Home >> Features >> State of Panchayai Raj In Manipur

Introduction:

Panchayati Raj System in Manipur comes into existence since the time immemorial as an organized institution to provide justice to the villagers by the elders Gram Sabha (KHUNJA MIPHAM). However, present Panchayat system of elected representatives in Manipur was introduced in the year 1960 under the provisions of the United Provinces (Uttar Pradesh) Panchayati Raj Act 1947, which was extended to the state. It excluded from its purview the hill areas, cantonment areas, municipal areas and notified areas. Under this act, a two tier system of Panchayats was established in Manipur Valley. After the attainment of Manipur Statehood in1972, the state government enacted the Manipur Panchayat Raj Act,1975, which provided for a three tier system of Panchayats in the State comprising of Gram Panchayats at the Gram Sabha level, Panchayat smitis at the block level and Zilla Parishads at the district level, besides Nyaya Panhayets for Judicial purposed.Under the act of 1975 and the Manipur Delimitation of Gram Sabha Rules, 1977, the state government established 107 Gram Sabha, 37 Nyaya Panchayats and 6 Panchayat Samitis.

Pursuant to the passing of 73rd Amendment Act to the Constitution of India, Manipur passed the Manipur Panchayati Raj Act,1994 (Act No.26 of 1994 ) which has come into force on 23/04/1994.This Act again provides for a two tier system of PRI, ie, Gram Panchayat (GP) at the village level and Zilla Parishad at the District level. The Act extends to the whole of the State of Manipur excluding any area to which the Manipur (Hill areas) District Council Act, 1971 or the Manipur (Village Authorities in Hills Areas ) Act, 1956 extends including Cantonments and Municipalities areas.

High light on present scenario of PRI in Manipur (base on secondary data available)

Elections:

Between 1967 and 2007-8, eight elections have been held at regular intervals in 1964, 1970, 1978,1985, 1997 , 2002 and 2007 (to be check )

Functions:

As per clause 35 (in respect of Gram Panchayats ) and Clause 61 (in Zilla Parishad ) of the Manipur Panchayati Raj Act,1994, all 29 functions listed in the eleventh Schedule have been devolved to the Panchayats. In this regards, a memorandum of understanding has been signed on 5th October 2006 between Hon'ble Union Minister of Panchayati Raj Mani Sanker Iyer and Chief Minister of Manipur Okram Ibobi Singh for effective devolution of functions, funds and functionaries.

Active mapping was done in respect of 16 departments for devolution of functions, funds and functionaries. This was approved by the state cabinet and a notification no. 7/1/2005-RD&PR, dated 09/09/2005, was issued in this regard. All department concerned were requested to transfer the activities, schemes, functionaries and funds to the Panchayats as per the active mapping. So far, only the department of Rural Development and Panchayati Raj, Commerce and Industries, Fisheries and Art and Culture has issued orders operationalzing the active mapping. (GOI 2006). . In pursuance of the state cabinet orders, Fisheries Department had transferred Rs. 7.00 lakhs for the year 2005-06 and Rs. 6.00 lakhs for the year 2006-07. Horticulture Department had transferred Rs. 8.00 lakhs for the year 2006-07. Likewise, Tribal Development Department had transferred Rs. 15.00 lakhs for the year 2007-08 to the PRIs.

Now, State government is limited to 12 Ministers only as per government Rules. A Minister is enjoying more than two to three portfolios. It is justify and right time to transferring functions, functionaries and funds to Panchayats for decentralized planning as well as better functioning of grass root democracy.

Functionaries:

The Active map, which was approved by the state Cabinet, vides its meeting dated the 8th September 2005 lists only 16 of these subjects. Each Zilla Parishad has a chief Executive officer who is selection Grade of the state Administrative services. Similarly, at the Gram Panchayat level there is Secretary to the Gram Panchayat recruited at the level of the state government in the subordinate services. There is nothing below the secretary of the Gram Panchayat and even the transferred staff members are yet to take their place in the Panchayat. The disciplinary and other power, however, continue to vest with their respective cadre controlling authorities (GOI 2006). The devolution of functionaries, which has been accepted as the standard, includes a set of features- there should be a transfer of all the functionaries operating at who were discharging the functions assigned to the Panchayati Raj Institution, should be transferred to them; the administrative control of such transferred staff e.g. approval of tour diary, grant of leave, writing of annual confidential remarks and maintenance of service records, should vest with the Panchyati Raj Institution and they should draw salary from the same; and their prospects of promotion should be within the Panchayati Raj bodies in so as practicable. The ideal situation would be constitution of separate technical and administrative cadres for the Zilla Parishads. Even sub optimal position is that described afore is yet to be realized in Manipur. It is pity to keep on record even the Rural Development &Panchayati Raj department has been transferred 4 staffs each to ZP and one Panchayat secretary to each GPs. So far, about eight departments have been transferred at the average of two staffs to each ZPs and its staff salary are getting from respective parent department only. This token devolution of functionaries have, however, not been found adequate by the people when visited. Under NREGA, one more employee called Gram Rozgar Sevak is appointed. In general, the line department officials are generally separated from the Panchayats.

Annual Report:

State government prepares an annual administrative report in which Panchayat matters are also included. However, no separate state of Panchayat report is published. State government has informed that the preparation of annual state of Panchayat report is progress.

Finance (Fund):

Gram Panchayats and Zilla Parishads have been empowering under the Manipur Panchayati Raj Act.!994 to levy toll, cess and fees to mobilize their own resources. However, in reality, the ZPs and GPs do not levy any taxes, fees etc. Grant in aid viz. honorarium/ fix salaries, establishment grants, centrally sponsored schemes and finance commission awards are provided to the PRIs.

The state does not have Panchayat window in the state Budget. There is, however, segregation between hill and valley areas in the budget. None of the valley panchayat do not get backward region grant fund from the central ministry; it was extended by NREGS scheme. Three hilly Districts namely Tamenglong, Chandel and Churachandpur are covered under BRGF. These districts are non six schedules, co terminus with an autonomous council, but have not conduct elections to them after their terms had lapsed in 1989. Manipur Government has recommended early election of district Council. The councils are, therefore, headed by an administrator, the District collector, till elections are held. NREGA schemes, however, come into effective implementation in the valley Panchayat in Manipur.

Though State has only two tier system of Panchayati Raj, however, the fund distribution for Panchayats in Manipur is like 30% at block administrative Committee,50% at the GP level and 20% at the ZP level. Third, intermediate tier of Panchayat system in Manipur is needed for effective management of 30% fund already sanction at block level and better democratic control by the Panchayat representatives.

NREG schemes, however, come into effective implementation in the valley Panchayat in Manipur since 2008. Though state has only two tier system of Panchayati Raj, however, the fund distribution for Panchayats in Manipur is like 30% at the block Administrative Committee, 50% at the GP level and 20% at the ZP level before the commencement of NREGS. But after this scheme is being started 50% of the fund is implemented by GP and other 50% is to be implemented by other implementing agencies. Third intermediate tier of Panchayat system in Manipur is needed for effective management of 30% fund already sanction at the block level and better democratic control by the Panchayat representatives. For NREGS, a total amount of Rs. 4008.9 lakhs were released to the 4 (four) valley districts of Manipur for the year 2008-09. Out of this amount (Rs. 4008.9 lakhs) Rs. 3965.21 lakhs were Central Govt. share and the remaining Rs. 43.69 lakhs were State Govt. share. A proposal had been made by the Rural Development and Panchayati Raj, Manipur to the State Planning Dept. for releasing the 1st Installment of the State matching share for the current year so far.

State Finance Commission:

The State has had two State Finance Commission so far. The first State Finance Commission submitted its report in December, 1996. The State Government submitted its Action Taken Report on the same to the State Assembly towards the end of July, 1997. The State Government approved the recommendations of the SFC subject to the following conditions:
1. Establishment grant to Rural Local Bodies (RLBs) and Urban Local Bodies (ULBs) be re-examined.
2. The modalities for implementation of recommendation regarding
       A. Target of ARM for RLBs / ULBs (excluding Imphal MC )
       B. Amendment in Laws and Rules to bestow additional powers of taxation of Gram Panchayats.
       C. Creation of Municipal service cadre to be worked out.
3. The ARM targets for the ULBs to be revised to bring the gaps between the Government Grant and the contribution of ULBs. The State Government also decided to implement other recommendations not relating to immediate devolution in a phased manner after finalization of detailed rules and regulations.

The Second State Finance Commission (SFC) was appointed on 3/1/2003 to cover up the period 2001-2005. However, there was a long delay in the appointment and the commission came into existence only march, 2003. The report of the Second SFC was available in November, 2004 and the action taken report on the same was submitted in the State Assembly in December 2005. The State Government decided to adopt the recommendation and extend the period covered by the recommendations up to 31/03/2010. State Government decision to constitute the 3rd State Finance Commission 2 years before 31/03/2010 has inactive till September 2008. However, now, decided to constitute 3rd SFC.

In the explanatory memorandum of the Action Taken Report of Second State Finance Commission, it has been state that the recommendations have been approved by the government subject to detailed examination and appropriate action on the following:
1. Transfer of functions and responsibilities to the local bodies.
2. The principles of devolution funds and grants to the local bodies.
3. Power of levying taxes and fees including enhancement of rates.
4. Transfer of staff and administrative control thereof necessary for performing assigned functions.
5. Making the local bodies representatives in character by holding timely and regular elections.

Electronic transfer of funds:

The state has accepted to transfer twelfth Finance Commission grants for Panchayeti Raj Institutions through the Fund Transfer Monitoring Software developed by NIC unit of the Ministry of Panhayat in Manipur and has uploaded the same on the Panchayat Portal through the state Unit of NIC. It is the first State to do so. Fund as soon as it released from the Central to the State government are deposited in the bank account of the ZPs and the GPs with the Directorate acting like a post office kind of.

Financial outlays of PRIs in Manipur:

A sum of Rs.285.91 lakhs has been utilized for payment of staff salaries, office expenses, electric bills, Water charges awarded under non plan of 12th finance commission in the year 2005-06.Under the plan Budget, a sum of Rs.60.07 lakhs has been utilized during 2005-06 out of Rs 72 lakhs provided under Demand No.38-Panchayat. (Release of grants to Manipur Panchayats from 12th finance Commission)

Total allocation Rs.4600lakhs- Amount of 6 monthly installments to be released is Rs 460 Lakhs, First Installment 2005-06 -Rs212 Lakhs released and continually releases the consecutive installments,) Twelfth Finance Commission has recomended grants amounting to Rs. 25.30 crores for a period five years @ Rs. 506.00 lakhs annually (2005-06 to 2009-10). Now Government of Manipur has released an amount of Rs. 211.60 lakhs during 2005-06 (1st Installment), Rs. 423.20 lakhs during 2006-07 as 2nd installment for 2005-06 (Rs. 211.60 lakhs), 1st Installment for 2006-07 (Rs. 211.60 lakhs and interest (Rs. 73,046) on the period of delayed distribution to the PRIs and Rs. 211.60 lakhs during 2007-08 as 2nd installment for 2006-07 and the funds had been utilized as per Action Plan. Utilization Certificate of the fund released has already been submitted to the Finance Department, Govt. of Manipur. It is targeted, for the remaining grant will be utilized fully up to end of March 2010.

The State has accepted to transfer Twelfth Finance Commission grants for Panchayati Raj Institution through the fund transfer monitoring software develop by the NIC unit of the Ministry of Panchayat in Manipur and has uploaded the same on the Panchayat portal through the state unit of NIC. It is the first state to do so. Fund as soon as released from the central to the state govt. are deposited in the bank account of the ZPs and GPs with Directorate acting like a post office kind of.

Training Institute:

The State Institute of Panchayati Raj and rural development (SIPRARD), now STATE INSTITUTE OF RURAL DEVELOPMENT (SIRD) is the training Institute of Rural Development in the State. The institute has been converted into an Autonomous State Institute of Rural Development (SIRD) during the financial year; 2005-06 vide order No.3/3/2003- Dev (SIPRARD) dated 23/01/2006 to have the uniform pattern of the SIRDs as per guidelines of the Ministry of Rural Development, Govt. of India. The funding pattern (Except Salary of 5 Core faculty members) is 50:50 to be shared by the Govt. of India and state Government.

Categories Of People Atteneded The Training Programmes:

Training in context with rural development are undergoing in the following categories of people:-
1. Officials pertaining to RD
2. Non-Officials (Elected Persons of local self Govt.)
3. Officials from Line Department & Development Blocks.
4. NGOs, CBOs and Facilitators.
5. The Gram Sabha Members i.e. the general public at the grass root level of the G.P.

The objectives of the courses are mainly to acquaint the official and non- official Rural Development Functionaries with the Central Sponsored Schemes and to ensure proper and effective implementation of the poverty alleviation and Rural Development Programmed During the year (2005-06) under report, up to 28/2/2006, the Institute organized 97 training courses and all together 3534 numbers of participants (for the whole State of Manipur), attended the training programmes. During the year (2006-07) under report up to 31/3/2007, the Institute organized 123 training courses (for the whole State), in which 4411 PRIs representatives, Officials and representatives of NGOs participated the training programmes.

State Level Monitoring Cell Secretariat: Rural Development Department: The Secretariat Development Department (Monitoring Cell) was established in the year, 1981. The Department co-ordinates and monitors the implementation of programmes under Central Sponsored Schemes as well as other State Plan Programmes that the State Govt. assigns to this Department from time to time.

The Rural Development Department (Monitoring Cell) is headed by the Commissioner/Secretary (RD & PR) and he is assisted by the Joint Secretary (RD & PR) as the Head of Office and the Project Officers etc.