Ch 10 Governance
Good Governance
Is an essential element of any well-functioning society.
ensures effective management of resources and deliverance
of
services to citizens
provides social legitimacy to the system.
is critical to translating Plan outlays into significant outcomes on the
ground.
ensure the optimal use of natural resources which are sovereign
wealth under sovereign ownership
FOCUS AREAS IN GOVERNANCE / to ensure Good Governance
1. Systemic improvements, which increase the effectiveness of
government plan expenditure on new programmes.
a. competition, simplify transaction, ICT, transparency, integrity
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A number of changes are being instituted in the architecture of implementation of Plan
programmes in the Twelfth Plan to overcome the universalization without quality (U without
Q) syndrome.
Strengthening Local Institutions
A key diagnostic conclusion for lack of success of Plan programmes is that
these are designed in a top down manner and do not effectively
articulate the needs and aspirations of the local people, especially the most
vulnerable.
several functions were transferred to Panchayati Raj Institutions (PRIs)
But institutionally, the PRIs remain weak and they do not have the
capacity to plan or implement programmes effectively.
resources to the Ministry of PRI increased more than 10 times than
previous FYP .
From an 11th Plan allocation of `636 crore to a 12th Plan
outlay of `6,437 crore,
also strengthen the fabric of Indian democracy at the grass-roots.
Only strong PRIs can ensure effective implementation of PESA 1996
and ST&OTFD Act
Rajiv Gandhi Panchayat
Sashaktikaran Abhiyan meant for
strengthening human resource and systems capacities of PRIs
The potential power of the NRLM lies in the economies of scale created by SHG
Federations (comprising 150200 SHGs each).
bulk purchase of inputs (seeds, fertilisers and so on) and
marketing of outputs (crops, vegetables, milk, NTFPs and so on).
They can also provide larger loans for housing and health
facilities to their members by tying up with large service or loan providers.
A variety of insurance services can be made available through
this route, including life, health, livestock and weather insurance.
It has also been shown how
doing business with SHG
Federations can help public sector bank branches in remote rural areas
Social Mobilisation
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specific provisions are being made in each flagship programme for dedicated time and human
and financial resources for social mobilisation
The new Operational Guidelines for MGNREGA, for example, provide
that those
blocks where either SCs + STs form = 30 % of the
population OR the annual MGNREGA expenditure was more than `12
crore in any year since the programme started, will mandatorily have
at least three Cluster Facilitation Teams (CFT)
Each CFT will service a cluster of Gram Panchayats (CGP),
being accountable to each GP within their Cluster
Encourage partnerships with civil society including not only NGOs but also academic
institutions, local colleges and universities.
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promoting art, culture, environment protection
public enquiry;
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depending on the requirement of the State
All CSS must have 20 per cent flexi funds (10 per cent for Flagship
schemes) to be utilised by the States as per the requirement
A concurrent independent monitoring and evaluation of the CSS.
Convergence
A key deficiency of Plan programmes is that they continue to
function within the confines of
departmental silos without requisite
convergence and with a high degree of duplication of effort
convergence of implementation across programmes to pool financial
and physical resources.
Eg. rural
drinking water and sanitation programmes
should be converged so that the two objectives are attained in a
mutually consistent manner.
Similarly, it is proposed that under the JNNURM, every
water supply project will necessarily also be a sewage treatment
project and green buildings will require linkages with the energy
sector.
Effective Design and Implementation
While preparing the schemes, role of the central ministries : to act as
a knowledge partner and enabler to the project implementation
The consultation with the stakeholders is one of
the key
requirements for ensuring that the architecture of these schemes meet the
objectives
must have evaluation and feedback mechanisms, must not be left to
the audit function.
An effective evaluation can lead to improved versions of
these schemes, leading to better outcomes and more efficient use of
public resources.
To ensure that the implementation process does not lose momentum, it
is important to have some early wins
Capacity Building for Implementation
capacity building at the local level as a key instrument for improving
outcomes
provide PRIs/ULBs good quality personnel
a pooled fund across programmes should be created
from which resources could be drawn for capacity building
Government institutions charged with capacity building have, by and
large, under-performed and are in urgent need of reform
limited staff can be upgraded by entering into PPP and
thus, strengthen the excellence of the faculty as well as, the quality of
training imparted
recruitment from the private sector and hiring of external consultants
through a fast track process
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Cutting-edge level of implementation
use of modern technology to improve transparency, access and
efficiency of Plan programmes
Direct Cash Transfer is an unmediated and timely
manner to the target beneficiaries has seen great improvement
Independent Evaluation Office
Expert evaluation of programmes that have been in operation is done
by the Programme Evaluation Organisation
(PEO) of the Planning
Commission.
This evaluation function is being strengthened by setting up an
Independent Evaluation Office (IEO), under the
aegis of Planning
Commission.
IMPROVING PUBLIC SERVICE DELIVERY
A number of services include ration cards, caste certificates, income
certificates, certificates for proof of residence, passports and similar other
services. It is important that these are available within a prescribed timeline.
A number of States have passed the legislations e.g. Bihar, Madhya
Pradesh, Delhi are excellent examples of efforts to provide public services
expeditiously.
An important aid to delivery of services can be the use of egovernance and technology.
Eg experience in the Railways reservation and inquiry ; in
refund of customs duty etc
expand the optical fibre network and expand broadband connectivity
to each panchayat levels.
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Though it has been high, but has remained almost at the same level.
The fact that perception of corruption has increased is a different
issue and reflects the consequence of greater transparency and awareness.
The best way to prevent corruption is to have simple procedures,
which do not provide scope for interpretations & provide
minimum scope for such malpractices
This would require large use of e-governance and other
technologies
transparent procedures in award of government
contracts, government procurement and award of licences.
The economic reforms successfully eliminated discretionary decision
making in areas such as industrial licences and import licences.
With the lowering of tariffs and abolition of license and
permits, the transaction costs went down dramatically and this led to
an enormous reduction in corruption
Civil Services Reforms
First, the service should be young and the recruitment should, take
place around 21 years of age.
ARC Report on Refurbishing of Personnel AdministrationSealing New
Heights
Accountability
need to
move from goals of meeting expenditure targets in
government programmes to goals of meeting physical targets and, even
more, towards increasing satisfaction of the range of stakeholders of
government policy.
private
organisations
are
characterised
by
intensive
accountability, (ie. being answerable to a narrower set of masters in a
focused way)
governments require extensive accountability(more
broader and more representative).
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Already in
several areas including power, oil and gas, airports,
telecom and warehousing
Regulators are also proposed in the field of water in a number of
states.
There is
no clear assessment of the functioning of individual
regulators.
to what extent they are answerable and accountable and
to whom
GETTING THINGS DONE
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sector too.
In China, Japan and Germanythings get done.
Two root causes identified for poor implementation are:
inadequate consensus amongst stakeholders for policy
changes,
very poor co-ordination amongst agencies in execution.
not restricted only to the infrastructure and manufacturing sectors,
exist in almost all sectors
There is a need to establish an effective backbone capability which
will provide strength to
multi-stakeholder policy and implementation
processes.
not an organisation with a large amount of resources and
manpower;
nor one with the power to command top-down.
the backbone capability must essentially comprise of
small catalytic units located in many parts of the system, which can
provide the tools and techniques to the various states and ministries
to effectively coordinate, design and implement their programmes.
A Movement of Learning and Improvement
Japan, in the 1950s and 1960s had the reputation of being a producer
of low quality, cheap, goods.
By the 1980s, Japan had become the hallmark of quality across many
industries, and its infrastructure of rail and road transportation had become
a benchmark for efficiency and punctuality.
The widespread improvement of quality was brought about through
Total Quality Management (TQM), whereby seven simple tools of quality
and other techniques were widely disseminated throughout Japan.
The dissemination was done by multiple agencies. The Japanese Union
of Scientists and Engineers was one of the leaders, and several business
associations, government agencies and voluntary organisations came
together to promote quality across the country.
The subject of the TQM movement in Japan was quality. Relevant
principles, techniques and tools were provided by many persons
and
organisations,
The distinction between creating yet another
organisation and
stimulating a movement is crucial.
DISASTER MANAGEMENT
disasters affect growth and the poorer sections of society gets a major
share of the impact
Investing in prevention and mitigation is economically and socially
more beneficial than expenditure in relief and rehabilitation
In a recent World Bank Study, it has been established that one dollar
spent on prevention is ten times more valuable than a dollar spent on relief
in net present value.
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The large size of the Indian continent, varied geography, national
features, climate, and effects of economic development and growth process
results in number of risks.
These are clearly both due to natural hazards and effect of human
development process on nature.
National Hazards, Unnatural Disasters
According to a WB study titled National Hazards, Unnatural Disasters,
India losses up to 2 per cent of its GDP due to natural disasters.
a more comprehensive approach must be to mitigation of ill-effects of
disasters, and a development process which encompasses a strategy for
mitigation of human misery
3 important components of the strategy of disaster management:
Capacity building
First, setting up of early warning systems in all hazards prone areas of
the country
Effective communication systems have to be set up at all
the levels to ensure timely and accurate dissemination of warning
signals to vulnerable communities.
Second, Focusing on disaster risk reduction in all major schemes
Eg. safety of the school
buildings, especially in
earthquake prone areas has to be ensured
Community awareness and capacity building within the community
and government is undertaken at all the three levels: National, State and
Districts including villages.
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