXA
has made mandatory provisions in Article 243-I for constituting a Finance
Commission by the Government of the State to review the financial position of the
panchayats and to make recommendations to the Governor. The principles which
should govern the review are as follows:
A (i) Distribution between the State and the panchayats of the net
proceeds of the taxes, duties, tolls and fees leviable by the State which
may be divided between them under this Part and the allocation
between the panchayats at all levels of their respective shares of such
proceeds
(ii) Determination of the taxes, duties, tolls and fees which may be
assigned to, or appropriated by, the panchayats.
(iii) Grants-in-aid to the panchayats from the Consolidated Fund of the
State.
B Suggest measures needed to improve the financial
position of panchayats.
C Any other matter referred to the Finance Commission by the Governor in the
interests of sound finance of the panchayats.
Introduction
8
Need Assessment of U LBs & Panchayati Raj Institutions
Article 243 (y) also makes similar provisions analogous to Article 243-I for
constituting a Finance Commission to review the financial position of the
municipalities and to make recommendations to the Governor as in the case of
panchayats.
The present Fourth State Finance Commission under the esteemed leadership
of Hon‘ble Dr. BD Kalla has desired to conduct a scientific inquiry into the present
minimum physical and financial needs of these bodies, funds required and the
financial gaps that need to be filled with the support of the grants by the
Commission. The aim is to evolve formulae for an equitable allocation of grants to
these decentralized development units- panchayats and urban local bodies.
The Commission had asked the Shiv Charan Mathur Social Policy Research
Institute, Jaipur vide their letter dated 29th February 2012 to take up a Need
Assessment Study of core functions of both the Urban Local Bodies as well as
Panchayati Raj Institutions. The following are the functions to be studied:-
(i) To take up a need assessment study of the core functions of the urban
local bodies and the panchayati raj institutions of the State. The core
functions, which the Institute has been asked to study, are the
following:-
(a) Cleaning of waste water drainage in public places (including public
conveniences).
(b) Disposal of solid waste
(c) Public lighting
(d) Sewerage
(e) Maintenance of roads, public properties, public parks and
community centres.
(f) Maintenance of cremation and burial grounds
(g) Providing drinking water
(h) Public health and sanitation
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Need Assessment of U LBs & Panchayati Raj Institutions
The Institute was expected to
i. Make an in-depth assessment of financial needs for
implementing these core functions
ii. Examine the efficacy and gaps in the implementation of these
functions &identify the problems faced by the PRIs and ULBs
iii. Suggest physical and financial norms for fulfilling the core
functions
iv. Suggest norms for allocation of funds by the State Finance
Commission
v. Suggest a staffing pattern for the ULBs and thePRIs to enable
them to perform the core functions regularly and effectively.
The present chapter details the present scenario of socio-economic
development of the State with a focus on the identified core issues, a general
summary of the recommendations of the earlier state commissions and a review of
literature.
About the State
Rajasthan, the largest State in the country in terms of geographical area, is
located in the north-western part of the country. It has a geographical area of
3,42,239 sq.km, which constitutes 10.41 per cent area of the country and 5.67 per cent
of national population (Census, 2011 : Provisional Population
Tables).Physiographically, the State can be divided into major four regions, namely
the western desert; and sandy plains, the Aravalli hills: running south-west to north-
east starting from Gujarat and ending in Delhi, the eastern plains: with rich alluvial
soils and the south-eastern plateau. Mahi, Chambal and Banas are the three major
rivers of the State. The State has varied climatic conditions ranging from the semi-
arid to the arid. It is administratively divided into 7 divisions and 33 districts.
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Need Assessment of U LBs & Panchayati Raj Institutions
State Profile
Rajasthan has 33 districts that are divided into 244 tehsils, 248 panchayat
samities, 9,177 village panchayats and 184 municipalities (Statistical Abstract, 2011
DES, GoR). The salient features of the State vis-a-vis India are given in the table
below:
Table 1.1
Indicator Source Rajasthan India
Total population Census 2011 6,86,21,012 1,21,01,93,422
Total 132629.00 136977.22 136978.04 182790.15 227596.39 816970.95
Source:Memorandum for IVth SFC, on the basis of information from 32 Zilla Parishad & 22 Panchayat samities
The above table reveals that the grants received by the PRIs show an
increasing trend from 2005-06 to 2009-10. The major heads include scheme grants
(58.1%), SFC and TFC Grant (29.6%) and salary component (12%). It indicates that
the capacity of the PRIs must be enhanced to effectively utilize increasing funds
being allotted to the PRIs. The Finanace Commission Grants are also an important
source of of grants to the PRIs and it must be ensured that they are untilized
efficiently so as to become a source of development in the rural areas.
It is also a worry that the expenditure incurred by these bodies is far less than
the meagre funds provided. The following statement for the years 2005-06 to 2009-10
reflects it:-
5 2009-10 79012.90 205.35 44478.41 1233.98
Total 236377.61 1225.06 238295.40 5064.56
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 1.4 Income-Expenditure statement in Panchayati Raj Institution in Rajasthan
(` in lakh)
SN Head Zila Parishads
Panchayat Samitis
1. Income in Last Five Years
1. Tax Revenue 467.06 939.91
2. Non Tax Revenue 758.00 4124.65
Total (A) 1225.06 5064.56
2. Receipts from the State Government/DRDA (B) 236377.61 238295.40
Total Receipts (A+B) 237602.67 243359.96
3. Expenditure in Last Five Years
1. Salary and Allowances 13043.36 75459.56
2. Expenditure Development Works 144960.35 150821.47
3. Expenditure on Maintenance 709.14 2676.19
Total 158712.85 228957.22
Source: Department of Rural Development & Panchayati Raj, GoR
It is, obviously, a reflection in the efficiencies in execution of
projects by these bodies. It is indicated that a review of the capacity of the staff
available to these bodies needs to be carried out.
Urban Local Bodies
The Local self- government institutions have always existed in India in one
form or another. The present form of urban local government owes its genesis to the
British rule. The first such body called a Municipal Corporation was set up in
Madras in 1688 and was followed by the establishment of similar corporations in
Bombay and Calcutta in 1762. The tradition of local service delivery being the
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Need Assessment of U LBs & Panchayati Raj Institutions
explicit mandate for local government began with Samuel Laing, member of the
Viceroy‘s Council, in the Budget Speech (1861-62) proposing that local services
should be based on local resources. Lord Mayo‘s Resolution of 1870 introduced the
concept of elected representatives in the municipalities. Lord Ripon is considered to
be the founding father of urban local government as he devised the concept of
municipal authorities as units of self-government. His resolution of 18 May 1882 on
local self-government dealt with the constitution of local bodies, their functions,
finances and powers and laid the foundation of local self-government in modern
India. Since then the structure of municipal bodies has remained by and large the
same even though the number of urban areas has increased and their problems have
become more and more complex.
After independence, the Constitution of India was framed on federal
principles. Indian Constitution divided the government functions in three lists:
centre, state and concurrent. Local government bodies are covered in the State List.
Initially the extent of a municipality‘s power as well as the extent of government
control over a municipality/ municipal council depended on the statute enacted for
its creation. Presently, the statutes confer wider regulatory and supervisory powers
on the state government. This is due to two reasons: firstly, the Constitution does not
demarcate the power and the duties of the municipal authorities and secondly in the
absence of any clear-cut demarcation, it is obvious that state governments will tend
to control municipal authorities.
The Rural-Urban Relationship Committee set up by the Government of India
in 1963, pointed out that the local governments should not merely remain
instruments of political education and civic conscience but should play a role in the
promotion of social and economic development of local communities as well as be
an integral part of the Central Government. Entry 5 of the State list in the Seventh
Schedule of the Constitution of India gives legislative powers to the State with
regards to municipal laws, establishments, constitution, and powers of local
governments.
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Need Assessment of U LBs & Panchayati Raj Institutions
The functions of municipalities even during the British raj included public
work, maintenance of roads, provision of lighting, medical facilities and education,
etc. Today, sanitation is the biggest core function of urban local bodies. In Rajasthan,
health, education and drinking water are not in their domain.
As mentioned above, the financial position of local bodies has been very poor
in relation to the services and duties required of them ever since they came into
existence during the British Raj. In the opinion of the Simon Commission the main
causes of failure of local self government were lack of trained staff, inadequate
efforts of elected representatives in tapping resources through local taxes, and lack
of consistency between amount of grant-in-aid and financial responsibilities. All
these drawbacks still persist. With growing urbanisation, the concerns for
governance in the urban areas have assumed greater importance. Rajasthan ranks
twenty first in India in terms of urbanization. Rapid urbanisation has led to an
alarming deterioration in the quality of life of urban dwellers, who have to cope with
poor sanitation and disposal of solid waste, water shortage, pollution, poor transport
system, frequent epidemics, inadequate health facilities etc. Sewerage, sanitation,
waste water disposal and management of solid waste in the cities are dismal.
Table 1.5 Municipalities in Rajasthan
SN Level Numbers
1. Municipal Corporations 5
2. Municipal Councils 30
3. Municipal Board Grade II 19
4. Municipal Board Grade III 58
5. Municipal Board Grade IV 72
Total 184
Source:Annual Report, LSG Department, Government of Rajasthan, 2012
Presently, there are five Corporations, namely; Jaipur, Jodhpur, Kota, Ajmer
and Bikaner. The other categories are: - First class Municipal Councils (30) having a
population between one and five lakh. In his budget speech 2012 the Hon‘ble CM
announced all the Municipalities of District Headquarters were to be treated as
Municipal Councils thus raising the number of Municipal Council from 13 to 30.
Municipal Boards having a population below one lakh are further sub-divided into
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Need Assessment of U LBs & Panchayati Raj Institutions
(a) Second category (19) with population between 50000 to 99999 or Municipalities at
the District Headquarters (b) Third category (58) with population between 25000 and
49999 (c) Fourth category (72) with less than 25000 people.
Financial Condition of Urban Local Bodies
While the expenditure responsibilities of municipalities are increasing day by
day, their own efforts for revenue generation have more or less remained stagnant.
There is a complete mismatch between the expenditure responsibilities of urban
local bodies and their revenue augmentation efforts. Even after the 74th
Constitutional Amendment, the financial position of the municipal institutions in
Rajasthan has not improved commensurate with their functions and responsibilities.
Further, the position of the smaller municipalities is much worse, and at
times, they find it difficult to even meet their establishment costs. Their performance
has been dismal with regard to augmentation of resources to carry out these
functions. Even the statutory avenues of raising resources remained either
unexploited or under exploited, due to complete apathy of the public representatives
to resort to revenue augmentation measures. The ULBs with inadequate taxation
efforts, coupled with inefficient financial management, render the municipal services
far from a satisfactory level. One major hurdle faced by the ULBs is that they do not
have anything worth to tell the people on the quality of services provided by them to
ask for fresh user charges.
In spite of this indifferent attitude of the local bodies, the government is
continuously pouring money into the ULBs without suitable returns from them in
areas like sanitation, collection and disposal of waste, street lighting, sewerage
disposal, maintenance of municipal roads, etc. The poor performance of the ULBs is
in clear violation of the 74th Amendment which had required suitable action on all
19
Need Assessment of U LBs & Panchayati Raj Institutions
these functions. SFC may like to decide to uphold the Constitutional obligation and
link its grants to a certain level of satisfactory work done by the recipients.
Today, with constantly bickering elected members in local bodies, it has
become extremely difficult to achieve even the minimum level of satisfaction in the
urban areas like manual scavenging, municipal roads, sanitation, sewerage, street
lighting, parking and public conveniences. In-fighting among the elected
representatives has led to most of the funds allocated remaining unutilized as may
be seen from figures below:
Table 1.6
(` in lakh)
SN Type of Body Income (2011-12)
Expenditure (2011-12)
% Utilisation
1 Municipal Councils 14811.93 7773.37 52.48
2 Municipality Grade II 4907.38 4681.76 95.4
3 Municipality Grade III 2006.45 1273.65 63.5
4 Municipality Grade IV 1108.06 930.31 83.9 Source: Department ofUrban Local Bodies, GoR
Efforts to generate own income have also been pathetic. The following figures
show it:
Table 1.7 Position of own Income in total Budget of the ULBs in Rajasthan
(` in crore)
Year Budgeted Amount
Actual Amount including Tax Advances
Own income Percentage
2008-09 2908.11 1730.35 93.14 5.38
2009-10 3497.72 1751.22 112.00 6.4
2010-11 3334.73 1990.00 317.00 1.6
Source: Department ofUrban Local Bodies, GoR
The Earlier State Finance Commissions
The Zakaria Committee report identified the essential function to be
discharged by ULBs and the requirement of financial resources for discharging these
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Need Assessment of U LBs & Panchayati Raj Institutions
functions. Since these estimates related to the year 1956-57, the National Institute of
Urban Affairs, in their report on Urban Development Strategy for the State of
Gujarat Volume-I, revised the cost of these core functions to 1990-91 prices. This
report also provided the low and high norms of thePlanning Commission These are
as under:-
Table 1.8 Norms of the Earlier State Finance Commissions
S.No. Core Services Norms of Zakaria Committee as per
Class of ULBs
Rs. /Capita Planning Commission Norms
Low High
1 Sewerage
A 556 464 696
B 642
C 385
D 291
E 240
2 Storm Water Drains
A 249 114 232
B 223
C 189
D 171
E 146
3 Solid Waste Disposal NA 58 93
4 Roads
A 600 464 696
B 351
C 249
D 180
E 137
5 Street Lighting
A 214 139 139
B 189
C 171
D 163
E 124 Source: Urban Development strategy for the state of Gujarat Vol.I, NIUA, 1995
A. Cities with population of 5 to 20 lakh. B. Cities with the population of 1 to 5 lakh C. Towns with the population of 50000 to 1 lakh D. Towns with the population of 20000 to 50000 E. Towns with the population below 20,000
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Need Assessment of U LBs & Panchayati Raj Institutions
The First State Finance Commission
The First State Finance Commission adopted the norms of the Zakaria
Committee as indexed in the report of Urban Development Strategy for Gujarat
except for Solid Waste Management where higher norms of the Planning
Commission were adopted.
The First State Finance Commission worked out a total resource requirement
for all kinds of ULB‘s (treating Jaipur in B Class) at Rs.2874 (per capita) and after
deducting the income, reached the resource gap of Rs.1706.01 as follows:
Table 1.9 Resource Requirement as per the First SFC
Type of ULB Roads Street Lighting
Solid Waste
Disposal
Drains Total in `
Corporations 351 189 93 223 856
Councils 249 171 98 189 667
Class II 180 163 58 171 572
Class III 137 124 58 146 465
Class IV 104 87 58 125 374
Source: First State Finance Commission, Govt. of Rajasthan, Jaipur
The Commission recommended that these bodies should exploit their own
resource base and fixed targets for additional resource mobilization also and worked
out a per capita total deficit of Rs.995/-. Based on the gap assessment, a total deficit
of 349.18 crores was calculated for the first year.
The First State Finance Commission also recommended a 2.18% share in the
net tax proceeds of the state taxes to be devolved on the PRIs and ULBs. The amount
so devolved was to constitute a divisible pool from where distribution between PRIs
and ULBs was to be made as per their population ratio 3.4:1. In all, an amount of
Rs.305.60 crores to PRIs and Rs.89.890 crores to ULBs were recommended to be
devolved over the period from 1995-96 to 1999-2000.
Basic objective underlying funding pattern:
22
Need Assessment of U LBs & Panchayati Raj Institutions
(i) To incentivize acceleration of local efforts in mobilizing resources.
(ii) Judicious employment of funds to bring about balanced growth.
(iii) To recognize good work done by some ULBs to promote excellence.
The First State Finance Commission further recommended some incentive
grant by way of cash awards for Best Performance at State and Divisional levels for
ULBs. At the State Level one award for Corporations of Rs five lakh and three for
Councils (Rs.five lakh, three lakh and one lakh) were proposed. Similarly at the
Divisional Level for Class II Municipalities six awards (one in each division) of Rs.
Five lakh, 12 for Class III First and Second in each division for Rs. five lakh and
second for Rs. three lakh, and Class IV Awards (3 in each division), first of Rs.5 lakh,
second for Rs.3lakh and third for Rs. two lakh were proposed. This was not an
additional grant but was from the divisible pool for the ULBs. The cash award was
to be utilized for development works only. It was to be performance linked in
revenue earnings and services rendered to the people in terms of quality and
quantity.
The criteria for assessment of performance were –
(i) The ULB to achieve targets fixed for additional resource mobilization.
(ii) Establishment expenditure not to exceed 10% of total expenditure in
case of corporations, 15%, in case of councils and 20% in case of
Boards.
(iii) Norms in respect of sanitation, street lighting and urban roads were to
be fixed for earning the award.
(iv) The state was to issue strict instructions to ensure utilization of the
amount of cash awards only on development works.
The Second Finance Commission
The Second State Finance Commission fixed norms and worked out
requirement of funds of PRIs as under:
23
Need Assessment of U LBs & Panchayati Raj Institutions
Table 1.10 Second SFC Norms for Gram Panchayat
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Street Lighting No. of electrified villages 36677. 10 poles per village. 40 watt bulb per pole. 10 hours lighting per night.
18.78 93.90
Rs.3.30 Unit Cost 146 Units consumption per pole per year Rs.3.30 x 146 = Rs.482 per pole x 10x36677 =17.68 crore per year + life of a bulb 4 months, 3 bulbs per pole per year.Cost of bulb Rs.10/-. Total requirement Rs.1.10 crore.
2. Sanitation Two labour per day @ Rs. 60/- per day per panchayat for 300 days in a year + 120 for material = Rs.37200/- per g.p.
37200x9189 = 34.18
170.90
3. Maintenance of Roads 11500 km @ Rs24000 perkm 27.60 138
4. Local Maintenance and Office Administration charges
Rs.30,000/- per g.p. annually 9180x30,000=27.57
137.85
5. Maintenance of Public properties, Burial, Cremation grounds, Maintenance of
Rs.50,000/- per g.p. 9189x50,0= 45.95
329.75
24
Need Assessment of U LBs & Panchayati Raj Institutions
schoolsetc.
6. Infrastructure provision for construction of public utilities – toilets, bus sheds, water huts
Rs.2.20 lac one time 9189x2.20 2.216
7. Maintenance of accounts as per EFC
Rs.4000/- per g.p. per annum 9189 x 400 = 3.68
18.40
8. Data base development as per EFC
7.35
Total 998.31
Table 1.11 Second SFC Norms for Panchayat Samitis
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Maintenance of Assets - Buildings and other Assets
Rs.5000/- per panchayat samiti 1.19 5.95
2. Data base development as per EFC
0.16
3. Maintenance of Accounts as per CFC
Rs.4000/- per p.s. per annum 0.09 0.45
4. Establishment 65.00
Total 71.56
Table 1.12 Second SFC Norms for Zila Parishads
(` in crore)
SN Name of Activity Norms / Criteria Adopted Funds required for one year
For five years
1. Maintenance of Assets - Zila Parishad Buildings
Rs.50,000/- per z.p. per annum
0.16 0.80
2. Data base Development (EFC)
0.03
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Need Assessment of U LBs & Panchayati Raj Institutions
3. Training of Public Representatives
Rs.50,000/- per panchayat samiti per annum
1.19 5.93
4. Incentive to g.p. for Training
12.57
5. POL Rs.1 lac per z.p. per annum 0.32 1.60
Total Zila Parishad 29.25
Grand total of all PRIs 1099.12
Less Grant recommended by EFC 490.95
Net requirement 608.17
The norms determined for PRI institutional for various services were based
on estimates which were fairly old and need to be re-determined keeping the present
cost for labour etc., Maintenance cost for buildings has to be determined as per
norms of maintenance fixed by PWD.Norms for street lighting would vary as per
size of the village and population.
For Urban Local Bodies
The Second State Finance Commission also worked out the requirement of
funds for core civic services as per norms set up by Zakaria Committee and the
Planning Commission.The requirement of funds so worked out were reduced by the
own income of ULB‘s.The gap in resources was worked out accordingly. It was
Rs.406.08 crores for the year 1999-2000.
The Second Finance Commission did not recommend the entire gap to be
bridged through devolution from State net tax revenue. It observed that since the
requirement of funds for discharging core civic services is quite large, it ought to be
met from plan funds including centrally sponsored and externally funded projects.
The devolution recommended was 2.25% of net tax revenue.
I & II SFC’s
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Need Assessment of U LBs & Panchayati Raj Institutions
For distribution of divisible funds among districts PRIs, the first SFC
recommended the criteria of incidence of poverty of the district, total rural
population and population in non-DDP /non DPAP/non TAD blocks for
distribution of development grant and for other grants, the criteria was mainly
population.
The second SFC enlarged the scope and recommended the following
parameters and their weights for distribution of entire additional transfers of funds
to PRI institutional at all the three tiers.
Table 1.13 Parameters for Devolution by the Second SFC
S.No. Parameters Weight
1. Population 80%
2. Geographical area 10%
3. Poverty – number of BPL families 5%
4. Level of Literacy 5%
Source: First & Second State Finance Commission, Govt. of Rajasthan, Jaipur
The Third State Finance Commission
The Third State Finance Commission adopted the following parameters for
district-wise distribution of funds for onward devolution to PRIs:
Table 1.14 Parameters for Devolution by the Third SFC
S.No. Parameters Weight
1. Population 60%
2. Geographical Area 20%
3. Poverty represented by number of BPL families 5%
4. Level of literacy 5%
5. SC Population 5%
6. ST Population 5%
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Need Assessment of U LBs & Panchayati Raj Institutions
Source:Third State Finance Commission, Govt. of Rajasthan, Jaipur
Further distribution amongst the three tiers (gram panchayats., panchayat
samitis and zila parishads was recommended to be made as 85% to gram
panchayats, 12% to panchayat samities and 3% to zila parishads.
The Third State Finance Commission found the criteria of distribution based
on geographical area, BPL families and literacy rate not feasible in respect of urban
local bodies. It, therefore, recommended distribution of 80% amount from the share
in tax revenue among all the urban local bodies based on population. In order to
help financially poor local bodies namely Municipalities Class –II, III and IV to
perform their basic civil functions effectively, it recommended an additional amount
from out of the balance 20%, to be distributed to such II, III & IV class municipalities.
The entire devolved amount was to be passed on as untied funds.
The First State Finance Commission recommended 2.18% of the net proceeds
of State taxes to be devolved on the local bodies, whereas the Second State Finance
Commission recommended 2.25% share of Net Tax Returns of the State. It
recommended only a marginal increase of 0.7% over the recommendation of the First
Commission. The Third State Finance Commission recommended a total devolution
of 3.50% of the net tax revenue of the State which is 1.25% higher than the one
recommended by the Second State Finance Commission. It further recommended
that out of the total devolved amount of 3.50%, 0.50% should be earmarked for
incentivizing the performing local bodies who levy additional or new taxes or
augment their revenue thereby earning are equal amount of their additional revenue
by way of an incentive.
The comparative position of the amounts devolved by all the three State
Finance Commissions is given below:-
Table 1.5 Statement of the amounts devolved by the three SFCs
Name of Commission
Percentage of Devolution
Amount Devolved
Further Distribution PRIs Urban Bodies
First State Finance Commission
2.18% of Net Tax Revenue
Rs. 55.40 crores for 95 Total 1995-2000 Rs. 395.49 crore
Rs. 42.81 crore for 1995-96 Total 1995-2000 Rs. 305.60 crore
Rs. 12.59 crore for 1995 Total 1995-2000 Rs. 89.89 crore
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Need Assessment of U LBs & Panchayati Raj Institutions
Second State Finance Commission
2.25% of Net Tax Revenue
Rs. 738.60 crores excluding entertainment tax & 1% royalty on minerals
IV) there is no proper place for garbage disposal. Parshads suggested that garbage
dumping grounds should be covered and developed .35% people felt the need for
door to door garbage collection, while 17% people opined that there was a
requirement of the administration staff‘s high commitment levels.
Table 4.62 Helpline for Sanitation
Helpline for Sanitation YES (Number) (%)
Municipal Council 1 50
Grade –II 3 100
Grade-III 3 100
Grade-IV 4 80
Total 13 87
Complaint Cell or Helpline for sanitation has been set up in only 13 ULBs
whereas in the remaining two no complaint -cell has been set up. The helpline has
been performing very well in Udaipur and Chittorgarh. Parshads expressed that
Grade –II (3) 3 100
Grade-III (3) 1 33
Grade-IV (5) 3 60
Total (15) 11
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Need Assessment of U LBs & Panchayati Raj Institutions
there were complaint registers in which complaints were registered but they were
not timely redressed. 40% of the people opined that no action was taken in spite of
repetitive complaints.
For solid waste management committees have been set up in only seven
ULBs, while in the remaining eight ULBs no such committees are there. Most of the
committees that have been set up are only for the name sake and do not perform
any role. 75% Parshads expressed the need for separate budget and rights regarding
the committees. Most of people viewed that the committees were not working and
there was a lot of political interference which should be reduced.
Solid Waste Management
Solid waste management is one of the most important responsibility of ULBs.
In order to properly manage this core function, a lot of problems were reported by
the ULBs, like inappropriate budget, requirement of funds for equipments and
additional staff. Most of the EOs suggested that there was an urgent requirement for
equipments and additional staff. 35% felt that garbage disposal plants were a must
for effective solid waste management. Parshads viewed that the contractual basis for
cleaning should be monitored carefully or changed to permanent staff. People
viewed that door to door collection was a must and regular cleaning was required
with an honest commitment.
Sewerage system is a very good facility for drains management and the basic
requirement for sewerage is that there should be a minimum flow of 165 litres of
water per day. At various ULBs - Churu, Sawai Madhopur and Chittorgarh - it was
observed that this was being constructed by RUIDP. The EOs opined that as RUIDP
work was slow, it should be under the control of ULBs while the 53% EOs suggested
proper planning according to the norms.
Street Lighting
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Street lighting was available in all the ULBs. 80% ULBs managed it through
agencies while in the remaining it was managed by the municipalities themselves. In
grade IV new areas have been merged in the existing ULBs.Proposals for new lights
have been sent to RSEB and the sanction is awaited. Parshads viewed that proper
maintenance of street lights was required. Contractors need to change the damaged
lights on time. CFL/LED lights should be used in place of sodium lights so that the
tax on consumer is reduced. 70% of the people were found to be satisfied with the
lights & their maintenance but frequent power cuts were annoying. Regarding the
committees for lighting, we found than 73% of ULBs had committees for complaints
of lights & maintenance. In the remaining 27%, the committees have not been set up
due to local politics.
Keeping in mind the safety of the public, fire brigades are very essential but
these were found in only 7 ULBs. In these ULBs the condition of fire vehicles
&equipments was not satisfactory and even lacked trained fire staff. According to
the Eos, there is a requirement for new vehicles & regular trained staff. It was
suggested that a separate control unit (directorate) for their working &
management should be created. Majority of the parshads mentioned the requirement
of new well developed fire stations.
Drinking Water
In the under developed areas of the ULBs requirement for hand pumps, PSP,
tubewells and over head tankers was reported as available drinking water was not
sufficient. The water reservoirs needed to be regularly cleaned. Water is provided
by PHED at most of the ULBs while at some it was observed that people had
maintained their own resources like PSP, hand pumps, etc. At some of the ULBs
handpumps and PSP and tubewells are also used as a major source for providing
water to the public and even tankers are used to meet the additional requirement of
water. 47% parshads suggested that water reservoirs need to be timely cleaned and
the supply should be proper. People suggested that water should be supplied to the
newly merged areas as well and the quality of water should be improved. It was
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Need Assessment of U LBs & Panchayati Raj Institutions
praiseworthy that the public places had adequate drinking water facilities. It was
suggested that it could be made even more efficient by connecting them to drinking
water schemes. Committees for drinking water were found in only six ULBs, while
in the remaining nine committees were not there, as drinking water is supplied by
PHED and people were not concerned. The existing committees were also not
active and were just on paper. There was a lack of coordination between the
committees & PHED.
Drainage
Drains were found to be cleaned in 13 ULBs but it was during rains or any
festival. The condition is not satisfactory at some places. In the remaining two
ULBs drains have become unusable due to lack of cleaning staff and equipments.
Parshads suggested construction of new drainsand proper maintenance of the
existing ones. People felt the need for proper monitoring during the construction
of drains and new patterns/techniques should be followed.
Public Toilets
It was found that public toilets in the urban areas were insufficient in number
and there was a requirement for more public toilets at public areas like railway
stations, bus stands, hospitals, main markets etc. The existing public toilets were in a
miserable condition due to lack of maintenance & basic requirements like water
supply. Out of the existing ones, separate toilets for women were found to be only
67%. Parshads suggested requirement of new toilets and their regular maintenance.
According to Eos, public toilets were not cleaned regularly due to water scarcity.
Cremation and Burial Grounds
Cremation and burial grounds were found in all the ULBs but they seemed to
be lacking in the basic requirements. Boundaries are necessary to stop encroachment
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70% parshads recommended boundaries and tin shades. Water & lighting facility for
cremation and burial grounds was suggested by the people.
Public Parks
Out of the fourteen ULBs public parks were available in twelve ULBs. In the
remaining two ULBs, the land allotted has been encroached and the ULBs seemed
not taking any action. The parks available were not properly maintained & required
water for plants as well as staff which was not there. 20% of the parks are on contract
for maintenance but the contractor doesn‘t take the pain to even look after
occasionally. In Udaipur, parks were found in very good condition as they have
been adopted by various public committees.
It should be recommended for the ULBs of all sizes. We feel that the
additional staff and water facility for parks is an urgent requirement.People
suggested that new parks should be developed and the public needs to be aware
about the maintenance of public property. Parshads opined that watchmen should be
there for safety from stray animals and dustbins were also required. Committees for
Public Parks were found in 29% ULBs for the maintenance of the parks. However,
their commitment and work plan were found to be missing.
Community Halls
Community halls were found in all the ULBs. The halls were not in good
condition as their maintenance was done by the public only.Basic facilities like
electricity, water, sanitation were missing in most of the ULBs.Community halls
are used by the public for various occasions and due to lack of awareness they get
spoilt. 60% parshads suggested that sufficient budget is not available. 40% people
suggested that if the halls were maintained properly with basic facilities, they would
pay some nominal rent and this could even be a source of income. 20% people stated
the need for new community halls as they could be very useful for the people.
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Internal Roads
Internal roads have been constructed in all the ULBs but the lack of their
maintenance was disheartening.According to the Eos, drains should be constructed
along with the roads for proper upkeep. We observed that no proper planning is
done before the construction of new roads and the tenders are not issued
transparently. Almost all parshads informed that the contractors compromised on
qualityand supervision was also not very honest. 50% people found the drainage
system unsatisfactory due to improper maintenance of roads. They opined that if the
maintenance was done regularly, longevity of the roads could be maintained. It was
suggested that CC roads should have a built-in component of drains for better
results.
Public Health
It was seen that no steps were being taken to control epidemics by the ULBs.
Health department gets insecticide is not regular in spraying. Lack of coordination
between ULBs & Health Department is also a problem. There should be proper and
regular cleaning of water storage tanks in order to avoid water borne diseases. It was
suggested by the EOs that awareness camps should be organized from time to time
to make public understand the need for controlling epidemics. Parshads opined that
nothing was being done presently for public health.
Most of the funds given by the SFC & TFC used for salaries and allowances
and got hardly any share for street lighting, solid waste management, drinking
water etc.People suggested transparency while spending such grants. They spoke
about the various barriers in the implementation of development works like
inappropriate budget, lack of staff, encroachment problems and excessive political
interference.
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Summing Up
Due to massive urban growth during the past two decades, quality of urban
life has deteriorated creating an urgent need for vibrant and efficient ULBs that can
deliver adequate services and improve living conditions. Despite decrease rates of
population growth, India‘s urban population will expand rapidly in the years to
come.Urban services need to keep pace with it.
Local governments could be in the best position to improve service delivery
as they can match the level of requirement of public services with local needs and
available funds. Therefore, they are directly accountable to citizens. Unfortunately,
this is not happening.
Elected local governments are not particularly accountable to their
communities for their in action they blame limited financial powers and indifference
of the State. It is true that state still remains powerful, both in law and in the number
of agencies they control at local level. The State continues to grab all decision making
powers. The net result is that urban areas continue to be governed by a plethora of
State departments and there is weak coordination and very little accountability.
Coupled with this, a variety of implementation issues have led to fragmentation of
service delivery institutions at the state and local level.
Traditionally, the provision of urban infrastructure and services has been
among the primary functions of the government where the funding of complete
service delivery is sourced out of tax revenues. These basic services have generally
been considered social goods to be provided by the government for free or at
nominal prices to users. Essential services such as roads, street lighting, water
supply and sewerage are difficult to deliver without adequate cash flow from tax
revenues or other charges. It has been assumed that for the majority of urban
residents, direct user charges would be neither affordable nor desirable.Central
and state governments continue to see themselves as guardian of the ULBs,
making the ULBs feel as puppets on a string.
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Ensuring high quality public services for all is an end in itself, but also
facilitates exploitation of full economic potential of the area covered. One of the key
features of a developing state is to ensure that all the citizens have access to basic
services. The Constitution places the responsibility on government to ensure that
such services are progressively expanded to all, within the limits of available
resources. It is well known that the basic functions like water and sanitation,
refuse and waste removal, street lighting etc are not fully available in the rural areas.
Even if they are available, they are not upto the desired level of satisfaction. These
services are not only important in providing a basic level of healthy living to the
rural people but would also prevent people‘s desire from migrating to urban centers.
This study is a result of Fourth State Finnace Commission desire to introduce
a system of dedicated allocation of budget to the local bodies perfoming the core
functions. The Commission asked our Institute to work out physical and financial
norms for the purpose. The functions include – solid waste management, waste
water drainage, street lighting, repairing of roads/ pulias/rapats, driking water,
maintenance of cremation and burial grounds and community centres and health
and sanitation.
For calculating the physical and financial norms, the present status was
ascertained during the primary survey. The present expenditure, condition, need
and the estimated cost were identified and then an average was calculated. These
norms were then framed and discussed with the officials of the concerned
Norms for theCore Functions for the PRIs
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Need Assessment of U LBs & Panchayati Raj Institutions
departments as well as compared with the existing norms that were framed
elsewhere. The estimates were accordingly finalized. It was also ensured that the
norms calculated should be workable and implementable. Separate norms have been
developed for the Urban and rural local bodies.
The present chapter focuses on the physical and financial norms for the rural
local bodies to undertake the core functions in their area.
SOLID WASTE MANAGEMENT
Since the beginning, humankind has been generating waste, be it the bones
and other parts of animals they slaughter for their food or the wood they cut to make
their carts. With the progress of civilization, the waste generated assumed a more
complex nature. At the end of the 19th century the industrial revolution saw the rise
of the world of consumers. Not only did the air get more and more polluted but the
earth itself became more polluted with the generation of non-biodegradable solid
waste. The increase in population and urbanization was also largely responsible for
the increase in solid waste.
Types of Solid Waste
Solid waste can be classified into different types depending on their source:
Household waste is generally classified as municipal waste
Industrial waste as hazardous waste
Biomedical waste or hospital waste as infectious /contagious waste
In the context of rural local bodies, it is found that the solid waste largely
consists of the municipal waste. Which consists of household waste, construction
and demolition debris, sanitation residue, and waste from streets. It is on this
premise, that the calculation for the SWM for the rural bodies has been calculated.
The method that has been suggested for the RLBs has been sweeping of the roads
and public places, collection from common places and dumping at an identified
place provided that the waste is largely non-hazardous and biodegradable. The
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SWM services in the rural areas are not upto the mark which leaves a lot be desired.
The calculations made for SWM consist of three components:
Manpower
Equipment
Dumping Strategy
Manpower
Total Number of Sweepers
Norms for sweepers (A) Required one sweeper for an average of 175 households (900 Population)
(calculated on the basis of sample survey)
(B) Labour rate – Rs 147 per man day (on the basis of minimum wages rate for
MNREGS)
(C) Interval of Cleaning - Weekly
(D) The manpower would be paid only for the working days
(E) 15% cost be added to the total cost as tender and tax cost.
(F) The cost would include the services for sweeping, collection of the waste and
cleaning of the wasre water drains.
Calculation for sweepers (Calculated for 56 sample GPs)
Total Manpower required per GP
Average Population per GP (X) – 7797 Aveage Population per sweeper (Y) - 780 Number of sweepers per GP (Z) - (X/Y)-10
Labour Rate (L) – Rs 147 per day
Manpower Cost - (Z*L)*52 10 (Sweepers) * 147Rs * 52 Mandays = Rs 76,440 Total Manpower Cost (Premium of 10% of the manpower cost) = Rs 84,084
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Total Equipment Cost
(A) Tri Cycles/Push Carts for a GP – Six (One per revenue village and one
for HQ)
(B) Bins (1 m3) – 20 per GP on the basis of number of wards with one for
each ward
(C) Tools – A set of Six (Broom, Spade, Parat, kudali,collector) per GP - One
per GP and one for HQ
Table 5.1 Budget for Equipment
Unit Cost1 (in `)
Unit Total Cost per GP (in `)
Push Cart With Bins 3000 6 18000
Bins 3700 20 74000
Other Tools 600 6 3600 Total 95600
1 Cost calculated on the basis of the tender rates for the ULBs
Solid Waste Transfer by Trolleys
Solid Waste Production (per household) = 400 gm.
Transfer interval = Weekly
(In each revenue villages on rotation basis)
Trolley Costing per trolley (with Labour Charges) = Rs.400
Budget Estimation
Total Budget for trolley per GP = 12 times * 12 months * 400 Rs = 57,600
Labour Cost = 84,084
Equipment Cost = 95,600
Trolley Cost = 57,600
Total Cost (in `) = 2,37,284
Total Cost per HH (in `) =
131.90
Per Capita Cost (in `) =
30.43
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Need Assessment of U LBs & Panchayati Raj Institutions
WASTE WATER DRAINAGE
The waste water drainage deals with the ―grey water‖ - wastewater resulting
from the use of water for domestic purposes, but does not include human excreta.
For drainage it is proposed to construct pucca naalis which would be useful in
draining out the wastewater (grey water) and rain water in absence of which the
waste water collects at a low-lying place and becomes a source of disease.
The Naalis being proposed are 6 inch deep and 9 inch in width. These can
either be formed in U Shape or V shape. The cost component is similar for both of
them.
I. Construction of Naali
Aveage Requirement of Naalisper Gram Panchayat = 6017 m
Proposed Naalis for One year = 1251 Mtrs.
(Calculated on the basis of the primary survey as reflected in the discussions and the annual plan)
On an average costing of Nali per m as per (BSR) = Rs.391.73 per m (Details Annexure I)
Total required budget of
naalis for next year (2012-13)(A) = Avearge Rate* Total Size = Rs 490054.23
Total Cost per HH = Rs 272.40
Per Capita Cost for 2012-13 = Rs 62.85
4.5‖ 4.5‖
18”
9‖
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Maintenance of Naalis
Table 5.2
Maintenance of Naalis (per m) (As per damages of naalis observed and the proposals received from the gram panchayat during interviews with the Sarpanch & gram Secretary)
105/ mtr.
10% Overheads and tender Costing
10.50
Total costing
115.50
Length of Naalis for Maintenance for Next year (2012-13) (As per damages of naalis observed and the proposals received from the gram panchayat during the interviews with the Sarpanch &gram Secretary)
491 Mtr.
Total Estimated costing of maintenance (B) (Rs.115.50/mtr) 491* 115.50
=Rs 56710.50
Total Cost per HH (in Rs) 31.52
Total Per Capita Cost (in Rs) / Operational Cost 07.27
Total Costing for Construction and Maintenance A+B
Total required cost for construction of naalis for next year (2012-13)
Rs 490054.23
Per Capita Capital cost 62.85
Total Estimated costing of Maintenance Rs 56710.50
Total costing with Maintenance Rs 546764.73
Total Cost per HH (in Rs) 303.92
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Total Per Capita Cost (in Rs) (Capital +Operational)
70.12
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Need Assessment of U LBs & Panchayati Raj Institutions
Annexure
Detailed Estimate for Waste Water Drainage for Gram Panchayats
1. EW in Hard Soil mixed with Kankar for leveling Streets/ Roads and Disposal Up to 1.00 140.4x0.38x0.38 1x50x0.3x0.3 Labour @ Rs.
91.85 + 52.06 @Rs.143.91 Cu.m
20.274 Cu.m 4.5 Cu.m
91.85 x 24.774 Cu.m
Labour Rs. 2275.49
Rs.3565.23
2. Random Rubble stone masonry for foundation and plinth in cement sand mortar 1:8 (1 cement : 8 sand) for above 30 cm. thick walls. 1x50x0.3x0.3 1x50x0.3x0.3 Total Labour
4.50 Cu.m. 4.50 Cu.m. 9.00 Cu.m
@ Rs.402.00 Cu.m.
@ Rs. 1471.55 Cu.m.
Labour 3618.00 Rs.13243.95
3. P/L Cement Concrete 1:6:12 with 40 mm Stone aggregate including curing compaction etc. comp. 1x140.4x0.30x0.05 Labour
2.106 Cu.m
@ Rs.317.55 Cu.m @Rs.1695.54 Cu.m.
Labour 668.76 Rs.3570.81
4. S/F Nimbahera/Chittor rough Stone slabs over 20mm thick CM 1:6 and filling joints with CM 1:3 1x2x140.4x0.30 Labour
84.24 Sq. m. @Rs.63.00 Sq. m. @Rs.334.03 Sq.m
Labour 5307.12 Rs.28138.69
Total Rs.48518.68 Add. 3% Cont. Rs.1455.56
Grand Total Rs.49974.24
@10% Tender Cost Rs.54971.66
Say Rs.55000.00
Labour Rs.8251.00
Material Rs.41749.0
Per mtr.costing Rs.391.73
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STREET LIGHTING
Lack of electricity infrastructure is one of the main bottlenecks in the
development of rural India. At a very basic level, people do not have a cheap and
safe source of lighting. For fear of snakes, scorpions and antisocial elements, few
venture outside in the evenings because there is no street lighting.
The responsibility of lighting the interior roads, chaurahas, public places and
panchayat building rests with the Gram Panchayat. This includes the maintenance of
the road lights installed by the RVVNL.
The stress during the calculation of street lighting is: a) Gradually public lighting, predominantly solar lighting, would be promoted.
b) The tubelights and bulbs that are still in use need to be replaced with CFL
technology
Norms for Lighting
(A) Ten lighting sources for a village would be provided in a phased manner
(B) Phasing out the bulbs and tubelights
(C) For the first year one revenue village from the gram panchayat may be
considered for solar lighting.
The Total Cost would include
Electricity Consumtion Cost
Installation of New Sources of Lighting
Electricity Consumtion Cost
Energy Expenditure per CFL Bulb 18 Watt
Duration of Lighting 8 HR/day Total Electricity Consumtion per year (X) (18*8*365)/1000
Cost/Unit (Y) Rs 6
Electricity Consumtion Cost (in Rs) (A) X*Y
Rs. 315
Cost per GP 315*50
Rs. 15750
Number of Lighting Points Already available per GP 38
Electricity Consumtion Cost (in Rs) (B) 11970
Total Cost for Electricity Consumtion per GP Rs 27720
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New Sources
Bulb (CFL) 18 W Set 50
Cost per new Source Rs. 1100
Total Cost of new installations Rs. 55,000
Automatic Timer 5
Cost of Automatic Timer per piece Rs. 250
Total Cost of Automatic Timer Rs. 1250
Total Material Cost of New Instllations Rs. 56,250
Labour Cost of New Installations @ 20% Rs. 11,250
Total Cost of New Instllations Rs. 67, 500
Total cost for Street light Year (2012-13)
Expenditure for Electricity (A) Rs. 27,720
Expenditure for New Points (B) Rs. 67,500
Total of A & B Rs. 95,220
Expenditure for Maintenance @ 20% Rs. 19,044
Total Expenditure for Street light Rs. 1,14,264
Cost per Household Rs. 63.52
Cost per Capita Rs. 14.65
Per Capita Capital Cost Rs.8.65
Per Capita Operational Cost Rs. 5.99 Solar Steet Lighting
Lighting common area and streets through solar photovoltaic power system
It is proposed to install photovoltaic power system to light common area and
streets. For the first year one ward/revenue village may be chosen out of the Gram
Panchayat. This may be chosen on the basis of the development indicator like village
without electric connectivity, high SC/ST population, lowest enrolment rate etc.
Solar photovoltaic can be utilized for illuminating community places and
streets in the villages or the areas, where conventional electricity is not available.
Although stand alone SPV street lighting systems with CFL and LED fixtures are
also available for this requirement but looking to the safety, security and
maintenance problem of these systems, Ministry of New and Renewable Energy
(MNRE), GoI is also emphasizing to arrange such installation with SPV power plants
so that all main components such as SPV Modules, Battery bank and control
electronics should be placed at one place in safe custody and energy should be used
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to illuminate the common area. Different models of such power plants can be
designed as suggested by the sample model under:
1 No. of Street Lights : 10
2 Each fixture of street light of : 18 W CFL
3 Operation hours /Day : 12 hours
4 Battery storage : for 2 days autonomy
5 Wire length estimated : 600 Meters (in total)
Power plant configuration / bill of material proposed for above model are an under:
Table 5.3
SN Material details Quantity
1 SPV Modules 800W
2 Battery bank 24 V 400Amp
3 Inverter 1 no. of 1KW
4 Hybrid controller 24V/40 Amp
5 G.I Poles (6.5m. height) Net height from ground - 5 meters
10 Nos.
6 Fixture of street light of 18 W CFL each 10 nos.
7 Wire length Estimated 600 Meters
8 BOS (Like Bend pipe etc.) As per requirement
Estimated cost of one Power Plant 240000
Subsidy provided by the MNRE, GoI 64000
Total Cost 176000
Per Household Estimate Budget 97.83
Per Capita Estimate Capital Cost 22.57
CREMATION AND BURIAL GROUNDS
Given our cultural, religious and other social sensitivity cremation and burial
grounds attain social importance.
But, if we see the conditions of cremation or burial grounds in most of the
Indian rural villages, it is very disheartening. People are scared to go to these places
even in day time let alone at night. Further, many burial grounds are prone to land
grabbing by the adjacent land owners since they are unfenced. These burial grounds
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are unhygienic with no cleanliness, no electricity, no water and covered fully with
wild plants. If not secured properly, the burial place will be used for burying the
other dead body in the same place due to non-availability of land.
Keeping this in mind it is peoposed to provide Tin Shades and Boundary Wall
through the provisions of the SFC.
Table 5.4 Cost for Tin Shades and Boundary Wall at the Cremation and Burial Ground
Tin Shades
Cost for Tin shade Rs. 2,50,000
Number of Cremation Grounds per GP 5
Total Cost per GP Rs.12,50,000
Available Financial Support under the Gramin Janbhagidhaari Yojana (90%)
Rs. 11,25,000
Remaining Amount to be borne by SFC (A) Rs. 1,25,000
Per House hold Estimate Budget Rs. 69.48
Per Capita Estimated Budget Rs. 16.03 Boundary Wall
Number of Cremation/Burial Grounds per GP 6
Average Size of the Cremation/Burial Grounds (Running Feet) 3300
Cost of Construction per running feet (in Rs) 712
Average costing of per running feet of boundary wall Rs. 23,49,600
Available Financial Support under the Gramin Janbhagidhaari Yojana (90%)
Rs. 21,14,640
Remaining Amount to be borne by SFC (B) Rs. 2,34,960
Per House hold Estimated Budget Rs. 130.60
Per Capita Estimated Budget Rs. 30.13
Total Cost for Tin Shades and Boundary Wall (A+B) Rs. 3,59,960
Per House Hold Estimated Budget Rs. 200.08
Per Capita Estimated Budget (Capital Cost ) Rs. 46.16
COMMUNITY HALLS
Each village has a community hall which may be used for community
services, meetings or any community function. These places were found to be in a
miserable condition due to lack of maintenance and wherewithal. This is also
coupled with the lack of ownership resulting in the community halls becoming
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centres of antisocial activities. Prsently there are 188 community halls in the sample
panchyats out of which two (one in Kota and one in Karauli) are being run by the
community.
Cost Estimates Number of Community Centres per GP 3.35
The Cost of Constrction per Community Centres (in Rs)(See Annexure)
3,00,000
Average Cost of Maintenance @ 15% (In Rs) 45,000
Cost per GP (In Rs) 1,50,750
Cost per Capita (In Rs) (Operational Cost) 19.33
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Need Assessment of U LBs & Panchayati Raj Institutions
The Total Cost for a Gram Panchayat may be summarized as below:
Table 5.8 – Cost of Core Functions for PRIs
(in `)
SN Core Area Total Cost
Per Capita
Cost
Per Capita
Capital Cost
Per Capita Operational
Cost
1 Solid Waste Management 237284 30.43 - 30.43
2 Waste Water Management 546765 70.12 62.85 7.27
3 Street Lighting 114264 14.65 8.65 5.99
4 Solar Light 176000 22.57 22.57 -
5 Cremation and Burial
Grounds
359960 46.16 46.16 -
6 Community Halls 150750 19.33 - 19.33
7 Drinking Water 510000 65.40 - 65.40
8 Public Health 22960 2.94 - 2.94
9 Public Toilets 136200 17.46 13.46 4.00
Total Cost for Core Functions per GP 22,54,183 289.10 153.69 135.36
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The Twelfth Schedule of Constitution (Article 243 w) provides an illustrative
list of eighteen functions that may be entrusted to the municipalities. Besides the
traditional core functions of municipalities, it also includes development functions
like planning for economic development and social justice, urban poverty alleviation
programmes and promotion of cultural, educational and aesthetic aspects.
However, conformity legislation enacted by the state governments indicates
wide variations in this regard. Rajasthan has included all the functions as enlisted in
the Twelfth Schedule in their amended state municipal laws. Municipal
governments are assisted by parastatal agencies (RUIDP/RUFIDCO) operating
either at the state level or at the city level to carry out various functions including
sanitation (sewerage/drainage) as well as the line departments that continue to cater
to some of the basic services like drinking water. Besides these state level agencies,
City Improvement Trusts and Urban Development Authorities, like Jaipur
Development Authority (JDA/UITs), have been set up in a number of cities. These
agencies undertake land acquisition and development works, and take up
remunerative projects such as markets and commercial complexes, etc. This leaves
the municipal bodies with only with the functions of garbage collection/disposal,
street lighting, maintenance of inner city roads, registration of births and deaths, etc.
In terms of the theory of fiscal federalism, functions whose benefits largely
confine to municipal jurisdictions and which are subject to heterogeneous
preferences are suitable for the Municipalities. These may be termed the ―essentially
municipal‖ functions. Services with large spillover effects, distributional and
Norms for the Core Functions for the Urban Local Bodies
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stabilization attributes and services providing uniform benefits need to be entrusted
to the higher levels of government. Similarly, functions that involve substantial
economics of scale or are of national interest may not be assigned to small local
bodies. For valid reasons, certain functions of higher authorities are appropriate for
entrustment to the Municipalities – as if under principal-agent contracts. These may
be called ―agency‖ functions that need to be financed by intergovernmental
revenues. Thus instead of continuing the traditional distinction between obligatory
and `discretionary‘ functions the municipal responsibilities may be grouped into
`essential municipal‘ `joint or shared‘ and `agency‘ functions (Mukesh P. Mathur,
www.developmentfunds.org). The assignment of functions to municipal
corporations, municipalities and Nagar Panchayats as suggested in Mohanty (1995)
is given in table below:
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Table 6.1 Suggested Assignment of Functions
Essentially Municipal Functions Municipal Corporation
Municipal Council
Nagar Panchayat
Urban planning including town planning (subject to broad `outline‘ or `structural‘ plan prepared by the District and Metropolitan Planning Committee/State Government)
Yes Yes Yes
Regulation of land-use and construction of buildings (subject to broad `outline‖ or structural‘ plan prepared by the District and Metropolitan Planning Committees/State Government)
Yes Yes Yes
Planning for economic and social development (Preparation and implementation of socio-economic development plan)
Yes Yes Yes
Roads and bridges Yes Yes Yes
Water supply domestic, Industrial and commercial purposes Yes Yes Yes
Public health, sanitation, conservancy and solid waste management
Yes Yes Yes
Fire services Yes Yes No
Urban forestry Yes Yes Yes
Preventive Health Care Yes Yes Yes
Provision of urban amenities and facilities such as parks, gardens, playgrounds
Yes Yes Yes
Burials and burial grounds, cremations, cremation ghats/grounds and electric crematoria
Yes Yes Yes
Cattle pounds, prevention of cruelty to animals Yes Yes Yes
Vital statistics including registration of births and deaths Yes Yes Yes
Street lighting Yes Yes Yes
Parking lots, bus stops and public conveniences Yes Yes Yes
Regulation of slaughter houses and tanneries Yes Yes Yes
Slum improvement and up gradation Yes Yes Yes
Agency Functions Protection of the environment and promotion of ecological aspects
Yes Yes Yes
Safeguarding the interests of weaker sections of society, including the handicapped and the mentally retarded
Yes Yes Yes
Urban poverty alleviation Yes Yes Yes
Promotion of cultural, education and aesthetic aspects Yes Yes Yes
Primary Education Yes Yes No
Primary Health Care Yes Yes No
Source: Mohanty (1995), Reforming Municipal Finances : Some suggestions in the Context of India’s
Decentralization Initiative, Urban India, A Journal of National Institute of Urban Affairs, New Delhi,
Vol.XV (No.1), January-June, 1995.
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Functional domain of municipalities has direct impact on the volume and
structure of municipal finance. The matching of municipal responsibilities with
finances should be based on the broad principles of assignment of revenues – taxes,
user charges, shared revenues, grants-in-aid, borrowing, etc. Norms and standards
should be taken into consideration while deciding the financial structure of urban
local governments. The present chapter attempts to identify the cost of the core
functions that are being taken care by the municipal bodies in Rajasthan.
For ascertaining the per capita cost three methods have been used here. The
first cost has been calculated on the basis of the norms established according to
various national standards for municipal services which largely depict the ideal
picture. Secondly, on the basis of the statement received for actual expenditure from
the various ULBs, the present per capita expenditure has been calculated. This
would reveal the gap between the normative and actual expenditure. In some of the
core functions, on the basis of the needs ascertained during the discussions with the
municipal bodies and their annual plan, a third cost has been established.
SOLID WASTE MANAGEMENT
Solid waste management is one among the basic essential services provided
by municipal authorities in the country to keep urban centers clean. However, it is
among the most poorly rendered services in the basket-the systems applied are
unscientific, outdated and inefficient; population coverage is low; and the poor are
marginalized. Waste is littered all over leading to insanitary living conditions.
Municipal laws governing the urban local bodies do not have adequate provisions to
de3al effectively with the ever-growing problem of solid waste management. With
rapid urbanization, the situation is becoming critical.
The waste generation rates in India are lower than the low-income countries
in other parts of the world and much lower compared to developed countries.
However, lifestyle changes, especially in the larger per capita waste generation are
increasing by about 1.3 per cent per year. With the urban population growing at 2.7
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per cent to 3.5 per cent per annum, the yearly increase in the overall quantity of solid
waste in the cities will be more than 5 per cent
Though a large portion of the municipal budget is allotted for solid waste
management, most of it is spent on the wages of sanitation workers whose
productivity is very low. There are no clear plans to enhance their efficiency or
improve working conditions through the provision of modern equipment and
protective gear. Unionization of the workers, politicization of labour unions and
the consequent indiscipline among the workforce are all results of bad working
conditions and incept handling of labour issues.
Community participation has a direct bearing on efficient SWM. Yet, the
municipal authorities have failed to mobilize the community and educate citizens
on the rudiments of handling waste and proper practices of storing it is their own
bins at the household-, shop- and establishment-level. In the absence of a basic
facility of collection of waste from source, citizens are prone to dumping waste on
the streets, open spaces, drains, and water bodies in the vicinity creating insanitary
conditions. Citizens assume that waste thrown on the streets would be picked up by
the municipality through street sweeping.
The Rajasthan government has issued a policy document for solid waste
management after a cabinet approval in the year 2001. This policy document outlines
the manner in which private entrepreneurs would be selected for setting up waste to
energy or waste to compost plants in the state, the type of facility that would be
extended to them and the responsibilities that would be placed with them. The state
government has set up a state level empowered committee under the chairmanship
of Secretary, Local Self Government to recommend the proposals received for useful
conversion of solid waste.
Out of 183 urban local bodies, 152 local bodies have either been allotted land
or land has been identified for them for construction of landfill site. All district
collectors have been requested to make land available for landfill sites to the ULBs.
Development of landfill sites is in progress under most ULBs providing approach
road, fencing, etc. The landfill sites in six divisional headquarter cities are being
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developed centrally by Rajasthan Urban Infrastructure Development Project
(RUIDP).
Standard Norms
Types of Solid Waste
Solid waste can be classified into different types depending on their
source:
Household waste is generally classified as municipal waste
Industrial waste as hazardous waste
Biomedical waste or hospital waste as infectious waste
The calculations here have been made for Household Waste. In the state, Self-
Financing Scheme is there for the Biomedical Waste. For Industrial waste
management RIICO is responsible. For the municipal waste, the cost calculation is
divided into three heads viz Manpower, Instruments and Dumping and Recycling
Strategy. The recycling is done on BOT basis and has not been accounted here.
Component – Manpower - Norms
1. Norms for Sweepers Required one sweeper for average 250 Population (calculated on the basis of guideline of Government of India) Additional sweepers required weekly holidays (1/7 sweeper)
2. Labour Rate Rs 147 per man day as per the minimum rates prescribed rate of the Labour and Welfare Department
3. Interval of Cleaning Twice in a day 4. Instruments One Wheel Barrow for three sweepers
One Auto tipper for 25 WB (to be provided by the Contractor) - Funds to be provided for depreciation cost and diesel cost
5. Functions The cost would include the services for sweeping, door to door collection of municipal waste and cleaning of the waste water drains.
6. Supervision Cost 15% cost is added to total cost as the supervision cost in Corporation Council and Municipal Board Grade-2 while 10% in Grade-3 and Grade-4
Table 6.2 Standard Cost Calculation for Sweepers
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Municipal
Corporation Municipal
Council Municipal Board II
Municipal Board III
Municipal Board IV
Manpower Cost
Average Population 1804175 300500 86496 48160 18746
Number of Sweepers 7217 1202 346 193 75
Additional Number
1031 172 49 28 11
Total Manpower Required per ULBs (A)
8248 1374 395 220 86
Labour Rate (in Rs) (B) 147 147 147 147 147
Total Working Days (C) 365 365 365 365 365
Manpower Cost A*B*C A*B*C A*B*C A*B*C A*B*C
(in Lakh) 4425.46 737.22 211.94 118.04 46.14
Total Equipment Cost
Wheel Barrows
Number 2749 458 132 73 29
Rate Cost 3700 3700 3700 3700 3700
Total WB Cost (in lakh) 101.71 16.95 4.88 2.70 1.07
Tippers @ 3.9 lakh
Number 110 18 5 3 1
Depreciation @ 15% 64.35 10.53 2.93 1.76 0.59
Diesel for Tippers @ 1 Lt/day
20.07 3.29 0.91 0.54 0.18
Total Cost 186.13 30.77 8.72 5.00 1.84
Transportation Cost
Total Per Capita Production (in gms)
450 375 325 275 250
Production in Tons 296336 41131 10261 4834 1711
No. of trolley 197557 27421 6841 3223 1141
Cost of Trolley @500Rs. Per trolley
987.79 137.10 34.20 16.11 5.70
Total 5599.38 905.09 254.86 139.15 53.68
Supervision charge@15% or in grade-3&g-4 is10%
839.91 135.76 38.23 13.91 5.37
Grand Total 6439.29 1040.85 293.09 153.06 59.05
Per Capita 356.91 346.37 338.85 317.81 315
Table 6.3 Calculation Based on actual expenditure (2011-12)
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Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
Establishment Cost (Includes Salaries of the Health officer, Chief Sanitary inspector, Sanitary inspector (Grade I), Sanitary inspector (Grade II), Jamadar, Sweeper)
(Rs in Lakh)
17965.7
2149.7
733.2
229.8
131.4
Operational Expenses (Including the Equipment, Contract and other costs)
(Rs in Lakh)
2463.5 722.7
123.7
105.6 174.9
Total (Rs in Lakh) 20429.2 2872.4
859.9
335.4
306.3
Sample Population (Census 2011)
3608350 601000 259489 144481 93731
Per Capita Expenditure (2011-12)(in Rs)
566.20 478.0
330.2
232 326.78
Per Capita Establishment Expenditure
497.90 357.8
282.5 158.9 140.18
Per Capita Operational Expense
68.30 120.2
47.7 73.1 186.6
Standard Per Capita (in Rs)
356.91 346.37 338.85 317.81 315
Prevalent Per Capita 2011-12 (in Rs)
566.2 478.0
330.2
232 326.8
STREET LIGHTING
Street lighting is an undeniable aspect of modern civic life. Providing street
lighting is one the most important – and expensive – responsibilities of a city:
Lighting can account for 10–38% of the total energy bill in typical cities worldwide
(NYCGP 2009). Street lighting is a particularly critical concern for public authorities
in developing countries because of its strategic importance for economic and social
stability. Inefficient lighting wastes significant financial resources each year, and
poor lighting creates unsafe conditions. Energy efficient technologies and design can
cut street lighting costs dramatically (often by 25-60%); these savings can eliminate
or reduce the need for new generating plants and provide the capital for alternative
energy solutions for populations in remote areas. These cost savings can also enable
municipalities to expand street lighting to additional areas, increasing access to
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lighting in low-income and other underserved areas. In addition, improvements in
lighting quality and expansion in services can improve safety conditions for both
vehicle traffic and pedestrians.
Street Lighting facility was found in almost all the tiers if the urban local
bodies and the calculations have been made keeping in mind the status of the
present availability. The basic scot calculations would include the cost for
Installation of Additional Points for Lighting, Maintenance, Extension and
Supervision.
Norms for Lighting
Twenty people for One Point (Standard Norm)
The Points would be 69.8% for CFL/LED lighting, 30% for a set of four
light points (4 Set)
The Electricity Consumption is to be taken care by the Cess levied by the
State Government for Street Lighting
It has been assumed that 25% points would require maintenance every
year.
There should be an extension of 10% points due to the growth and
extension of the urban areas. (5% for extension in urban area and 5% for
unserved area)
It is proposed to provide a Four Light Set Point instead of the conventional
Sodium Light
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Need Assessment of U LBs & Panchayati Raj Institutions
Table 6.4 Standard Cost Calculations
Municipal Corporation
Municipal Council
Municipal Board II
Municipal Board III
Municipal Board IV
CFL/LED Lights (in Number)
According to the Norms 62966 10487 3019 1681 654
Total Cost 69262600 11535700 3320900 1849100 719400
4 Set Lights
According to the Norms 27063 4508 1297 722 281
Total Cost 108252000 18032000 5188000 2888000 1124000
High Mask
According to the Norms 180 30 9 5 2
Total Cost 90000000 15000000 4500000 2500000 1000000
Total Instrument Cost (A) 267514600 44567700 13008900 7237100 2843400
Per capita capital cost 148.27 148.31 150.39 150.27 151.68
Labour and Installation Cost (15 % of Instrument Cost) for Installation, Regulation and
Maintenance includes the cost of labour, installation vehicle @ 15% of the Equipment Cost
Labour and Maintenance
Cost (B)
40127190 6685155 1951335 1085565 426510
Sum (C) = (A)+(B) 307641790 51252855 14960235 8322665 3269910
Extension Cost @ 10%
Sum (C) = (D)
30764179 5125285.5 1496023.5 832266.5 326991
Total Sum E = (C) + (D) 338405969 56378140.5 16456258.5 9154931.5 3596901
The following are our suggestions for major staffing in different types of
ULBs.
Depending on the size of the urban local body and the required capability of
the CEO, he could be from the super time scale of the IAS to lower scales in the IAS
or RAS.
1. For ULBs for population above 10 lakhs
Commissioner CEO 1
Addl. Commissioner Commissioner ( Estab.) 1
Commissioner GAD RAS (selection scale) 1
Asst. Commissioner Rajasthan Municipal Services 1
System Manager 1
Computer Asst. /Data Entry Operators
5
Commissioner (Revenue) R. Acct. Service 1
Revenue Officer One for each zone.
Revenue Inspector One for 4 assessors
Assessors One for 3000 assesses
Accounts
Chief Accounts Officer R. Acct. Service 1
Accounts Officer 2
Jr. Accounts Officer 2
Sr. Accountants 6
Jr. Accountants 8
Public Health
CMHO Health Public health specialist 1
Asst. Public Health Officers 1 for each zone
Solid Waste Management
Birth and death Officer One for each zone
Engineering Norms should be strictly according to PWD guidelines
Zonal Officers One Officer for every zone having a population of two lakhs. One-third should from the RAS.
CEO RAS 1
Commissioner (Est.) RAS 1
Asst. Commissioner Municipal Services (Grade-1)
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Need Assessment of U LBs & Panchayati Raj Institutions
Computer System Manager 1
Data Entry Operators 2
Revenue
Commissioner (Revenue) 1
Revenue Officer 1 for each zone
Revenue Inspectors 1 for 4 assessors
Assessors 1 for 3000 Assessors
Accounts
Sr. Accounts Officer 1
Accounts Officer 1
Junior Accounts Officer 1
Sr. Accountant 4
Jr. Accountant 6
Public Health
CMHO Health 1
Asst. Public Health Officer 1 for each Zone
Birth & Death Registrar 1 for each zone
Solid Waste Management Norms suggested earlier
Engineering
Norms strictly in accordance with PWD guidelines.
Public Relations Officer 1
ZONAL OFFICERS There will be one zonal Officer For a population of two lakhs. He will be dealing with all municipal matters in his jurisdiction except taxes.
1
ULBs with Population between 3-5 lakhs
Estb.
CEO RAS 1
Comm. (Estb.) 1
Asstt. Comm.(Adm.) 1
Systems Manager 2
Data Entry Operators 2
Revenue
Dy. Comm. 1
Revenue Officer 1
Revenue Inspectors 1 for 4 assessors
Assessors 1 for 3000 assessees
Accounts
Accounts Officer 1
Junior Accounts Officer 1
Sr. Accountant 3
Jr. Accountant 5
Public Relation Officer 1
Zonal Officers
There will be a Zonal Officer for every 2 lakh population who will be in-charge of all the activities of the ULB in his jurisdiction other than revenue collection.
Public Health and Solid Waste
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Need Assessment of U LBs & Panchayati Raj Institutions
Management
Public Health Officer 1
Solid Waste Manager 1
Cleaning teams as per norms suggested earlier
Birth & Death Registrar 1 for each zone
Engineering Should be strictly as per the norms of the PWD
ULBs with a Population Between 1 lakh and 3 lakhs
Estb.
E.O. 1
Asstt. E.O. 1
Systems Manager 1
Data Entry Operator 1
Revenue
Dy. Commissioner Raj. Acct. Service 1
Revenue Officer 1
Revenue Inspectors 1 for 4 assessors
Assessor 1 for 3000 assesses
Accounts
Jr. Accounts Officer 1
Sr. Accountant 3
Jr. Accountant 3
Public Health
Public Health Officer 1
Birth and Death Registrar 1
Solid Waste Management Cleaning team
Solid Waste Manager 1
Cleaning team will be on the pattern suggested earlier. The staff for sanitation shall help the Public Health Officer in the discharge of his duties.
Engineering Strictly as per the norms of PWD
ULBs with Population Between 40000 and 1 lakh
Estb.
EO 1
Systems Manager 1
Data Entry Operator 1
Revenue
Dy. Commissioner 1
Revenue Officer 1
Revenue Inspector 1 for three assessors
Assessors 1 for 3000 assessees
Accounts
Sr. Accountant 1
Jr. Accountant 2
Engineering Strictly as per PWD norms
ULBs with Population Below 40000
Estb.
E.O. 1
Systems Manager 1
System Data Entry 1
Revenue
Revenue Inspector 1 for 4 assessors
Assessors 1 for 3000 assessees
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Need Assessment of U LBs & Panchayati Raj Institutions
Accounts
Jr. Accountant 1
Public Health and Sanitation Norms for Cleaning Staff will be the same as suggested earlier.
Some Glaring Examples of Local Governance
1. Municipal Corporation, Surat
The rapid urbanisation and rise in population in Surat led to the growth of slums,
increase in garbage and overflowing drains. In 1994, Surat was struck by an outbreak
of a virulent disease somewhat like the plague. The disease caused panic
countrywide and while the citizens blamed the municipality, the civic authorities in
turn blamed the citizens for their lack of civic sense. It was a harsh reminder of what
negligence in the area of solid waste management can lead to. But what was most
amazing was that within a span of 18 months the city made a complete reversal from
a dirty, garbage-strewn city to become one of the cleanest cities in the country.
This transformation was possible by efforts of the Surat Municipal
Corporation and the Community. Subsequent to the disaster, the attitudes of the
citizens changed and they diligently tried to improve its living conditions.
Institutional changes were the first thing to happen. The city was divided into six
zones to decentralize the responsibilities for all civic functions. A commissioner was
appointed for each zone with additional powers. The officials responsible for solid
waste management were made accountable for their work; and field visits were
made mandatory for them each day. The solid waste management department and
other related departments were made to work and cooperate with one another.
Grievance redressal cards were issued to people so that complaints could be
registered. The complaint was attended to within 24 hours and the card returned to
Success Stories
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Need Assessment of U LBs & Panchayati Raj Institutions
the citizen. In addition to the administrative changes, the changed laws had an
important role to play in improving the conditions by also making the citizens aware
of and responsible for certain preventive actions. Indeed, these are some of the very
basic changes that needed to be introduced in the functioning of all urban local
bodies. Initially, the Gujarat Government‘s Municipal Act did not have any
provision to penalize littering. However, after the plague, the government realized
that it was important to impose such a penalty in order to make people aware of
their responsibility in maintaining their city‘s cleanliness. Thereafter, a fine of Rs 50
was imposed for every offence of littering and it was doubled for every
subsequent offence. The city roads were swept twice a day and the corporation, in
an appreciable attempt, has engaged private sweepers to cover different inner
areas of the town. Private contractors are also actively involved in the transport.
The private sector has been involved in solid waste collection and transportation,
maintenance of street lighting, construction of a roads, tree planting and operation of
water treatment plants. As a result of collection of and transportation of garbage,
the collection efficiency increased from 30 percent in 1995 to above 90 percent
now.Another example, by contracting out the street lights maintenance to private
company, the level of service has improved and about 95 percent of street lights
are now in working conditions.
(Source: .TERI, Municipal Finance and Municipal Services in India Present Status
and Future Prospects, Dr. Mukesh P. Mathur, Professor, National Institute of Urban
Affairs (NIUA), 1995)
2. Rajkot Municipal Corporation, Rajkot
Rajkot Municipal Corporation undertook its first
initiative of privatization in 1998 with the privatization of transportation and
collection of solid waste. Encouraged by the results achieved in the first attempt,
RMC undertook privatization of telephone, EPABX system, public toilets
maintenance, employment of security guards, drainage complaints management etc.
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The initiative has demonstrated that privatization of small works helps an urban
local body to achieve efficiency in administration and good governance.
Rajkot Municipal Corporation (RMC) has contracted out maintenance of
street lights, solid waste removal and transportation, cleaning of public toilets,
maintenance of gardens, a forestation etc. RMC has also undertaken various
entertainment projects with the help of private entrepreneurs. By using the services
of the private sector, RMC has been able to save a significant amount of money and
has been able to close the gap between demand and supply by improving service
provision. Huge investments that are needed for acquiring capital equipments such
as tractors, trollies, etc. have now been given over to private contractors. However,
RMC has not retrenched any of its staff but has stopped new recruitment. RMC
continues to use its present manpower as well as equipment in certain areas in the
city. This also serves as contingency plan in case of service disruption due to
problems with the private contractors. Some initiatives are as follows:
Privatisation of The Maintenance of Street Lights by RMC
Most of the street lights in the city were damaged
and un-repaired. This invited a number of accidents as well as antisocial
activities. The Rajkot Municipal Corporation failed to answer the complaint of
public satisfactorily. From September 1991 private sector was involved for
maintaining the streetlights. Initially four wards were privatised followed by the
others. 33 percent out of the total streetlights (20,000) have been contracted out
till now. There is a saving of Rs. 3.73 lakhs to the corporation per year after the
initiation of privatisation Opinion poll conducted by the corporation suggests
that the public is appreciating the change.
Privatisation Of Maintenance Of Pipelines And Drainage Pumping Station By
RMC
Water is supplied only for 30 minutes everyday. In scarcity period water is
supplied on alternate days. Every summer,RMC used to recruit daily wager
persons to maintain special service of water supply and incurred huge
expenditure. Private contractors were asked to make arrangements for
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maintenance and repair of pipelines round-the-clock during the scarcity period.
The contractor was to arrange 10 labour and one truck and he was paid Rs.
1000/- per day and 2 fitters were provided by the RMC. This scheme saved lakhs
of rupees. Problems regarding payment of daily wages and regularisation on the
permanent jobs were done away with.
Privatisation of Parks And Entertainment Facilities by RMC
Parks were ill-maintained by the municipality department. It was decided to
hand over maintenance of two parks namely Race Course (12000 Sq. Meters) and
Sorathiawadi Chowk garden (5500 Sq. meters.) on contract. 17.5% of the total
park areas in the Rajkot is privatised (i.e.17, 50 sq.meters out of the 1,00,000
sq.m). Privatisation brought better management and efficiency in the system
apart from the financial advantages. Net financial advantage of Rs 6,30,000 was
achieved.
Entertainment Projects & Schemes by RMC
Besides providing basic amenities to the citizens, RMC has taken up various
entertainment projects and schemes with active participation of entrepreneur
experts in respective fields. In some cases lands and buildings are provided to the
entrepreneur for running the scheme on lease while in other cases only land is
provided on lease. The private entrepreneurs are allowed to charge stipulated
fees from the user. The general rules and regulations of running such facilities are
decided by RMC an agreement has been made with private entrepreneurs for
smooth running of the scheme.
Privatisation of The Health and Other Services by RMC
The health facilities for the poor and the slum dwellers were unsatisfactory and
were available to a negligible part. A mobile clinic was introduced. Financial
Advantage of Rs. 4,000/- pm or Rs. 48,000 / per annum was achieved. The most
important benefit of the scheme is the involvement of NGOs who have social
motive and thus rendering good work.
Innovations In Revenue Collection
Property tax is the second major source of revenue in Rajkot. In order to simplify
the procedure and to increase the base of this tax the corporation has recently
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Need Assessment of U LBs & Panchayati Raj Institutions
introduced the self-assessment forms. Revenue of the RMC has increased after
the introduction of these forms. Many of the informal housing societies and
unnoticed co-operative societies who were not in the list of the Corporation
earlier have come forward for filling the forms.
Recruitment of Professionals in RMC
To initiate corporate culture in the Corporation recently a few professionals were
recruited in the RMC. These professionals work at the level of assistant managers
in the corporation. The corporation has recruited professionals MBAs and
Charted Accountants at the level of Assistant managers in the key branches like
Octroi, Tax, SWM, and Streetlights. Now, the services are better managed and
tackled more efficiently. (Source-The time of India July 24, 2012)