Activity Mapping Report-Karnataka

Activity Mapping for PRIs
The Karnataka Experience
Report Prepared by
S.A. Ashraful Hasan
G.S.Ganesh Prasad
Abdul Nazir Sab State Institute of Rural Development

Government of Karnataka
2012
Contents
Page No.
Executive Summary
i - iii
1.
Introduction
1.1 Devolution of 3 Fs
1.2 Activity Mapping
1.3 Objectives
1.4 Methodology and Area of Study
1-4
2.
Decentralisation Process An Evolutionary Perspective

2.1 Local Government in Old Mysore Princely State
2.2 Post independence initiatives
2.2.1 Balwantrai Mehta Committee Report
2.2.2 Ashok Mehta Committee Report
2.2.2.1 Two tier structure
2.3 Karnataka: The 1983 Act
2.3.1 Mandal Panchayats
2.3.2 Taluk Panchayat Samiti
2.3.3 Zilla Parishad
2.4 Reservation and Social Justice
2.5 Transfer of Resources
2.6 Financial viability
2.7 Functions and Powers
2.8 Staffing Pattern
5 - 14
3.
The 73rd and 74th Constitutional Amendments

3.1 PRIs as Constitutional entity - The 1993 Act
3.2 Structure
3.3 Gram Panchayat
3.3.1 Functions
3.3.2 Staff
3.4 Taluk Panchayat
3.4.1 Functions
3.4.2 Staff
3.5 Zilla Panchayat
3.5.1 Functions
3.5.2 Staff
3.6 The recent amendments to the Karnataka Panchayat Raj Act
3.6.1 Enhancing the quality of peoples participation through
greater Empowerment of Gram Sabhas and Ward
Sabhas
3.6.2 Defining powers and responsibilities of the Gram Sabha
with clarity
3.6.3 Bring in transparency and accountability in the
functioning of PRIs
3.6.4 Administrative strengthening of Gram Panchayat
15 - 22
Page No.
3.6.5
3.6.6
3.6.7
Fiscal strengthening of Gram Panchayats

Giving greater flexibility to PRIs to plan and prioritise
within their spheres
Gram Panchayat accounts, audit and works manual
4.
Legislative devolution of functions in Karnataka
23 - 25
5.
Fiscal devolution to Panchayats

5.1 Constitution of State Finance Commission
5.2 Rationalisation of Schemes
5.3 Increasing the Statutory Grants to PRIs
5.4 Direct releases of funds to Gram Panchayats
5.5 Improving the finances of Gram Panchayats by greater emphasis
on the collection of revenues
26 30
6.
Activity Mapping
6.1 Assigned Functions, Funds and Functionaries to PRIs in
Karnataka
6.1.1 Gram Panchayat
6.1.2 Taluk Panchayat
6.1.3 Zilla Panchayat
6.2 The details of activities identified for the three tiers of panchayat
raj institutions in the state are as follows:
6.3 Salient features of the range of activities covered above in the
Activity Mapping
6.3.1 Activity Mapping for GPs
6.3.2 Activity Mapping for Taluk Panchayats
6.3.3 Activity Mapping for Zilla Panchayats
6.4 Current Status of implementation of Activity Mapping by PRIs in
Karnataka
31 - 149
7.
Activity Mapping for Panchayat Raj Institutions Proposed

Modifications
7.1 Sector-wise changes
7.2 Activity-wise Changes
7.3 Activity Mapping after incorporating the modifications
7.4 Assessment of Functionaries at different tiers of PRIs for effective
implementation of proposed Activity Mapping
150-182
Executive Summary
Karnataka was one of the earlier states to come out with an activity mapping for the
Panchayat Raj Institutions and a detailed circular to this effect was issued in the year 2003
covering all the line departments. The activity mapping clearly delineates the roles and
responsibilities of different tiers for all the 29 subjects listed in the Eleventh Schedule.
Subsequently guidelines have been issued by Government of India on the preparation of Activity
mapping by the states and many states have come out with the mapping based on the powers
devolved to the panchayati raj institutions. However there was a need to understand the nuances
of the exercising by carrying out an in-depth analysis of the exercise. The present study focused
on the effectiveness of the implementation of the activity mapping and the changes that need to
be incorporated into it for ensuring proper implementation. This entire issue has been looked into
in the background of the effectiveness of the functioning of the PRIs in the States.
The study has analysed the initiatives taken by the state during the pre and post
independence period in the decentralization process. It has also analysed in detail the KPR Act
1983 and 1993 and the steps taken by the state government for ensuring peoples participation in
the decision making process. The activity mapping exercise of the state has been analysed in the
backdrop of functional and fiscal devolution to the Panchayat Raj Institutions in the State. The
current status of implementation of the activity mapping indicates the following:
Activity Mapping for GPs

An analysis of the Activity Mapping in respect of GPs further strengthens the powers
given under the Act to GPs. Thus, wherever the Act in Schedule I has indicated that promotional
responsibilities are with the Grama Panchayats, the Activity Mapping had gone ahead and
entrusted
the actual implementation, planning and supervision functions. Examples in this
regard are in respect of rural sanitation, housing, minor irrigation tanks and fisheries. Activity
Mapping for Grama Panchayats in Karnataka is an example of where Activity Mapping has
carried forward the evolutionary process of Panchayati Raj and increased the responsibilities at
the GP level by further decentralization. In respect of public distribution system though this was
i
not covered under the Activity Mapping, separate orders were issued in 2005 devolving
responsibilities concerning the public distribution system to the Gram Panchayats. However in
recent times the implementation of rural housing schemes have been entrusted to a separate
Corporation created for the purpose. There has also been dilution in the powers assigned to the
Gram Panchayats in the implementation of drinking water schemes by way entrusting them with
only maintenance of the schemes.
Activity Mapping for Taluk Panchayats
Activity Mapping in respect of Taluk Panchayats indicates that it has been given major
responsibilities in minor irrigation and watershed development, animal husbandry, dairying and
poultry, fisheries development, social forestry, khadi and village industries, drinking water,
roads, education, health care and health centres, women & child welfare and social welfare.
These activities cover activities of planning, implementation and maintenance of facilities and
services delivered under these departments. However, it is interesting to note that Activity
Mapping for Taluk Panchayats has not covered welfare of the weaker sections and the aspect of
public distribution system. This goes contrary to the actual ground position where it is the Taluk
Panchayats that are constructing and maintaining SC/ST hostels and also the allocation of food
grains under Public Distribution System in Karnataka.
Activity Mapping for Zilla Panchayats
Activity Mapping for Zilla Panchayats reflects the strong commitment to Zilla Centric
Panchayati Raj in Karnataka, which has come right from 1987 onwards. Therefore, it is the
Zilla Panchayat that has been given the planning and consolidation of rural plan responsibilities
in almost all matters in the 11th Plan Schedule. The areas of Activity Mapping has been
undertaken for ZPs in respect of education, training and vocational education and the public
distribution system.
The powers given to the Zilla Panchayats cover all the 29 functions envisaged in the 73rd
Constitution Amendment but they have remained as pious intentions and have not been
translated into action so far.
The current status of implementation of the activity mapping exercise has been discussed
in detail in Chapter 6 (page no. 91 onwards). It was observed that though the activity mapping
ii
clearly delineates the details of functions to be carried out by different tiers of panchayat raj
institutions, it was the line departments that were carrying out these activities. In majority of the
functions assigned to the PRIs, the functionaries of the line departments at the district level were
accessible to the Zilla Panchayats but at the lower levels there was no coordination between the
officials and the respective PRIs. Further a number of activities which are carried out under the
State Sector funds and these are not brought to the notice of the respective PRIs. Summing up,
there is a need to redefine certain functions and activities and identify the functionaries for
coordinating with the three tiers of panchayat raj institutions.
The study also analysed the entire exercise and has proposed sector-wise, activity wise
changes in the activity mapping. The study has recommended that the following sector-wise
changes be effected to make the activity mapping exercise more meaningful.
Sector
Proposed Changes
Minor Irrigation, Watershed Management Minor Irrigation

and Watershed
Minor Forest Produce
Deleted, (Activities included under

Social Forestry Sector)
Fuel and Fodder
Included under Social Forestry
Small Scale Industries including Food Deleted

Processing Industries
Rural Housing including Indira Awas Rural Housing Schemes
Yojana
Rural
Electrification
Distribution of Electricity
including Rural Electrification
Similarly changes have been proposed for the activities also based on the feedback from
the field studies. A number of activities had be dropped since the panchayat raj institutions had
no role to play mainly because they were governed by a separate legislation. The proposed
changes are given in Chapter 7 (page 150).
iii
After incorporating the modifications the number of activities would be reduced to

around 170 and the details of the modified activity mapping is given in Chapter 7 (page 153).
The proposed changes in the activity mapping would be effective only if sufficient
functionaries and funds are made available to the panchayat raj institutions for carrying out these
activities. An assessment of functionaries to ensure effective implementation of the activity
mapping in the state is also recommended (page 178). Already these functionaries are
discharging their responsibilities at the Taluk and Village levels. However, there is no interaction
/ coordination between these officials and the respective tiers of governance. It suggested that
this linkage be established through involvement of respective line departments.
With regard to the funds required to carry out these activities, it is suggested that the line
departments be allowed to implement the programmes subject to getting approval for these
schemes either in the Gram Sabha or through the Gram Panchayat and the Taluk Panchayats.
This would ensure that the respective tiers of panchayat raj institutions would have adequate
knowledge of development activities that are being carried out in the villages.
The study has shown interesting results and has also given an opportunity to identify the
problems coming in the way of effective implementation of the activity mapping exercise in the
state. The proposed changes would help in clearing doubts as also the difficulties among the
elected representatives and the officials in carrying out the development activities and would also
provide clarity for the implementing agencies.
iv
1. Introduction
The 73rd and 74th amendments to the Indian Constitution are landmark events by
dint of conferring on rural and urban local bodies Constitutional status with a view to
making them institutions of self-government. The 73rd amendment mandated a uniform
structure of Panchayat Raj Institutions (PRIs) for the country with few exceptions.
However, despite the uniformity imposed by the Constitution, variations in performance,
noticeable prior to the amendment, continue to persist across states.
Whereas earlier these differences were attributable to that hold-all term lack of
political will, the new status might have been expected to ensure a reasonable degree of
uniformity. But variations are seen with respect to several areas including major
mandatory provisions. This is compounded by persistent differences in regard to the zeal
with which powers are devolved upon Panchayat Raj Institutions (PRIs) and this
obviously requires examination.
For the most part, literature on decentralization and
Panchayati Raj in India does not address this question explicitly. Whether this is because
of a faith, stated or otherwise, that legislation would compel performance or because the
issue is not seen in the backdrop of the political process as an important question but is
not considered in detail at this juncture. Data on the status of PRIs across states shows
differences particularly with respect to the commitment in satisfying the spirit of the
legislation. A fruitful line of inquiry which has been suggested is to seek part of the
explanation in factors which are specific to the context of different states. This is arguably
probable given that some states had shown more commitment to devolution than others
before the conferment of constitutional status on PRIs. In fact the post-independence
history of rural local bodies brings to relief important differences in commitment and
approach across states. Equally relevant is that from the late seventies onwards there has
occurred a paradigm shift in the Indian political scenario with the virtual disappearance of
one party domination at the center and the emergence of governments of various hues in
the states and the growing importance of regional parties.
1.1 Devolution of 3 Fs:
A highlight of the Constitution Amendment was the devolution of Functions,
Functionaries and Financies along with sufficient Freedom to the Panchayati Raj
Institutions [PRIs]. In the earlier mechanism the Panchayats were starved of funds and
had to depend heavily on the transfer of funds from the governments. The Panchayats had
1
very little resources of their own and the financial grants were given at the will and
pleasure of the political executive on an adhoc basis. The new Act has ensured to the
panchayats a measure of financial strength which would enhance their autonomy and
authority. The only mandatory provision dealing with financial aspects of PRIs was the
constitution of the State Finance Commissions [SFCs] in every state to review the
financial positions of the panchayats. An issue of crucial significance is that the state
legislatures have been empowered to authorize the panchayats to levy, collect and
appropriate taxes. However, this should be in accordance with the procedure and subject
to limits specified by the state legislatures. Based on the recommendations of the SFCs, in
most states such powers have been granted to the village/grama panchayats.
In many states panchayats under the new Act have already spent more than two
terms in office. Some of the states are at the threshold of conducting the next round of
elections to the panchayats. The State Finance Commissions in most states have
submitted report to the respective state governments. In many states across the country,
the governments with few exceptions have already taken action on these reports.
Theoretically the process of functional and financial devolution to panchayats has gained
momentum and can now be understood more clearly than ever before.
A related issue to the finances of panchayats is the devolution of functions and
functionaries to these bodies. According to Article 243(G) of the Constitution the states
are required to devolve adequate powers and responsibilities to the PRIs in order to make
them effective institutions of local self government. The responsibility of preparation of
plans for economic development and social justice and its implementation in relation to
the 29 subjects listed in the 11th schedule have also been assigned to the panchayats. The
state governments are expected to place the functions of the departments dealing with
these subjects along with officials under the control of the panchayats.
In view of this, the functional autonomy of PRIs along with their financial
autonomy must clearly be delineated. Even in respect of the 29 subjects identified above,
it is necessary for the state governments to clearly identify what would be done by the
different tiers of panchayats at each level. In states like Karnataka, Maharashtra, Madhya
Pradesh, Orissa, Rajasthan, Sikkim, Tamilnadu, Tripura, Uttar Pradesh and West Bengal
detailed instructions in this regard have already been issued and in several cases
departmental functionaries have been placed with the panchayats. It may be observed
here that Karnataka and Sikkim are the only states which have transferred all the 3Fs. The
2
major problem still remains to be the devolution of the 3 Fs Functions, Functionaries

and Funds from the state to the panchayats at various levels. There is also a growing need
to focus on the inter-tier distribution of these 3 Fs among PRIs themselves between the
district, block and village panchayats. In order to bring role clarity in the functioning of
the PRIs few states have come out with activity mapping and this needs to be improved
and replicated in all other states.
1.2 Activity Mapping
Karnataka was one of the earlier states to come out with an activity mapping for
the Panchayat Raj Institutions and a detailed circular to this effect has been issued in the
year 2003 covering all the line departments. The activity mapping clearly delineates the
roles and responsibilities of different tiers for all the 29 subjects listed in the Eleventh
Schedule. Subsequently guidelines have been issued by Government of India on the
preparation of Activity mapping by the states and many states have come out with the
mapping based on the powers devolved to the panchayati raj institutions. However there
is a need to understand the nuances of the exercising by carrying out an in-depth analysis
of the exercise in different states. The present study focuses on the effectiveness of the
implementation of the activity mapping and the changes that need to be incorporated into
it. The entire issue needs to be looked into in the background of the effectiveness of the
functioning of the PRIs in the States.
1.3 Objectives:
To study the processes and/ approaches towards activity mapping including

the legislations thereof
To study the effectiveness of devolution of functions, functionaries and funds

to different tiers of Panchayati Raj Institutions as per the assignment of
functions under the activity mapping
To study the effectiveness of implementation of activity mapping in different

tiers of PRIs in the state of Karnataka.
To identify guidelines issued by State Government which are in contravention

with the activity mapping
To identify accountability mechanisms at PRI level towards strengthening

panchayats
To analyse the bottlenecks if any, in the implementation of activity mapping

3
To suggest measures for incorporating the changes to the activity mapping to

bring in more role clarity.
1.4 Methodology and Area of Study:

The required information has been collected through primary and secondary
sources. The primary data was collected by canvassing a questionnaire to the elected
representatives and functionaries of different tiers of PRIs on the implementation of
activity mapping. Information was also collected through Focus Group Discussions with
elected representatives and officials.
The field studies were conducted in three districts located in different
geographical areas namely Hassan, Gulbarga and Dharwad. In each of these districts, the
study covered the Zilla Panchayat, Taluk Panchayat and Gram Panchayats.
In order to suggest remedial measures for bottlenecks found in the activity
mapping in Karnataka State, the institute interacted with representatives of State Institute
of Rural Developments of West Bengal, Tamilnadu and Kerala with focus on the
effectiveness on their implementation of the activity mapping However in depth field
study could not be carried out in these states and the interaction was limited to having
discussions on a limited scale.
2. Decentralisation Process An Evolutionary Perspective
All over the world the right of people to govern themselves has accrued to them
through long years of struggle. It has always been an arduous exercise to traverse from
governance by autocratic decree to one by democratic dialogue. Indias fight against
imperial rule is an important chapter in this journey. The acceptance of a democratic
system of government, while a major achievement, is not the end of the road. Mahatma
Gandhi realized this decades before the countrys independence was visible on the
horizon. Democracy, to be meaningful, should empower the weakest. Only then will it be
truly liberated only when power rested with the people. And he believed that this required
governance at the lowest level possible, namely the village. An over centralised structure
was to him a symbol of oppression. While calling for a struggle against British rule he
also drew attention to these vast questions that free India would confront.
Gandhijis inspiration in the realm of decentralization derived from the institution

of the Panchayat in ancient India. His vision is best reflected in his own words: The
Government of the village will be conducted by a Panchayat of five persons annually
elected by the adult villagers, male and female, possessing minimum prescribed
qualifications. This will have all the authority and jurisdiction required. Since there will
be no system of punishment in the accepted sense, this panchayat will be the legislature,
judiciary and executive combined to operate for its year of office. Any village can
become such a republic today without such a republic today without much interference
even from the present government whose sole effective connection with the villages is the
exaction of the village revenue.
It was due to the impact of this Gandhian thought that the Constitution of India
contains a provision on Panchayats in Article 40. One of the Directive Principles of State
Policy is that: The State shall take steps to organize village panchayats and endow them
with such powers and authority as may be necessary to enable them to function as units of
self government (Constitution of India).
2.1 Local Government in Old Mysore Princely State
Karnataka has a long history of decentralization. It should be clarified that the

reference, for the most part, is to the princely state of Mysore which was the nucleus of
5
the enlarged state which was formed in 1956 and was christened Karnataka in 1973. Any
narration of pre-independence efforts at decentralization must be set against the
background of Mysore being a princely state and ultimately subject to the authority of the
British imperial government. Both these factors naturally imposed their own fetters on
democratic governance.
The earliest move towards Local Self-government was in 1862. In that year Local
Funds were formed out of Plough and Ferry taxes, fines and sale proceeds of stray cattle.
These funds were utilized for construction of village roads and related works.
In 1874 Local Fund Committees were established with the Deputy Commissioner
as the Chairman. They were essentially official bodies with no popular representation.
Their principal task was to promote welfare measures, for instance, in areas such as
health.
At the first session of the Mysore Representative Assembly in 1882 the Dewan,
Rangacharlu, made a reference to local government and interestingly spoke of the need
for a body at the taluk level. He expressed the view that many problems arose because the
district level was too far away from the grassroots and hence would not be able to
represent the needs of the people. The Representative Assembly, although one of the first
of its kind, was essentially a petitioning body with little legislative competence (an
advance in this direction was made in 1907 when the Legislative Council was
established).
The first legislation on local self-government was in 1902 when the Mysore Local
Boards Act was enacted. This brought into being three classes of local bodies:
Union Panchayats with nominated Chairmen
Taluk boards with Sub-Division Officers as Presidents and Amildars (Tahsildars)

as Vice-presidents
District Boards with Deputy Commissioners as Presidents and one elected

member from each Taluk Board as members.
This may be regarded as the first step in making possible some, admittedly
minimal, popular representation. Given the constraints the powers of these bodies must
have been equally minimal.
Around 1914 Government introduced what came to be known as the Village
Improvement Scheme. It was premised on the belief that village improvement could take
place only with the active co-operation of the villagers themselves. Village Improvement
Committees were set up in each village.
In 1918 a relatively major advance was made. The Mysore Local Boards and
Village Panchayats Act was passed. This law provided for elected representation of half
and two-thirds in District and Taluk Boards respectively. It also provided for non-official
Vice-Presidents in both the bodies. Union Panchayats were replaced by Village
Panchayats who were entrusted with the task of implementing the Village Improvement
Scheme.
833 Village Panchayats and 8334 Village Committees were operating the
scheme.
A state Conference was organized in 1923 with the aim of reviewing the working
of local bodies. This resulted in the enactment of two new legislations, the Mysore
Village Panchayat Act and the Mysore District Boards Act. These two came into effect in
1926. One consequence of the new enactments was that Taluk Boards which had been in
existence for nearly a quarter century were abolished as was the Village Improvement
Scheme.
A two-tier system with the village panchayat and the district board was
instituted. Both the bodies were provided with extensive powers (for the times) and some
independent sources of revenue. However, as is discussed in the text of the report, the
abolition of Taluk Boards was strongly criticized.
Although not the outcome of legislation the Mysore Economic Conference and the
District Economic conference are important innovations of Mysore. The conferences
were organized to provide a forum in which people could express their problems and
officials would have an opportunity to respond to their felt needs. In the very nature of
things as they stood then it would have been unrealistic to expect these Conferences to
subserve a larger democratic purpose. Yet within the framework they were highly
innovative. Above all they recognized the principle that local knowledge was an essential
ingredient of development activity. Equally noteworthy was the office of the District
Economic Superintendent, generally held by official but on occasion knowledgeable local
7
persons was appointed. It should be noted that the prime mover behind these innovations,
M.Visvesvaraya was one of the earliest to formulate a plan for district development.
Running parallel to the local bodies Government kept introducing various
schemes of rural development. They were all introduced by Executive Orders. In 1936,
the Scheme of Concentrated Propaganda was instituted. In each taluk two or three
villages were selected for intensive improvement by the Development departments of
government. They were envisaged as models for others. The scheme brings to mind the
intensive Agricultural District Programmes of the late 1950s. In 1942 the Hobli Drive
was launched. In each district one Hobli was selected with the aim of improving
conditions in villages within that area. For this purpose trained rural workers were
appointed known as Gramasudharakas. This was followed in 1948 by a new Scheme of
Rural Development with the objective of decentralizing powers to non-official bodies. It
was operated by Taluk, District and Central Development Committees which were
specially constituted and given wide powers.
It will be readily appreciated that while Government had a certain degree of
commitment to the welfare of the people- and this earned for the Mysore the title model
state-local government institutions were rarely allowed to function as sole or even
principal agents of development. Throughout we see the search for new institutions which
ran parallel to and in some cases were superimposed upon local government institutions.
It is reported that there was little co-ordination between local government and the
specially created bodies. This should not cause much surprise given that the problem
persists to this day albeit in modified forms. This having been said the theme of
decentralisation was never completely out of the agenda of government.
2.2 Post independence initiatives
The post-independence years witnessed the appointment of two Committees. The
first one chaired by V.Venkatappa which gave its report in 1950 recommended a two-tier
system comprising Group Panchayats and District Boards whose members would be
indirectly elected by the members of the former. While recognizing the need for special
representation to the Depressed Classes (then the name for Scheduled Castes) the
Committee did not favour elections but recommended co-option. A Dalit member
dissented from this part of the report.
The Venkatappa Committees report attracted criticism for not recommending a

taluk level body and for doing away with single village panchayats. There was also
opposition to indirectly elected district boards. Based on this report the Mysore Village
Panchayats and District Boards Act was enacted in 1952. But given the strong opposition
to
the
Committees
recommendations
Government
encountered
problems
in
implementing the Act.

In view of these difficulties Government constituted another committee under the
chairmanship of D.H.Chnadrashekaraiya in 1954. This Committee made a fairly detailed
examination of the working of local government institutions in the state. In its opinion
district Boards had stood the test of time and had made contributions to development. It
also did not agree with the view that there should be non-statutory agencies at the district
level. At least by implication the Committee recognized the political nature of
development processes. After examining the case for and against reviving Taluk boards it
decided in their favour on two grounds, one that in their absence there would be a
yawning gap between the village and the district and that the taluk level body was
essential in representative democracy.
Another significant recommendation was that there should, by and large, be direct
elections to the Taluk Boards although a certain proportion of members were to be
indirectly elected from Village Panchayats and municipalities. Members of District
Boards were to be elected by members of Taluk Boards from among themselves. It
recommended reservation of seats for the Scheduled Castes in proportion to their
population in District Boards and additional seats to ensure representation of women and
other special interest groups.
This report was overtaken by events. The enlarged state was in the offing. At the
national level the Balwantrai Mehta Committee report recommended virtually a two-tier
system. Consequently it was only in 1959 that a new act was enacted, the Mysore Village
Panchayats and Local Boards Act. Under this Village Panchayats were directly elected
but at the district level there was only a non-elected body. Elections under this Act were
held only three times but it continued to be in operation until 1983. Taluk Development
Boards were also formed and were elected. This law provided for reservation of seats by
election for Scheduled Castes and women.
In terms of chronology the next important landmark is the report of the Kondajji
Basappa Committee constituted in 1963.
Hegde was then the minister for Rural
Development. It is likely that he was the moving spirit behind the formation of this
committee. As discussed in the text this Committee made recommendations many of
which were to become the underlying premises of the 1983 Act. There is a noticeable
trend towards political devolution. Based upon this report the Mysore Panchayat Raj Bill
1964 was introduced in the legislature and referred to a Joint Select Committee. After the
JSC reported the Bill was not pursued. However some vitally important points have been
given here as the Bill anticipated the 1983 Act with respect to the following provisions:
Reservation for women (admittedly miniscule)
Constitution of Gram Sabha
Establishment of Nyaya Panchayats
Chief Executive Officers to function subject to Adhyakshas powers
Constituting the State Panchayat Council
As may be seen the after independence local government in the state was
influenced by several important factors. Primary among them was that decentralization
was being attempted in a free and democratic environment. Secondly, in 1956 the
enlarged state of Karnataka was formed. As a result the state had four different sets of
legislation. Mysore was governed by the Mysore Village Panchayats and District Boards
Act, 1952. In the integrated areas the following enactments were in force.
Bombay District Local Boards Act 1923, and Bombay Village Panchayats Act
1923
Madras Boards Act 1930 and Madras Village Panchayats Act 1950
Hyderabad District Boards Act 1956 and Hyderabad Village Panchayats Act 1951
and
Coorg Panchayats Act 1956.
2.2.1 Balwantrai Mehta Committee Report

Politics which were evolving at the national level also exercised their own impact
on developments in the state. The report of the Balwantrai Mehta Committee (1957)
marked a significance phase and heralded the birth of Panchayat Raj.
10
Following from these developments the Mysore (Karnataka) Village Panchayats

and Districts Boards Act 1959 was enacted and continued to be in force until 1983.
2.2.2 Ashok Mehta Committee Report

Its limitations came to be in contrast to many states, in Karnataka Panchayat Raj
functioned quite effectively under the 1959 Act recognized in course of time. The
national environment also began to undergo a change. In 1978 the Ashok Mehta
Committee submitted its report. The Committee distinguished three phases in the story of
Panchayat Raj; phase of ascendancy (1959-64), phase of stagnation (1965-69) and phase
of decline (1969-77).
2.2.2.1 Two tier structure

One of the major recommendations of the Ashok Mehta Committee was that there
should be a two-tier structure with Zilla Panchayats at the district level and Mandal
Panchayats at the lower level. The Committee suggested that where Panchayat Samitis
were in vogue they could continue without direct elections.
An important impetus for Panchayat Raj was the clear statement that the directly
elected element must preponderate over the others at all levels. Reservation for
Scheduled Castes and Scheduled Tribes was also recommended.
2.3 Karnataka: The 1983 Act
This was the basis for the Karnataka Zilla Parishads, Taluk Panchayat Samitis,
Mandal Panchayats and Nyaya Panchayats Act 1983, which came into effect in 1987. In
some significant respects the Act improved upon the Ashok Mehta Committees
recommendations. The driving force behind the legislation and its subsequent
implementation was the indefatigable Minister for Rural Development and Panchayat
Raj, Late Sri Abdul Nazir Sab. He was a visionary among politicians, passionately
committed to the cause of decentralized governance and empowerment of the rural
masses.
2.3.1 Mandal Panchayats

The 1983 Act provided for Mandal Panchayats. Every such Panchayat covered a
cluster of villages with a population between 8000 to 12000. Members were directly
11
elected, one member for a population of 400. From among them the Chairperson
(Pradhan) was elected. There was an Upapradhan also. Significantly the Act provided for
nominating two members from the Other Backward Classes, if none was elected from this
category. The 1983 Act established 2469 Mandal Panchayats in the State in 1987.
2.3.2 Taluk Panchayat Samiti

The Act made the Taluk Panchayat Samiti a purely ex-officio body. It was chaired
by a member of the Legislative Assembly representing the Taluk. The other members
were Pradhans of all the Mandal Panchayats in the Taluk and members of the Zilla
Parishad elected from the Taluk. The Taluk Panchayat Samiti was mainly expected to act
as an advisory body to coordinate the working of the Mandal Panchayats in its
jurisdiction. There were 173 Taluk Panchayats established in the State one for each Taluk
except in the case of 3 Taluks in Bangalore (Urban) District.
2.3.3 Zilla Parishad

The Zilla Parishad consisted of elected members, one for a population of 28000.
In addition, members of Parliament and the Legislative Assembly and Council
representing the district were ex-officio members. The Adhyaksha and Upadhyaksha
were called the Executive Heads of the Zilla Parishad. Out of the twenty districts in the
State at that time, all except Bangalore (Urban) district had Zilla Parishads under the 1983
Act.
2.4 Reservation and Social Justice

Social justice is an avowed objective of Panchayat Raj. To further this, the 1983
Act reserved 25 per cent of the seats in Zilla Parishads for women. Seats were reserved
for Scheduled Castes and Scheduled Tribes in proportion to their population but the
minimum was fixed at 15 and 3 percent respectively.
The first elections were held in January 1987 for 2469 Mandal Panchayats and 19
Zilla Parishads.
Another feature worth noting is the institution of the Gram Sabha.
All institutions of decentralized democracy can work successfully only when two
conditions are present. They are - the institution enjoys adequate financial support and
that its functions are clearly delineated along with the required powers. In both these
respects the 1983 Act distinguished itself.
12
2.5 Transfer of Resources

On 1st April 1987 the Government of Karnataka issued an Executive order. It
transferred 257 plan schemes covering major activities of more than 20 departments to
the Zilla Parishads. Similarly 89 plan schemes were transferred to the Panchayats. The
schemes in the Mandal Panchayat sector were two kinds, one related to those which the
Mandals could implement on their own, the other to those implemented by the Zilla
Parishads in which the Mandals were responsible for planning, selection of beneficiaries
and supervision.
2.6 Financial viability

Under the 1983 Act, Zilla Parishads were not invested with powers of taxation.
While financial autonomy is desirable, certain constraints have to be borne in mind. Not
many elastic sources of revenue are available at that level. In addition, the costs of
collecting revenue should be taken into account. Rather than burden the Zilla Parishad
administration with taxation related tasks with uncertain and/or meager returns, the
Government thought it fit to ensure that they were assured of the resources needed for
discharging the duties entrusted to them.
Zilla Parishads were to receive funds mainly from amounts transferred to them by
the State Government from the consolidated fund. A statutory Finance Commission
appointed by the Government was to recommend the pattern of devolution of finances
from the State Government to the Zilla Parishads and Mandal Panchayats. This was an
innovation introduced in Karnataka later to be adopted throughout the country. Apart
from this, the Government could also make grants, assignments and other contributions to
them in addition to loans. Zilla Parishads were given a per capita grant of Rs.2.50 per
year whereas for Mandal Panchayats it was Rs.7.50. The latter were empowered to levy,
collect and appropriate certain fees and taxes.
2.7 Functions and Powers

Financial viability apart, equally important is the question of functions and
matching powers. Zilla Parishads were entrusted with the task of development planning at
the district level. This affirmed the importance of planning at levels below the state. Also
it emphasized the need to involve people in making choices, activity crucial to
13
development. And it is well established that choices are easier to make when there is a
high degree of familiarity and involvement.
At the level of detail, the Zilla Parishads and mandal Panchayats were given an
impressive range of functions. These related to the sectors and activities of Agriculture,
Animal Husbandry, Horticulture, Primary and Secondary Education, Public Health,
Women and Child Development, Welfare of Scheduled Castes and Scheduled Tribes,
Public Distribution System, Irrigation and Ground Water Resources, Roads, Buildings
and Rural Water Supply, Village and Cottage Industries and many other functions which
were vital to the development of rural areas.
In the allocation of functions, the Act based itself upon two important premises.
Only those duties / functions which are appropriate to a particular level of governance
should be delegated. Further, what can be accomplished at a certain level should not be
assigned to a higher level. Decentralisation does not mean negation of the existence of
different hierarchical levels.
2.8 Staffing Pattern

Units of governance such as Zilla Parishads/Mandal Panchayats required a third
pillar of support. They were assured of financial resources as also delegated power. They
still required personnel who had a sense of belonging with the institution. Keeping this in
view the State Government transferred almost the entire staff of twenty departments to
the control of the Zilla Parishads. This was to ensure that administrative control and
responsibility for implementation went together. To emphasise this each Zilla Parishad
had its own Secretariat. It was headed by an officer, generally senior to the Deputy
Commissioner of the district. He was designated Chief Secretary of the Zilla Parishad.
These were major innovations, and all new initiatives face teething problems.
Considering this it is pleasantly surprising that too many difficulties did not arise. The
K.S. Krishnaswamy Committee which reviewed the performance of Zilla Parishads and
Mandal Panchayats felt satisfied that the new system showed resilience.
The Act also provided for the institution of the Grama Sabha. It was designed to
monitor the performance Mandal Panchayats.
14
3. The 73rd and 74th Constitutional Amendments

The 1983 Act was substantially altered principally to incorporate the 73rd and 74th
amendments to the Constitution. The most far reaching effect of these amendments is to
guarantee a Constitutional position to Panchayat Raj Institutions (PRI). As a result
elections to PRIs at regular intervals are made mandatory. The 73rd Amendment mandates
that, with a few exceptions, Panchayat Raj should have a three tier structure at the
Village, Taluk and District levels. The 74th Amendment exercises its own influence on
PRIs although it is primarily concerned with local government institutions at the urban
level. That is dealt with later.
3.1 PRIs as Constitutional entity - The 1993 Act

In the wake of the 73rd Amendment to the Constitution, Karnataka enacted a new
legislation, the Karnataka Panchayat Raj Act that came into force from 10th May 1993.
This Act, while not fundamentally different from the 1983 Act, has certain new features.
3.2 Structure
First, there is now an elected three tier structure of local government. The tiers are
the Gram Panchayat, Taluk Panchayat and Zilla Panchayat. Under the 1983 Act the
institution at the Taluk level was purely ex-officio. The Act also provides for a Gram
Sabha.
The Gram Sabha is the foundation of the structure. It consists of all those
registered in the electoral rolls in Gram Panchayat. It meets twice a year. The Gram
Sabha is enjoined with the review of the accounts and the performance of the Gram
Panchayat. It has the responsibility of considering the development programmes proposed
by the latter. In addition it identifies beneficiaries under poverty alleviation and
development programmes. It would rightly be regarded as a pillar of local democracy. It
enables people to evince the most direct interest in the development of the village.
To enable the people to further effectively articulate their needs, Ward Sabhas
have been constituted blow the Gram Sabha for each Gram Panchayat constituency. The
proposals are built up in the Ward Sabhas and finalization of plans and selection of
beneficiaries is done at the Gram Sabha.
15
3.3 Gram Panchayat

3.3.1
Functions
The Act specifies the functions of Gram Panchayats in Schedule 1. Principal

among them are:
Preparing annual plans for the area as also the annual budget
Promotion of agriculture and horticulture
Promoting animal husbandry, dairying, poultry, fisheries
Afforestation
Rural and cottage industries
Maintenance of drinking water schemes
Distribution of house sites
Promoting non-conventional energy schemes
Selection of beneficiaries for poverty alleviation programmes through the Gram
Sabha
Promotion of adult literacy, ensuring full enrollment and attendance in primary
schools
Maintenance of rural sanitation
Watershed development programmes
Wasteland development programmes
Libraries
Monitoring the public distribution system
3.3.2 Staff
The staff of the Gram Panchayat is headed by the Panchayat Development Officer
(PDO), who is a Government Servant. The Panchayat can appoint staff with the approval
of the Chief Executive Officer of the Zilla Panchayat. The core staff consists of those
previously employed in Mandal Panchayats.
The Karnataka Panchayati Raj Act provides for Standing Committees at all levels.
Every Gram Panchayat has the following Committees.
Production Committee: functions relate to agricultural production, animal husbandry,

rural industries and poverty alleviation programmes. The Adhyaksha is the Chairman.
16
Social Justice Committee: concerned with the promotion of educational and other
interests of the Scheduled Cases, Scheduled Tribes, Backward Classes and welfare of
women & children.
The Upadhyaksha of the Gram Panchayat is the Chairman of this committee.
Amenities Committee: Functions include education, health and public works. The
Adhyaksha is the Chairman.
Each committee has to have not less than three and not more than five members.
The Social Justice Committee should have at least one woman member and one
belonging to the Scheduled Castes or Tribes. The Upadhyaksha is the Chairman.
Committees have the power to co-opt members.
3.4 Taluk Panchayat

Unlike under the 1983 Act, the present Taluk Panchayat is an elected body. This
follows from the 73rd Amendment to the Constitution which requires elections to
Panchayats at all levels. Members are elected on the basis of one member for every
10,000 population. The state has 176 Taluk Panchayats.
3.4.1 Functions
An important duty of the Taluk Panchayat is to prepare an annual plan for the
Taluk. The Gram Panchayats plans are integrated into the Taluk Panchayat Plan. The
Taluk Panchayats plan is submitted to the Zilla Panchayat, which integrates it with the
District Plan.
Other functions include:
Preparation of the annual budget
Promotion and development of agriculture
Training and extension for farmers
Construction and maintenance of minor irrigation works and implementing

community / individual irrigation works
Maintenance of animal husbandry services
Rural water supply schemes
Promoting social forestry

17
Construction and maintenance of public roads/means of communications
Poverty alleviation programmes
Primary education
Promotion of programmes for health, family welfare, development of women and

children
The Taluk Panchayat has the following Standing Committees.
General
Standing
Committee:
mainly
deals
with
establishment,
buildings,
communications, rural housing, calamity relief, water supply etc. The Upadhyaksha is the
Chairman.
Finance, Audit and Planning Committee: functions with respect to framing the Budget,
issues relating to revenue, small savings and development planning. The Adhyaksha is the
Chairman.
Social Justice Committee: Principal concerns are promotion of the welfare of the
Scheduled Castes, Scheduled Tribes, Backward Classes and the welfare of women &
children and the weaker sections. This committee elects its own Chairman. It has to have
at least one member and one from either the Scheduled Castes or Scheduled Tribes
whichever category has more elected members.
The maximum number of members in each Committee is six including the
Chairman.
3.4.2 Staff
The staff of Taluk Panchayats is headed by the Executive Officer who is
appointed by the Government and is a Group A officer. The Executive Officer functions
as the Secretary of the Taluk Panchayat. In addition he monitors all development
activities of the Panchayat. One of his critical duties is to advise the Taluk Panchayat with
regard to the inconsistency of any proposal under the provision of the Act.
3.5 Zilla Panchayat

At the apex of the Panchayat Raj system stands the Zilla Panchayat. There are 27
Zilla Panchayats established in the State to covering all the 27 districts.
18
3.5.1 Functions
As the apex body at the district level the Zilla Panchayat is charged with the task
of preparing the district plan. It integrates the plans prepared by the Taluk Panchayats and
incorporates them into the district plan. The State Government informs the Zilla
Panchayats of the overall size of its plan. Within the limit indicated the Zilla Panchayat
has autonomy to allocate the resources to areas, which in its view command priority.
Given the size of territorial jurisdiction, the Zilla Panchayat has to perform a wide
range of functions. Virtually all the functions assigned under Schedules I and II of the
1993 Act to Gram Panchayats and Taluk Panchayats also figure in Schedule III, which
specifies the duties of the Zilla Panchayats. The most important among them is that the
Zilla Panchayats should perform a coordinating role. Some of its functions are listed
below:
Construction and maintenance of roads, bridges and other buildings
Establishment and maintenance of agricultural, horticultural and commercial
farms
Construction of Rural Water Supply Works
Co-ordinating implementation of poverty alleviation and rural employment
programmes
Establishment, maintenance and management of secondary schools
Management of hospitals and dispensaries
The Zilla Panchayat has five standing committees. They are:
a. General Standing Committee Upadhyaksha
b. Finance, Audit and Planning Committee Adhyaksha
c. Social Justice Committee
d. Education and Health Committee
e. Agriculture and Industry Committee
Each Committee has a maximum of seven members. They are from among the
members of the Zilla Panchayat. The Adhyaksha is the Chairman of the Finance, Audit
and Planning Committee. The Upadhyakasha is the Chairman of the General Standing
Committee.
The other committees elect their Chairmen.
19
3.5.2 Staff
The staff of the Zilla Panchayat is headed by the Chief Executive Officer. His
rank is not below that of the Deputy Commissioner of a district. The staff is on deputation
from the State Government.
3.6 The recent amendments to the Karnataka Panchayat Raj Act

After considerable debate and consideration by a Joint Select Committee of the
legislature, 47 amendments were unanimously adopted by the legislature and came into
force in October 2003. The twin objective of these amendments was to facilitate peoples
participation as well as make PRIs more accountable to them. The major features of these
amendments are as follows:
3.6.1 Enhancing the quality of peoples participation through greater Empowerment

of Gram Sabhas and Ward Sabhas
The amendment provides for establishing a two-tier system for effective and
greater peoples participation viz., Ward Sabhas for each constituency in the Gram
Panchayat and Gram Sabhas at the Panchayat level. Gram Sabhas and Ward Sabhas are
enjoined to meet at least twice a year, respectively.
3.6.2 Defining powers and responsibilities of the Gram Sabha with clarity
Ward Sabha and Gram Sabhas have been strengthened by giving several
mandatory powers, including mandatory identification and prioritization of beneficiaries
for all government programmes, mandatory approval of developmental plans, generating
proposals and determining priority of schemes, identifying deficiencies in water supply,
locating street light arrangements, promoting adult education and preventing social evils.
3.6.3 Bring in transparency and accountability in the functioning of PRIs

Under the new legislation, Taluk and Zilla Panchayat members shall declare their
assets and lodge accounts of election expenses. False or incorrect declaration of assets, or
failure to declare and lodge election expenses would invite disqualification. All PRI
members shall now have to disclose to the panchayat any conflict of interest, in case they
have a personal pecuniary interest in a Panchayat action or sub-contract. Within 72 hours,
meeting proceedings will now have to be displayed on the Gram Panchayat notice board
20
along with the details of the names of the members voting respectively for or against the
resolutions decided upon in the said meeting. This is an important amendment. Through
mandatory disclosure of the voting pattern of members, the possibility of a few dominant
members dictating terms to the Gram Panchayats is reduced. Other members cannot hide
behind consensus.
The details of these amendments are as follows:
Frequency of Gram Panchayat meetings to be increased from once in two months

to once a month.
Greater freedom given to PRIs to form joint committees among themselves to

pursue common objectives.
PRI Members to disclose any pecuniary interest that he has in any question
coming up for consideration at the concerned PRI meeting.
Taluk Panchayat and Zilla Panchayat members to declare their assets; cessation of
membership for filing false or incorrect declaration.
Taluk Panchayat and Zilla Panchayat members to maintain election expenses

accounts; failure to lodge them to attract disqualification.
PRI proceedings to be made public, along with who voted for or against, within 72
hours.
Quorum for PRI meetings to be fixed at 50 percent of the total number of

members.
3.6.4 Administrative strengthening of Gram Panchayat
Gram Panchayat Adhyakshas to become Executive Heads of the Gram Panchayat

as in the case of Taluk and Zilla Panchayats.
Panchayat Development Officers have been appointed for all the Gram
Panchayats
Power given to Gram Panchayats for outsourcing services of technical staff.
3.6.5 Fiscal strengthening of Gram Panchayats

The Minimum Statutory Grant provided under Sec. 206 of KPR act per Gram
Panchayat has been fixed at Rs.8 lakh.
21
3.6.6 Giving greater flexibility to PRIs to plan and prioritise within their spheres
In parallel with the amendments, two initiatives have been undertaken in order to
ensure that PRIs are effectively enabled to work with greater freedom. These are through
coming out with a role mapping matrix for the three PRI spheres and rationalizing and
doing away with redundant and fragmented schemes.
3.6.7 Gram Panchayat accounts, audit and works manual

A new Accounts, Audit and Works manual designed keeping in mind the
functions of the Gram Panchayats has been prepared and issued in the form of Gram
Panchayat Budget and Accounts Rules 2006.
22
4. Legislative devolution of functions in Karnataka

Devolution to PRIs in Karnataka as per the 1983 Act was matched by several
administrative reforms. On the fiscal side, a district sector was carved out of the state
budget to match functional assignment. A State Finance Commission was set up. Deputy
Commissioners were divested of their development responsibilities and officers senior to
them were posted as Chief Secretaries of Zilla Parishads. With approval from the GOI,
DRDAs were merged with the ZPs. The Chief Secretaries of ZPs were accountable to the
ZP. Their CRs were written by the ZP Adhyaksha. The system resulted in a radical and
fundamental shift in the power structure, both amongst politicians and bureaucrats.
In 1992, when ZP and Mandal terms ended, elections were postponed and Deputy
Commissioners were appointed as administrators of the ZPs. Meanwhile, in a policy
turnaround, officers junior to the DCs were posted as CSs, thus restoring status quo as to
who was the de-facto head of the district.
In 1993, immediately after the Constitutional Amendment, Karnataka passed its
Panchayat Raj Act, which was largely modeled on the 1987 act, except that it introduced
an elected intermediate tier. The KPR Act passed on all 29 functions to Panchayats.
Through the Karnataka Panchayat Raj Act 1993, the State has devolved all 29
functions included in the Eleventh Schedule of the Constitution, to the three levels of
Panchayats through inclusion in the Schedules 1, (pertaining to Grama Panchayats),
Schedule 2, (pertaining to Taluk Panchayats) and Schedule 3, (pertaining to Zilla
Panchayats).
As can be seen in the abstract, out of 29 matters in the 11th Schedule, certain
powers and responsibilities in respect of 29 matters has been devolved to ZPs, in 28
matters to Taluk Panchayats and in 25 matters to GPs, through the State Panchayat Raj
Act. Those matters listed in the Eleventh Schedule in respect of which no activities have
been devolved to the Panchayats at the respective levels are listed in the Table below:
Gram Panchayat
Taluk Panchayat
Land improvement,
implementation of
land reforms, land
23
Zilla Panchayat
consolidation and
soil conservation
Minor
irrigation,
water management
and
watershed
development
Small
Industries
Scale Small Scale Industries
Technical training
and
vocational
education
The general features of the functions devolved to the Panchayats at all levels
through the legislation along with the extent to which these are being followed are
discussed in the subsequent sections.
In Karnataka, the legislative pattern of devolution has been through operative
sections. The details of the operative sections are given below:
Level
Operative section of the

PR Act,
containing
Remarks
provisions on devolution
of powers
Gram Panchayat
Schedule I read with

Sector-wise functions
Section 58 of the PR Act
Panchayat Samitis
Schedule II read with

Zilla Panchayats
Schedule III read with

As regards the other aspects of the pattern of legislative devolution in Karnataka,

the manner of elaborately and systematically stating out what is to be done by each level
of Panchayat in the Act and the Schedules is a good practice as it provides clarity and in a
sense, represents a level of activity mapping captured in the act itself.
24
The legislation is most detailed in respect of Gram Panchayats. The powers of the
Panchayats are laid out elaborately and cover more of civic functions in the Sections of
the law. However, Schedule I of the Act, while it gives Grama Panchayats powers in
respect of most matters listed in the Eleventh Schedule, in many of these the provisions
are laid out only in a broad and enabling manner and requires elaboration through activity
mapping. .
Schedule II of the Panchayati Raj Act laying down functional allocations to Taluk
Panchayat is much more detailed and specific and in respect of many of the activities, it
goes beyond the aspect of promotion activities covering the planning and implementation
functions also. Thus, under the law, Taluk Panchayats have specific role of construction
and maintenance of agriculture seed farms, horticultural nurseries, training of farmers
and
extension
captivities,
propagation
of
improved
methods
of
cultivation,
implementation of community and individual works aspects, animal husbandry services,

planting of trees, housing schemes, establishment, preparation and maintenance of rural
water supply schemes, construction of roads, maintenance of buildings, implementation
of poverty alleviation programmes and maintenance of community areas vested in it. On a
comparative scale, Schedule II of the Act is more concrete and specific than Schedule I.
In respect of Zilla Panchayats, the Schedule is not as clear and specific in respect
of the activities of the Zilla Panchayats, particularly to the same extent as is done in
respect of Taluk Panchayats. However, it may be seen that the three Schedules
themselves do undertake modicum of separation of the activities within some functions,
Therefore, where TPs and ZPs have been given implementation responsibilities, ZPs have
been given promotional role and similarly where the ZPs are the planning, implementing
agencies, the GPs and TPs are to undertake promotional activities. So, the law makes
some effort, though not complete, for coordination between various levels of Panchayats.
In conclusion, it may be said that the Karnataka legislation is simple and clear in
terms of the activities that are assigned to the Panchayats. Individual sections and the
Schedule lay out certain responsibilities crisply, particularly in respect of the civic
functions of GPs and the planning and implementation functions of the Zilla Parishads
and Panchayat Samitis.
25
5. Fiscal devolution to Panchayats:

In contemporary analysis of devolution reference is frequently made to the three
Fs, namely, functions, finances and functionaries. The test is to ascertain the degree of
autonomy with which these three components are made available to PRIs.
By
implication the success of decentralization is thought to be dependent on whether PRIs

have access to adequate resources as well as the staff who are required to carry out the
functions assigned to each tier in the system. Also considered is the specificity in the
delegation of functions to Panchayats. In addition Art.243(I) makes it incumbent upon
states to constitute a quinquennial Finance Commission to review the financial position of
the Panchayats and to make recommendations to the Governor as to
i)
the principles which should govern the distribution between the State
and the Panchayats of the net proceeds of 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)
the determination of the taxes, duties tolls and fees which may be
assigned to or appropriated by the Panchayats;
iii)
the grant-in aid to the Panchayats from the Consolidated Fund of the
State;
b) the measures needed to improve the financial position of the Panchayats;

c) any other matter referred to the Finance Commission by the Governor in the
interests of sound finance of the Panchayats
In a broad sense this is similar to the quinquennial Finance Commission that the
President has to constitute for determining the sharing of revenue between the Centre and
the States. There are, however, some differences. Consider Art 280 which mandates the
constitution of the Finance Commission by the President. It states, inter alia, as follows:
It shall be the duty of the Commission to make recommendations to the
President as to
a) the distribution between the Union and the States of the net proceeds
of taxes which are to be, or may be, divided between them, under
this chapter
26
In contrast the Commission constituted under Art 243(I) is to concern itself only
with the proceeds of taxes etc which may be divided between the States and
Panchayats. This results from the fact that the Constitution does not provide for taxes
etc which are to be compulsorily shared between the States and Panchayats while this is
provided for between the Union and the States. It may be noted that the National
Commission to Review the Working of the Constitution has not suggested any major
overhaul in financial relations between the union and the states or between the latter and
Panchayats. The important recommendations of the State Finance Commissions in
Karnataka is given in the subsequent section.
One of the features of the Panchayati Raj legislation of Karnataka is that it
provides for the mandatory transfer of untied funds to Panchayats. This is most
unequivocally done in respect of Gram Panchayats, through Section 206 of the KPR Act.
The Section states that the Government shall make annually a grant of not less than eight
lakh rupees to each Gram Panchayat which shall be utilized for meeting the electricity
charges, maintenance of water supply schemes, sanitation and other welfare activities. No
part of this grant shall be spent towards establishment expenses not related to the
aforesaid purposes. The corresponding section in respect of Zilla Panchayats and Taluk
Panchayats is Section 207. The Section states that the Government shall make a grant to
every Taluk Panchayat and Zilla Panchayat to cover the expenses of establishment at such
scale as may be determined by it.
5.1 Constitution of State Finance Commission

As per the provisions of the Constitution Amendment, the state has been
constituting the State Finance Commissions on a regular basis to look into issues related
to devolution of funds from the state to the PRIs, both rural and urban local bodies. The
highlights of the formula evolved by the SFC in the state is given below:
Highlights of SFC Recommendations in Karnataka
Formula as per First
State Finance commission
(1996) - Karnataka
Formulas as per Second

Finance Commission
(Karnataka) (2001)
27
Formula as per Third

State Finance
Commission (2006)
Karnataka
Weightages:
Weightages:
Population = 33.3 %
Population
Geographical Area = 33.3

%
Geographical Area = 30
%
Backwardness
Backwardness = 40 %
= 33.3 %
(Seen in terms of road

length, hospital beds and
illiteracy).
------------------Total = 100
-------------------
Weightages:
= 30 %
(Seen in terms of road

length, hospital beds and
illiteracy).
---------------Total =100
----------------
Population
= 40 %
Geographical Area = 40 %
SC & ST Population = 10
%
Illiteracy
= 10 %
---------------Total =100
----------------
Karnataka had put in place a system of a District Sector in the State budget,
which is in effect a Panchayat window, with effect from 1987. The Budget is also
accompanied by a link book, which gives the details of how the allocations are further
separated district wise. Thus each Zilla Panchayat knows how much funds is to come to
Panchayats as a whole in the district. However, over a period of time, the district sector
budget became very cumbersome, because of the large number of line items. Following
the issuing of the Activity Mapping framework devolving functions, steps were taken to
ensure a matching devolution of finances and functionaries, through appropriate changes
in the District sector:
The extent of devolution of funds to Panchayats in Karnataka is substantial,
compared to other States. Between 1987 to 2009-10, while there has been an increase in
the overall allocation to Panchayats, these allocations constitute a proportional decline as
a percentage of the States budget. This is because several schemes that ought to have
been placed in the district sector began to be carried out under the State sector which
is directly implemented by the respective line departments. However from 2004-05
onwards, there has been a quantum jump in the allocation of funds to Panchayats at all
levels in Karnataka. This has been undertaken through the following processes:
28
5.2 Rationalisation of Schemes
This process of making PRIs accountable for their specific roles is also tied up
with the initiative on rationalization of schemes. The rationalization of schemes has
resulted in a reduction in their number operated by the PRIs, thereby giving them greater
flexibility to address their priorities. The details of the rationalization that has been
adopted is as follows:
(No. of schemes)
Prior to rationalization After rationalization
Plan
399
221
Non Plan 255
114
Total
335
654
5.3 Increasing the Statutory Grants to PRIs

The Government has aimed to give Gram Panchayats more untied funds so that
they can perform their functions effectively. In 1993, the Statutory Development Grant
going to Gram Panchayats was only Rs. 1 lakh. This was progressively increased to
Rs.2.00 lakh to each Gram Panchayat. This was further increased to Rs.3.5 lakh. In 2003,
through an amendment to the law, the minimum Statutory Development Grant has been
fixed at Rs.5 lakh per Gram Panchayat. From the current financial year the statutory grant
for each of the Gram Panchayat in the state has been enhanced to Rs.8 lakhs.
5.4 Direct releases of funds to Gram Panchayats

In order to streamline fund flow to the Gram Panchayats, a mechanism of direct
releases of Government devolutions through Banks has been put into place. This will
protect the Gram Panchayats from Treasury bans and make the entire releases to them
transparent. In future, no at source-cuts will be made in the amounts going to the Gram
Panchayats, because we have put our faith and trust in them, that they will pay their bills,
including electricity bills on their own. The arrangement for making direct releases
through Banks involves six nationalized banks and 12 Grameen Banks. Since the system
came into force in November 2004, untied funds and the Finance Commission Grants
have been made through this system.
29
5.5 Improving the finances of Gram Panchayats by greater emphasis on the

collection of revenues
Guidelines standardizing the rules for all Gram Panchayats for collection of
property taxes were issued in May 2003. A process of evaluation of tax that was
transparent and allowed people to participate in the tax determination process was put
into place. Property lists were publicized and made available on notice board for
inspection. The biggest gain was a 30 percent increase in the number of properties
enumerated to tax. After the systematic enumeration of taxes and cesses, there has been
increase in the properties registered and assessment tax and cess. The following gives the
picture of before and after revision of tax.
Data for 176 Taluks

Before revision After revision
No. of Properties (lakhs) 74.16
104.47
(Rs. in crore)
Property Tax
37.86
86.25
Health Cess
6.00
13.56
Education Cess
4.10
9.66
Library Cess
2.45
9.35
Water Cess
16.07
49.33
Street light Cess
7.01
19.23
Professional Tax
1.02
3.07
Other Tax
6.45
8.53
Total
80.96
198.98
Gram Panchayats have collected taxes in accordance with the systematized

demand. The collection has risen significantly over the years.
30
6. Activity Mapping
Karnatakas PRI legislation, the Karnataka Panchayat Raj Act 1993 has
transferred all the subjects listed in the Eleventh Schedule of the Constitution to the PRIs.
However, the challenge is to make the legislative transfer more meaningful, by ensuring
that distortions that have crept in through departmental scheme guidelines are removed. A
significant step in this direction has been taken through formally issuing a detailed
activity mapping for each PRI tier with the approval of the Cabinet. The new activity
mapping framework has a significant impact on how line departments function.
Delegation of functions are accompanied to a certain extent by devolution of finances and
functionaries also.
Karnataka was the first State to undertake Activity Mapping after consideration of
the report of the Task Force constituted by the Union Ministry of Rural Development
dated August 2001. First, the Working Group on decentralization, constituted by the State
Government examined the Activity mapping matrix. After its recommendations were
considered by the Cabinet, the Activity Mapping Framework was issued as a Government
Order in August 2003 (Notification No: RDP.367.ZPS.2002 dt. 18-08-2003). Broadly, the
Activity Mapping positions the Zilla and Taluk Panchayat as planners, facilitators and owners of
common executive machinery, Gram Panchayats as the cutting edge of local service provision and
Gram and Ward Sabhas as instruments of downward accountability.
Activity Mapping of Karnataka has been done through a process of compromise,

so there is some level of concurrency in devolution of functions. However, there is a
conscious effort to operationalise it as also to give wide publicity to Activity Mapping.
The activity mapping undertaken by Karnataka along with devolution of funds
and functionaries has been analysed separately for each level of Panchayat in the table
below:
31
6.1 Assigned Functions, Funds and Functionaries to PRIs in Karnataka

Sl.No in
11th
Matters in 11th Schedule
Schedule
Functions
Planning
&
Supervision Promotion
Implementation
Agriculture including agriculture extension
Yes
land improvement, implementation of land reforms, land

consolidation and soil conservation
Yes
Minor irrigation, water management and watershed

Yes
development
Yes
Animal Husbandry, dairying and poultry
Yes
Fisheries
Yes
Yes
Social Forestry
Yes
Yes
Yes
Small Scale Industries
Yes
Khadi, village and Cottage Industries.
Yes
32
Funds Functionaries
Yes
Yes
Yes
10
Rural Housing
Yes. Selection of
Yes
Beneficiaries??
Yes
Yes
Yes
11
Drinking Water
Yes
Yes
Yes
Yes
12
Fuel and fodder
Yes
13
Roads, culverts, bridges, ferries, waterways and other

Yes
means of communication
14
Rural Electrification
15
Non Conventional energy resources
16
17
Education including primary and secondary schools
18
Technical training and vocational education
19
Adult and non-formal education
20
Libraries
Yes
21
Cultural activities
Yes
Yes
22
Markets and fairs
Yes
Yes
23
Health and sanitation including hospitals primary health
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
33
Yes
Yes
centers and dispensaries

24
Family welfare
25
Women and child development
26
Social welfare including welfare of the handicapped and

mentally retarded
27
Welfare of the weaker sections and scheduled castes and

scheduled tribes
28
Public distribution system
29
Maintenance of community assets.
Yes
Yes
Yes
Yes
Yes
34
Yes
Yes

Sl.No in
11th
Schedule
Functions
Planning
&
Implementation
Yes

Yes

Yes
development
Yes
Fisheries
Yes
Social Forestry
Yes
10
Rural Housing
Yes
Funds Functionaries
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
35
Yes
Yes
Yes
Yes
11
Drinking Water
12
Yes
Yes
Yes
Yes
Fuel and fodder
Yes
Yes
Yes
13

Yes
Yes
14
Rural Electrification including distribution of electricity.
Yes
15
Yes
16
Yes
17
Yes
18
Yes
19
Yes
20
Libraries
Yes
21
Cultural activities
Yes
22
Markets and fairs
23
Health and sanitation including hospitals primary health Yes

24
Family welfare
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
36
Yes
Yes
Yes
Yes
25
26

mentally retarded
27

scheduled tribes
28
29
Yes
Yes
Yes
Yes
Yes
37
Yes
Yes
Yes
Covered under Welfare

of the weaker sections
and scheduled castes
and scheduled tribes
Yes
Yes

Sl.No in
11th
Schedule
Functions
Funds
Functionaries
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Planning
&
Implementation
Yes

Yes

Yes
development
Yes
Yes
Yes
Yes
Fisheries
Social Forestry
Yes
Yes
Yes
Yes
Yes
Yes
38
Yes
Yes
Yes
Yes
Yes
10
Rural Housing
Yes
Yes
11
Drinking Water
Yes
Yes
Yes
Yes
12
Fuel and fodder
Yes
Yes
Yes
13

Yes
Yes
Yes
Yes
14
Rural Electrification including distribution of electricity.
Yes
15
Yes
Yes
16
Yes
Yes
Yes
Yes
17
Yes
Yes
Yes
Yes
18
19
20
Libraries
Yes
21
Cultural activities
Yes
22
Markets and fairs
Yes
Yes
Yes
Yes
Yes
39
Yes
Yes
Yes
23
Health and sanitation including hospitals primary health

Yes
24
Family welfare
Yes
25
Yes
26
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes

Yes
mentally retarded
Yes
Yes
Yes
27

Yes
scheduled tribes
Yes
Yes
Yes
28
29
Yes
40
6.2 The details of activities identified for the three tiers of panchayat raj institutions in the state are as follows:
Serial Matter
No.
1 Agriculture,
including
agricultural
extension
1 Agriculture,
including
agricultural
extension
Schedule III
of the PR Act
read with
Section 184.
III (II)
III (II)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension and
horticulture
(1) Promotion of
measures to
increase
agricultural
production and to
popularise the use
of improved
agricultural
implements and
the adoption of the
improved
agricultural
practices.
(2) Opening and
maintenance of
agricultural and
horticultural farm
sand commercial
farms.
Agriculture,
including
agricultural
extension and
horticulture
41
Activities
Increasing Agricultural
Production
Credit
Extension support
Soil Testing:
Risk management:
Assessment and
Distribution of Inputs:
Post-harvest management:
Remarks
Serial Matter
No.
1 Agriculture,
including
agricultural
extension
Schedule III
of the PR Act
read with
Section 184.
III (II)
1 Agriculture,
including
agricultural
extension
III (II)
1 Agriculture,
including
agricultural
extension
III (II)
1 Agriculture,
including
agricultural
extension
III (II)
2 land
improvement,
implementation
of land reforms,
land
consolidation and
soil conservation
III (III)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension and
horticulture
Agriculture,
including
agricultural
extension and
horticulture
Agriculture,
including
agricultural
extension and
horticulture
Agriculture,
including
agricultural
extension and
horticulture
land
improvement
and soil
conservation
(3) Establishment
and maintenance
of godowns.
Activities
Remarks
(4) Conducting
agricultural fairs
and exhibitions.
(5) Management of
agricultural and
horticultural
extension and
training centres.
(6) Training of
farmers.
Planning and
implementation of
land improvement
and soil
conservation
programmes
entrusted by the
42
Soil Conservation:
No specific duty has

been assigned and is
open ended stating to
carry programmes that
are entrusted by the
government.
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
Title
Activities
Clause/Subsection
Remarks
Government.
3 Minor irrigation,
water
management and
watershed
development
III (IV)
Minor
irrigation, water
management
and watershed
development
(1) Construction,
renovation and
maintenance of
minor irrigation
works.
3 Minor irrigation,
water
management and
watershed
development
III (IV)
3 Minor irrigation,
water
management and
watershed
development
III (IV)
Minor
irrigation, water
management
and watershed
development
(2) Providing for

the timely and
equitable
distribution and
full use of water
under irrigation
schemes under the
control of the Zilla
Panchayat.
Minor
(3) Watershed
irrigation, water development
management
programmes.
and watershed
development
43
Development of MI
system, drainage system,
water harvesting
structures and water
management
Water Management:
Watershed development
Under activity mapping

only ZP has been
entrusted for the
development of MI
water harvesting
structures and water
management.
Serial Matter
No.
3 Minor irrigation,
water
management and
watershed
development
4 Animal
husbandry,
Dairying and
poultry
4 Animal
husbandry,
Dairying and
poultry
4 Animal
husbandry,
Dairying and
poultry
4 Animal
husbandry,
Dairying and
poultry
Schedule III
of the PR Act
read with
Section 184.
III (IV)
III (V)
III (V)
III (V)
III (V)
Title
Clause/Subsection
Minor
irrigation, water
management
and watershed
development
Animal
husbandry,
Dairying and
poultry
(4) Development
of ground water
resources.
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
(1) Establishment
and maintenance
of taluk and village
veterinary
hospitals, first-aid
centres and mobile
veterinary
dispensaries.
(2) Improvement
of breed of cattle,
poultry and other
live-stock.
(3) Promotion of
dairy farming,
poultry and
piggery.
(4) Prevention and
epidemics and
contagious
diseases.
44
Activities
Development of livestock
Veterinary Services
Feeding and Fodder
including support during
droughts
Dairy Development
Poultry Development:
Remarks
Serial Matter
No.
5 Fisheries.
Schedule III
of the PR Act
read with
Section 184.
III (VI)
Title
Clause/Subsection
Fisheries.
(1) Development
of fisheries in
irrigation works
vested in the Zilla
Panchayat.
Activities
5 Fisheries.
III (VI)
Fisheries.
5 Fisheries.
III (VI)
Fisheries.
6 Social forestry
and farm forestry
III (XI)
Minor forest
produce and
fuel and fodder
(2) Promotion of
inland, brackish
water and marine
fish culture.
(3) Implementation
of fishermen's
welfare
programmes.
(1) Promotion of
social and farm
forestry, fuel;
plantation and
fodder
development.
45
Remarks
Developing of Inland
Fisheries Development of
Marine fisheries
Development of
Marketing Processing
Infrastructure
Welfare Measures

ZP has been entrusted
with most of the
responsibilities including
promotion of group
insurance schemes for
fishermen.
Social forestry and Farm

Forestry
Under State's PR Act it is

covered under the
subject of Minor forest
produce and fuel and
fodder. However, under
activity mapping ZP has
been assigned activities
like social forestry and
farm forestry and
marketing of fuel/fodder
and timber.
Serial Matter
No.
7 Minor forest
produce
Schedule III
of the PR Act
read with
Section 184.
III (XI)
Title
Clause/Subsection
Minor forest
produce and
fuel and fodder
(1) Promotion of
social and farm
forestry, fuel;
plantation and
fodder
development.
(2) Management
of minor forest
products of the
forests raised in
community lands.
(3) Development
of wetland.
7 Minor forest
produce
III (XI)
Minor forest
produce and
fuel and fodder
7 Minor forest
produce
III (XI)
8 Small scale
industries
including food
processing
industries
III (VIII)
Minor forest
produce and
fuel and fodder
Small scale
industries
including food
processing
industries
Promotion of small
scale industries.
Activities
46
Remarks
Regeneration of MFP
species
Training
MFP Collection
Processing, and marketing
charges
Industrial resource
potential survey
Development of
Infrastructure
Credit and financial
assistance from various
Government Departments
and Agencies
The State's PR Act is

quite vague but under
activity mapping good
number of activities
namely Industrial
resource potential
survey, development of
infrastructure and credit
and financial assistance
from various government
departments and
agencies have been
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
Title
Activities
Clause/Subsection
Remarks
assigned to ZP.
9 Khadi, village
and Cottage
Industries.
III (VII)
Khadi, village
and Cottage
Industries.
(1) Promotion of
rural and cottage
industries.
9 Khadi, village
and Cottage
Industries.
III (VII)
Khadi, village
and Cottage
Industries.
(2) Establishment
and management
of training-cumproduction centres.
47
Planning, Monitoring and

Supervision Training
Skill development and
Transfer of technology to
beneficiaries
Infrastructure
Development
support
and Agencies
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
III (VII)
Title
Clause/Subsection
Khadi, village
and Cottage
Industries.
9 Khadi, village
and Cottage
Industries.
III (VII)
Khadi, village
and Cottage
Industries.
10 Rural Housing.
III (IX)
Rural Housing.
(3) Organisation of
marketing facilities
for products of
cottage and village
industries.
(4)
Implementation of
schemes of State
Boards and All
India Boards and
Commission for
development of
rural and cottage
industries.
Promotion of rural
housing
programme.
11 Drinking water
III (X)
Drinking water
9 Khadi, village
and Cottage
Industries.
Promotion of
drinking water and
rural sanitation
programmes.
48
Activities
Approval of TPs plan

and sanctioning of fund
for rural housing
schemes
Development of water
supply system
Monitoring rural water
supply schemes
Remarks

vague and only talks
about promotion of
drinking water and rural
sanitation. At the same
time under activity
mapping ZP is involved
in development of water
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
Title
Activities
Clause/Subsection
Remarks
supply system and

monitoring rural water
supply scheme.
12 Fuel and fodder
III (XI)
Minor forest
produce and
fuel and fodder
Promotion of Fuel
plantation and
fodder
development.
Production of Fuel and

Fodder:
13 Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
III (XII)
Roads,
buildings,
Bridges,
Ferries,
waterways and
other means of
communication.
(1) Construction
and maintenance
of district roads
and culverts,
causeways and
bridges (excluding
State Highways
and village roads).
Development of road
network and accessibility
Improvement and
Maintenance of the
existing roads / culverts
and bridges
Development of
waterways, ferrying.
Ferry services, etc.
Roads,
buildings,
Bridges,
Ferries,
waterways and
other means of
communication.
(2) Construction
of administrative
and other buildings
in connection with
the requirements of
the Zilla
Panchayat.
13 Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
III (XII)
49

vague and only talks
about promotion of fuel
plantation and fodder
development.
Serial Matter
No.
14 Rural
Electrification
including
distribution of
electricity.
15 Non-conventional
energy sources.
16 Poverty
alleviation
programme.
17 Education
including primary
and secondary
schools.
Schedule III
of the PR Act
read with
Section 184.
III (XXVI)
Title
Clause/Subsection
Rural
Electrification.
Rural
Electrification.
Expansion of
electrification
Monitoring power supply
III (XIII)
Nonconventional
energy sources.
(1) Promotion and

development of
non-conventional
energy sources.
Poverty
alleviation
programme.
Planning,
supervision and
monitoring the
implementation of
poverty alleviation
programmes.
(1) Promotion of
educational
activities in the
district including
the establishment
and maintenance
III (XIV)
III (XV)
Education
including
primary and
secondary
schools.
50
Activities
Assessment of districts
energy requirement
Promoting nonconventional sources of
energy which includes
installations of solar
panels, wind mills and
gobar gas plants and
extension education
Planning and
implementation of
Poverty Alleviation
Programmes
Wage Employment
programmes:
Expansion and
development of
educational facilities
Establishment and
maintenance of hostels,
and other welfare
Remarks
No responsibility has
been assigned to ZP
under State's Act
ZP has no say in the

recruitment of the staff
either under PR Act or
activity mapping.
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
Title
Activities
Clause/Subsection
of primary and
secondary schools.
17 Education
including primary
and secondary
schools.
III (XV)
17 Education
including primary
and secondary
schools.
III (XV)
18 Technical
training and
vocational
education
III (XVI)
18 Technical
training and
vocational
education
III (XVI)
Education
including
primary and
secondary
schools.
Education
including
primary and
secondary
schools.
Technical
training and
vocational
education
(2) Establishment
and maintenance
ashram schools
and orphanages.
Technical
training and
vocational
education
(2) Encouraging
and assisting rural
vocational training
centres.
Remarks
measures for target group

students:
(3) Survey and

evaluation of
education
activities.
(1) Establishment
and maintenance
of rural artisan and
vocational training
centres.
51
Establishment and
maintenance of it is
Promotion and identifying
suitable courses for
vocational according to
the needs and potential of
different areas education

ZP is involved in
selection of courses,
identification of
education schools and
centres for important
courses.
Serial Matter
No.
19 Adult and nonformal education.
Schedule III
of the PR Act
read with
Section 184.
III (XVII)
Activities
Title
Clause/Subsection
Adult and nonformal

education.
Planning and
implementation of
programmes of
adult literacy and
non-formal
education
programmes.
Promotion of
libraries
Establishment and
maintenance of libraries
Promotion of
social and cultural
activities.
Regulation of fairs
and festivals in the
district.
Promotion of Cultural
activities
Identification of location
and development of
market yards
Regulating wholesale and
retail markets, supervision
and monitoring of
marketing activities:
20 Libraries
III (XXVIII)
libraries
21 Cultural activities
III (XXIV)
Cultural
activities
22 Markets and fairs.
III (XVIII)
Markets and
fairs.
52
Remarks
Planning and
implementation of adult
and non- formal education
Total Literacy Campaign
Only promotion activity

is assigned to ZP.
However, in case of
activity mapping
maintenance activity is
also entrusted to ZP.
Serial Matter
No.
23 Health and
sanitation,
including
hospitals, primary
health centers and
dispensaries.
23 Health and
sanitation,
including
hospitals, primary
health centers and
dispensaries.
23 Health and
sanitation,
including
hospitals, primary
health centers and
dispensaries.
24 Family welfare
Schedule III
of the PR Act
read with
Section 184.
III (XIX)
Title
Clause/Subsection
Health and
Family welfare.
III (XIX)
Health and
Family welfare.
(1) Management of
hospitals and
dispensaries
excluding those
under the
management of
Government or any
other local
authority.
(2) Implementation
of maternity and
child health
programmes.
III (XIX)
Health and
Family welfare.
(3) Implementation
of immunization
and vaccination
programmes.
III (XIX)
Health and
Family welfare.
(1) Implementation
of family welfare
programmes.
53
Activities
Health care
Sanitation
Maternal and Child

Health (MCH) Centres
Remarks
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
III (XX)
Title
Clause/Subsection
Women and
Child
development
(1) Promotion of
programmes
relating to
development of
women and
children.
25 Women and
Child
development
III (XX)
Women and
Child
development
(2) Promotion of
school health and
nutrition
programmes.
25 Women and
Child
development
III (XX)
Women and
Child
development
(3) Promotion of
participation of
voluntary
organisations in
women and child
development
programmes.
Promotion of
social welfare
programmes,
including welfare
of handicapped,
mentally retarded
and destitute.
25 Women and
Child
development
26 Social welfare
III (XXI)
including welfare
of the
handicapped and
mentally retarded.
Social welfare
including
welfare of the
handicapped
and mentally
retarded.
54
Activities
Socio economic
development of women
Maternity benefit
Development of Women
and Children in Rural
Areas (DWCRA)
Integrated Child
Development
Welfare of the Disabled:

Street Children
Adoption of Children
Welfare of the Aged
Drug use Prevention
Remarks
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
III (XXII)
Title
Clause/Subsection
Welfare of the
weaker
sections, and in
particular of the
scheduled
castes and
tribes.
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
III (XXII)
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
III (XXII)
Welfare of the
weaker
sections, and in
particular of the
scheduled
castes and
tribes.
Welfare of the
weaker
sections, and in
particular of the
scheduled
castes and
tribes.
(1) Promotion of
educational,
economic, social,
cultural and other
interests of the
Scheduled Castes,
Scheduled Tribes
and Backward
Classes.
(2) Protecting such
castes, tribes and
classes from social
injustice and all
forms of
exploitation.
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
(3) Establishment
and management
of hostels of such
castes, tribes and
classes.
55
Activities
Remarks
Activity mapping is not

done.
Serial Matter
No.
Schedule III
of the PR Act
read with
Section 184.
III (XXII)
Title
Clause/Subsection
Welfare of the
weaker
sections, and in
particular of the
scheduled
castes and
tribes.
28 Public
distribution
system.
III (XXV)
Public
distribution
system.
(4) Supervision
and management
of hostels in the
district,
distribution of
grants, loans and
subsidies to
individuals and
other schemes for
the welfare of
Scheduled Castes,
Scheduled Tribes
and Backward
Classes.
Public distribution
system.
29 Maintenance of
community
assets.
III (XXIII)
Maintenance of
community
assets.
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
(1) Maintenance of
community assets
vested in it or
transferred to it by
the Government or
any local authority
or organisation.
56
Activities
Remarks
No responsibility has
been entrusted either by
State's PR Act or under
activity mapping.
Protection and Maintenance
of Village Commons etc.
Serial Matter
No.
29 Maintenance of
community
assets.
Schedule III
of the PR Act
read with
Section 184.
III (XXIII)
Title
Clause/Subsection
Maintenance of
community
assets.
(2) Assisting the

Government in the
preservation and
maintenance of
other community
assets.
57
Activities
Remarks

Serial
.No
Matter
1 Agriculture,
including
agricultural
extension
Schedule II of
the PR Act
read with
Section 145.
II (II)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension
(1) Promotion and

development of
agriculture and
horticulture.
Activities
1 Agriculture,
including
agricultural
extension
II (II)
Agriculture,
including
agricultural
extension
1 Agriculture,
including
agricultural
extension
1 Agriculture,
including
agricultural
extension
II (II)
Agriculture,
including
agricultural
extension
Agriculture,
including
agricultural
extension
II (II)
(2) Maintenance of
agriculture seed
farms and
horticulture
nurseries.
(3) Storing and
distribution of
insecticides and
pesticides.
(4) Propagation of
improved methods
of cultivation.
58
Production
Extension support
Soil Testing
Risk management
Assessment and
Distribution of Inputs
Post-harvest management
Remarks
Horticulture is not
mentioned in the Activity
mapping.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
II (II)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension
1 Agriculture,
including
agricultural
extension
2 land
improvement,
implementation
of land reforms,
land
consolidation and
soil conservation
II (II)
Agriculture,
including
agricultural
extension
land
improvement
and soil
conservation
(5) Promotion of
cultivation and
marketing of
vegetables, fruits
and flowers.
(6) Training of
farmers and
extension activities.
3 Minor irrigation,
water
management and
watershed
development
II (IV)
1 Agriculture,
including
agricultural
extension
II (III)
Minor
irrigation,
water
management
and watershed
development
Assisting the
government and ZP
in the
implementation of
land improvement
and soil
conservation
programmes of the
government.
(1) Assisting the
Government and
Zilla Panchayat in
the construction
and maintenance of
minor irrigation
works.
59
Activities
Remarks
Soil Conservation:
land improvement and

implementation of land
reforms are not covered
under activity mapping
Development of MI
water harvesting structures
and water management
Water Management
Under PR Act only minor

irrigation is covered
whereas, under activity
mapping other aspects
like water management
and watershed
development are covered.
Serial
.No
Matter
3 Minor irrigation,
water
management and
watershed
development
4 Animal
husbandry,
Dairying and
poultry
Schedule II of
the PR Act
read with
Section 145.
II (IV)
II (V)
Title
Clause/Subsection
Minor
irrigation,
water
management
and watershed
development
Animal
husbandry,
Dairying and
poultry
(2) Implementation
of community and
individual
irrigation works.
(1) Maintenance of
veterinary and
animal husbandry
services.
Activities
4 Animal
husbandry,
Dairying and
poultry
4 Animal
husbandry,
Dairying and
poultry
4 Animal
husbandry,
Dairying and
poultry
II (V)
II (V)
II (V)
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
(2) Improvement
of breed of cattle,
poultry and other
live-stock.
(3) Promotion of
dairy farming,
poultry and
piggery.
(4) Prevention of
epidemic and
contagious
diseases.
60
Veterinary Services
Feeding and Fodder
droughts
Dairy Development
Poultry Development
Remarks
Serial
.No
Matter
5 Fisheries.
Schedule II of
the PR Act
read with
Section 145.
II (VI)
Title
Clause/Subsection
Fisheries.
Promotion of
fisheries in the
villages.
Activities
6 Social forestry
and farm forestry
II (X)
Social and
farm forestry,
minor forest
produce, fuel
and fodder.
6 Social forestry
and farm forestry
II (X)
7 Minor forest
produce
II (X)
Social and
farm forestry,
minor forest
produce, fuel
and fodder.
Social and
farm forestry,
minor forest
produce, fuel
and fodder.
(1) Planting and
preservation of
trees on the sides of
roads and other
public lands under
its control.
(3) Promotion of
farm forestry.
Fuel plantation and

fodder
development
61
Fisheries
Development of Marine
fisheries
Development of
Infrastructure
Welfare Measures:
Forestry
Remarks
The State Act is very

brief and only talks for
the promotion of fisheries
in the villages. Whereas
activity mapping is quite
exhaustive and has even
covered welfare measures
also.
Under State's Act the

subject of Minor forest is
covered collectively
under the head of Social
forestry.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
Title
Clause/Subsection
Activities
8 Small scale
industries
including food
processing
industries
9 Khadi, village
and Cottage
Industries.
II (VII)
Khadi, village
and Cottage
Industries.
(1) Promotion of
rural and cottage
industries.
62
Industrial resource
potential survey
Development of
Infrastructure
Entrepreneur
Development
and Agencies
Supervision
Training Skill
development and Transfer
of technology to
beneficiaries
Infrastructure
Development
support
and Agencies:
Remarks
The Act has no provision

related with small scale
industries but the subject
is covered under activity
mapping.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
II (VII)
Title
Clause/Subsection
Khadi, village
and Cottage
Industries.
10 Rural Housing.
II (VIII)
Rural
Housing.
(2) Organisation of
conferences,
seminars and
training
programmes,
agricultural and
industrial
exhibitions for the
benefit of the rural
areas.
Implementation of
housing schemes
and distribution of
house sites in
village outside
Gramathana limits.
11 Drinking water
II (IX)
Drinking
water
9 Khadi, village
and Cottage
Industries.
11 Drinking water
II (IX)
Drinking
water
Establishment,
repairs and
maintenance of
rural water supply
schemes.
(2) Prevention and
control of water
pollution.
63
Activities
Approval of TPs plan and

sanctioning of fund for
rural housing schemes
supply system
supply schemes
Remarks
The PR Act states that TP

is involved in distribution
of house sites but under
activity mapping there is
no mention of TP's
involvement in
distribution of house
sites.
Serial
.No
Matter
Title
Clause/Subsection
11 Drinking water
Schedule II of
the PR Act
read with
Section 145.
II (IX)
Drinking
water
12 Fuel and fodder
II (X)
Fuel and
fodder
(3) Implementation
of rural sanitation
schemes.
(2) Fuel plantation
and fodder
development.
13 Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
II (XI)
Roads,
buildings,
Bridges,
Ferries,
waterways and
other means of
communicatio
n.
13 Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
II (XI)
Roads,
buildings,
Bridges,
Ferries,
waterways and
(1) Construction
and maintenance of
public roads,
drains, culverts and

other means of
communications
which are not under
the control of any
other local
authority or the
Government.
(2) Maintenance of
any building or
other property
vested in the Taluk
Panchayat.
64
Activities

Fodder
Development of road
Improvement and
Maintenance of the
and bridges
Development of
waterways, ferrying. ferry
services, etc.
Remarks
The Act is quite vague

whereas under activity
mapping TP has been
entrusted to identify
wastelands and degraded
land for taking up fuels
and fodder plantation.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
Title
Clause/Subsection
Activities
Remarks
other means of
communicatio
n.
13 Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
II (XI)
14 Rural
Electrification
including
distribution of
electricity.
II (XXV)
Roads,
buildings,
Bridges,
Ferries,
waterways and
other means of
communicatio
n.
Rural
electrification
(3) Maintenance of
baths, ferries and
waterways.
Promotion of rural
electrification
65
Expansion of
electrification:
Under the Act only

promotion activity is
covered whereas, under
activity mapping TP is
also involved in
providing power
connection for poor and
SC/ST/OBC.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
15 Non-conventional II (XII)
energy sources.
Title
Clause/Subsection
Nonconventional
energy
sources.
(1) Promotion and

development of
non-conventional
energy sources.
16 Poverty
alleviation
programme.
Poverty
alleviation
programme.
Implementation of
poverty alleviation
programmes.
II (XIII)
Activities
17 Education
including primary
and secondary
schools.
Schedule II
(XIV), wrt
Section 145 of
the PR Act
(1) Promotion of
primary and
secondary
education. (2)
Construction, repair
and maintenance of
primary school
66
energy requirement:
installation of solar panels,
wind mills and gobar gas
plants and extension
education
Planning and
implementation of Poverty
Alleviation Programmes
Wage Employment
programmes
Establishment and
and other welfare
students.
Expansion and
development of
Remarks
The State Act is quite

vague whereas activity
mapping is quite
elaborative.
The State Act is quite

vague whereas activity
mapping is quite
elaborative.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
Title
Clause/Subsection
Activities
Remarks
buildings. (3)
Promotion of social
education through
youth clubs and
mahila mandals.
18 Technical
training and
vocational
education
II (XV)
Technical
training and
vocational
education
Promotion of rural
artisan and
vocational training.
19 Adult and nonformal education.
II (XVI)
Adult and non- Implementation of

formal
adult literacy.
education.
20 Libraries
II (XXVII)
Libraries
Promotion of
libraries.
21 Cultural activities
II (XVII)
Cultural
activities
Promotion of social
and cultural
activities.
67
Establishment and
maintenance of it is
Planning and
Establishment and
activities

TP is involved in
selection of students for
various trades.

and no specific duties are
assigned.
assigned.
assigned.
Serial
.No
Matter
22 Markets and
fairs.
Schedule II of
the PR Act
read with
Section 145.
II (XVIII)
Title
Clause/Subsection
Markets and
fairs.
Regulation of fairs
and festivals.
Activities
23 Health and
II (XIX)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
23 Health and
II (XIX)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
24 Family welfare
II (XIX)
Health and
family
welfare.
(1) Promotion of
immunization and
vaccination
programmes.
Health and
family
welfare.
(2) Health and

sanitation at fairs
and festivals.
Health and
family
welfare.
(1) Promotion of
health and family
welfare
programmes.
68
and development of
market yards
Regulating wholesale and
retail markets, supervision
and monitoring of
marketing activities:
Health care
Sanitation:
Remarks

assigned
Maternal and Child Health The Act is quite vague

(MCH) Centres
assigned
Serial
.No
Matter
25 Women and
Child
development
Schedule II of
the PR Act
read with
Section 145.
II (XX)
Title
Clause/Subsection
Women and
Child
development
(1) Promotion of
progarmmes
relating to
development of
women and
children.
Activities
25 Women and
Child
development
II (XX)
Women and
Child
development
25 Women and
Child
development
II (XX)
Women and
Child
development
26 Social welfare
including welfare
of the
handicapped and
mentally
retarded.
II (XXI)
Social welfare
including
welfare of the
handicapped
and mentally
retarded.
(2) Promotion of
school health and
nutrition
programmes.
(3) Promotion of
participation of
voluntary
organisations in
women and child
development
programmes.
(1) Social welfare
programmes
including welfare
of handicapped,
mentally retarded
and destitute.
69
Socio economic
Maternity benefit
Areas (DWCRA)
Integrated Child
Development.
Welfare of the Disabled

Street Children
Welfare of the Aged
Drug use Prevention
Remarks
Serial
.No
Matter
26 Social welfare
including welfare
of the
handicapped and
mentally
retarded.
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
Schedule II of
the PR Act
read with
Section 145.
II (XXI)
II (XXII)
27 Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
II (XXII)
28 Public
distribution
system.
29 Maintenance of
community
assets.
II (XXIV)
II (XXIII)
Title
Clause/Subsection
Social welfare
including
welfare of the
handicapped
and mentally
retarded.
Welfare of the
weaker
sections, and
in particular of
the scheduled
castes and
tribes.
Welfare of the
weaker
sections, and
in particular of
the scheduled
castes and
tribes.
Public
distribution
system.
Maintenance
of community
assets.
(2) Monitoring the

Old Age and
Widow's pensions
and pensions for
the handicapped.
Activities
(1) Promotion of
welfare of
Scheduled Caste,
Scheduled Tribes
and other weaker
sections.
Remarks
The subject is not

covered under the
activity mapping.
(2) Protecting such

castes and classes
from social
injustice and
exploitation.
(1) Distribution of
essential
commodities.
(1) Maintaining all
community assets
vested in it or
transferred by the
70
The subject is not

covered under the
activity mapping.
Protection and
Maintenance of Village
Commons etc.
Serial
.No
Matter
Schedule II of
the PR Act
read with
Section 145.
Title
Clause/Subsection
Government or any
local authority or
organisation.
29 Maintenance of
community
assets.
II (XXIII)
Maintenance
of community
assets.
(2) Preservation
and maintenance of
other community
assets.
71
Activities
Remarks

Serial
No.
Matter
Agriculture,
including
agricultural
extension
Agriculture,
including
agricultural
extension
Schedule I of
the PR Act
read with
Section 58.
I (II)
I (II)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension
(1) Promotion and

development of
agriculture and
horticulture.
Agriculture,
including
agricultural
extension
(2) Development of
waste lands.
72
Activities
Production
Credit
Extension support
Soil Testing
Risk management
Assessment and
Remarks
The State Act is not very

elaborative. The
functions are defined in a
very broad term like
promotion and
development of
agriculture, horticulture,
waste lands and grazing
lands. However, under
activity mapping the
functions have been
devolved in very detailed
manner in seven different
heads like Increasing
agriculture production,
credit, extension support,
soil testing, risk
management, assessment
and distribution of inputs
and post-harvest
management.
Serial
No.
Matter
Agriculture,
including
agricultural
extension
Schedule I of
the PR Act
read with
Section 58.
I (II)
Title
Clause/Subsection
Agriculture,
including
agricultural
extension
(3) Development
and maintenance of
grazing lands and
preventing their
unauthorized
alienation and use.
land
improvement,
implementation
of land reforms,
land
consolidation and
soil conservation
Minor irrigation,
water
management and
watershed
development
Activities
Remarks
Nothing is stated in PR
Act.
73
Development of MI
Act.
water harvesting structures
Water Management
Serial
No.
Matter
Animal
husbandry,
Dairying and
poultry
Schedule I of
the PR Act
read with
Section 58.
I (III)
Title
Clause/Subsection
Animal
husbandry,
Dairying and
poultry
(1) Improvement of
breed of cattle,
poultry and other
live-stock.
Activities
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
I (III)
I (III)
Animal
husbandry,
Dairying and
poultry
Animal
husbandry,
Dairying and
poultry
(2) Promotion of
dairy farming,
poultry and
piggery.
(3) Grassland
development.
74
Veterinary Services
Feeding and Fodder
droughts
Dairy Development
Poultry Development
Remarks
The State Act has defined

functions in broad term
viz., improvement of
breed of cattle, promotion
of dairy and development
of grassland. Activity
Mapping has been done
for development of
livestock, veterinary
services, feeding and
fodder including support
during droughts, dairy
development and poultry
development. It may be
noticed that piggery has
not been covered in the
activity mapping
Serial
No.
Matter
Animal
husbandry,
Dairying and
poultry
Fisheries.
Schedule I of
the PR Act
read with
Section 58.
I (XIX)
Title
Clause/Subsection
Public Health
and Family
Welfare
I (IV)
Fisheries.
(7) Regulation of
curing, tanning and
dyeing of skins and
hides.
Development of
fisheries in the
villages.
Activities
Social forestry
and farm forestry
I (V)
Social forestry
and farm forestry
I (V)
Social forestry
and farm
forestry, minor
forest produce,
fuel and
fodders.
Social forestry
and farm
forestry, minor
forest produce,
fuel and
fodders.
(1) Planting and
preservation of
trees on the sides of
roads and other
public lands under
its control.
(2) Promotion of
farm forestry.
75
Fisheries
Development of Marine
fisheries
Welfare Measures

Forestry
Remarks
Detailed activity mapping

is done including welfare
measures for fishermen
like insurance scheme,
assessment of loss,
damage and relief
requirements for families
affected by calamities.
The subject is covered
under broad head i.e.,
social forestry and farm
forestry, minor forest
produce, fuel and fodder.
Serial
No.
Matter
Social forestry
and farm forestry
Minor forest
produce
Small scale
industries
including food
processing
industries
Khadi, village
and Cottage
Industries.
Schedule I of
the PR Act
read with
Section 58.
I (V)
I (V)
Title
Clause/Subsection
Social forestry
and farm
forestry, minor
forest produce,
fuel and
fodders.
Social forestry
and farm
forestry, minor
forest produce,
fuel and
fodders.
(3) Development
of social forestry.
(2) Fuel plantations

and fodder
development
Activities
I (VI)
Khadi, village
and Cottage
Industries.
(1) Promotion of
rural and cottage
industries.
76
Regeneration of MFP
species
Training
MFP Collection
Processing, and marketing
charges
Industrial resource
potential survey
Development of
Infrastructure
Supervision
Infrastructure
Development
support
Remarks
In the PR Act the subject

is covered under Social
and farm forestry, minor
forest produce, fuel and
fodder but there is no
provision related with
Minor forest produce.
Serial
No.
Matter
Khadi, village
and Cottage
Industries.
10
Rural Housing.
Schedule I of
the PR Act
read with
Section 58.
I (VI)
I (VII)
Title
Clause/Subsection
Khadi, village
and Cottage
Industries.
(2) Organisation of
conferences,
seminars and
training
programmes,
agricultural and
industrial
exhibitions for the
benefit of the rural
areas
1. Distribution of
house sites within
Gramathana limits.
Rural
Housing.
Activities

GP is involved in
identifying beneficiaries
for training through
Gram Sabha.
10
Rural Housing.
I (VII)
Rural
Housing.
2. Maintenance of
records relating to
the houses, sites
and other private
and public
properties.
77
Remarks
Approval of TPs plan and

sanctioning of fund for
rural housing schemes
Supervision and
monitoring of rural
housing schemes
Activity mapping covers

Indira Awas Yojana also.
GP has been entrusted
with larger role
identification of
beneficiaries, execution
of work, land acquisition
and supervision of the
construction of quality.
Serial
No.
Matter
11
Drinking water
Schedule I of
the PR Act
read with
Section 58.
I (VIII)
11
Drinking water
I (VIII)
11
Drinking water
I (VIII)
12
Fuel and fodder
I (V)
Title
Clause/Subsection
Drinking
water
(1) Construction,
repairs and
maintenance of
drinking water
wells, tanks and
ponds.
Drinking
(2) Prevention and
water
control of water
pollution.
Drinking
(3) Maintenance of
water
rural water supply
schemes.
Social forestry Fuel plantation and
and farm
fodder
forestry, minor development.
forest produce,
fuel and
fodders.
78
Activities
Remarks
supply system
supply schemes
Maintenance of water
supply system

Fodder
Marketing of Fuel/Fodder
and timber
The PR Act covers the

subject under the head of
Social and farm forestry,
minor forest produce,
fuel and fodder.
However, activity
mapping is done under
separate head and
includes most of the
activities.
Serial
No.
Matter
13
Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
Schedule I of
the PR Act
read with
Section 58.
I (IX)
13
Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
I (IX)
13
Roads, culverts,
Bridges, Ferries,
waterways and
other means of
communication.
I (IX)
Title
Clause/Subsection
Roads,
buildings,
culverts,
Bridges,
Ferries,
waterways and
other means of
communicatio
n.
Roads,
buildings,
culverts,
Bridges,
Ferries,
waterways and
other means of
communicatio
n.
Roads,
buildings,
culverts,
Bridges,
Ferries,
waterways and
other means of
communicatio
n.
(1) Construction
and maintenance of
village roads,
drains and culverts.
(2) Maintenance of
buildings under its
control or
transferred to it by
the Government or
and public
authority.
(3) maintenance of
boats, ferries and
waterways
79
Activities
Development of road
Improvement and
Maintenance of the
and bridges
Remarks

GP is not involved in
development of
waterways, ferrying,
ferry services, etc.
Serial
No.
Matter
14
Rural
Electrification
including
distribution of
electricity.
Non-conventional I (XI)
energy sources.
15
Schedule I of
the PR Act
read with
Section 58.
I (X)
Title
Clause/Subsection
Rural
Electrification
including
distribution of
electricity.
Nonconventional
energy
sources.
Providing for and

maintenance of
lighting of public
streets and other
places.
(1) Promotion and
development of
non-conventional
energy schemes.
(2) Maintenance of
community nonconventional
energy devices,
including bio-gas
plants.
(3) Propagation of
improved chulhas
and other efficient
energy devices
15
energy sources.
Nonconventional
energy
sources.
15
energy sources.
Nonconventional
energy
sources.
80
Activities
Remarks
Expansion of
electrification
Monitoring power supply
energy requirement
panels, wind mills and
gobar gas plants and
extension education:

nothing is said for the
propagation of improved
chulhas and other
efficient energy devices
Serial
No.
Matter
16
Poverty
alleviation
programme.
Schedule I of
the PR Act
read with
Section 58.
I (XII)
Title
Clause/Subsection
Poverty
alleviation
programme.
(1) Promotion of
public awareness
and participation in
poverty alleviation
programmes for
fuller employment
and creation of
productive assets,
etc
(2) Selection of
beneficiaries under
various
programmes
through Grama
Sabhas.
(3) Participation in
effective
implementation and
monitoring.
(1) Promotion of
public awareness
and participation in
primary and
secondary
education
16
Poverty
alleviation
programme.
I (XII)
Poverty
alleviation
programme.
16
Poverty
alleviation
programme.
I (XII)
Poverty
alleviation
programme.
17
Education
I (XIII)
including primary
and secondary
schools.
Education
including
primary and
secondary
schools.
81
Activities
Remarks
Planning and
implementation of Poverty
Alleviation Programmes
Wage Employment
programmes

GP is involved in
undertaking project on
improved chulhas, which
otherwise should have
been covered under the
subject of nonconventional energy
sources.
Expansion and
development of
Establishment and
and other welfare
students

GP has no say in the
recruitment of teachers.
Serial
No.
Matter
17
Education
including primary
and secondary
schools.
18
Technical
training and
vocational
education
19
Adult and nonformal education.
Schedule I of
the PR Act
read with
Section 58.
I (XIII)
Title
Clause/Subsection
Education
including
primary and
secondary
schools.
.(2) Ensuring full

enrollment and
attendance in
primary schools
Activities
I (XIV)
Adult and non- Promotion of adult

formal
literacy.
education.
20
Libraries
I (XV)
Libraries
21
Cultural activities
I (XVI)
Cultural
activities
22
Markets and
fairs.
I (XVII)
Markets and
fairs.
Village libraries
and reading rooms.
Promotion of social
and cultural
activities.
Regulation of fairs
(including cattle
fairs) and festivals.
82

Planning and
Remarks
Act.
The State Act only talks

about promotion,
whereas, under activity
mapping functions like
mobilisation of people
and supervision of
centres have been
entrusted.
Establishment and
activities:
and development of
market yards

GP is not involved
regulation of wholesale
Serial
No.
Matter
Schedule I of
the PR Act
read with
Section 58.
Title
Clause/Subsection
Activities
Remarks
and retail markets.

23
23
23
Health and
I (XVIII)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
Health and
I (XVIII)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
Rural
sanitation
(1) Maintenance of
general sanitation.
Rural
sanitation
Health and
I (XIX)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
Public Health
and Family
Welfare
(5) Disposal of
unclaimed corpse
and carcasses.
Regulation of
curing, training and
dyeing of skins and
hides. Regulation
of offensive and
dangerous trades.
Public health and
family welfare.
(2) Prevention and
remedial measures
against epidemics.
83
Health care
Sanitation
Maternal and Child Health
(MCH) Centres
Under State Act the

subject is covered under
rural sanitation and
public health and family
welfare.
Serial
No.
Matter
23
23
24
25
Schedule I of
the PR Act
read with
Section 58.
I (XIX)
Title
Clause/Subsection
Health and
sanitation,
including
hospitals, primary
health centers and
dispensaries.
Health and
I (XIX)
sanitation,
including
hospitals, primary
health centers and
dispensaries.
Family welfare
I (XIX)
Public Health
and Family
Welfare
programmes of
human vaccination.
Public Health
and Family
Welfare
(6) Destruction of
stray dogs.
Public Health
and Family
Welfare
(1) Implementation
of family welfare
programmes.
Women and
Child
development
Women and
Child
development
the implementation
of women and child
welfare
programmes.
I (XX)
Activities
Under State Act the

subject is covered under
rural sanitation and
public health and family
welfare. Only one
function is delegated for
the subject.
84
Remarks
Socio economic
Maternity benefit
Areas (DWCRA
Integrated Child
Serial
No.
Matter
Schedule I of
the PR Act
read with
Section 58.
Title
Clause/Subsection
Activities
Remarks
Development
25
Women and
Child
development
I (XX)
Women and
Child
development
26
Social welfare
including welfare
of the
handicapped and
mentally
retarded.
I (XXI)
Social welfare
including
welfare of the
handicapped
and mentally
retarded.
Social welfare
including welfare
of the
handicapped and
mentally
retarded.
I (XXI)
26
Social welfare
including
welfare of the
handicapped
and mentally
retarded.
(2) Promotion of
schools health and
nutrition
programmes.
the implementation
of the social
welfare
programmes,
including welfare
of the handicapped,
mentally retarded
and destitute.
(2) Monitoring of
the old-age and
widows pension
schemes
85
Welfare of the Disabled:

Street Children
Welfare of the Aged
Drug use Prevention

GP is involved in
assistance and
coordination in respect of
welfare of the disabled,
street children, adoption
of children, welfare of
the aged and drug
prevention.
Serial
No.
Matter
27
Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
28
29
Schedule I of
the PR Act
read with
Section 58.
I (XXII)
Title
Clause/Subsection
Welfare of the
weaker
sections, and
in particular of
the scheduled
castes and
tribes.
Welfare of the
weaker sections,
and in particular
of the scheduled
castes and tribes.
I (XXII)
Public
distribution
system.
I (XXIII)
Welfare of the
weaker
sections, and
in particular of
the scheduled
castes and
tribes.
Public
distribution
system.
(1) Promotion of
public awareness
with regard to
welfare of
Scheduled Castes,
Scheduled Tribes
and other weaker
sections.
the implementation
of the specific
programmes for the
welfare of the
weaker sections.
Public
distribution
system.
Maintenance of
community
assets.
I (XXIII)
I (XXIV)
Public
distribution
system.
Maintenance
of community
assets.
(1) Promotion of
public awareness
with regard to the
distribution of
essential
commodities.
(2) Monitoring the
public distribution
system
(1) Maintenance of
community assets.
86
Activities
Remarks

nothing specific has been
said.
Protection and
Maintenance of Village
Commons etc.
Serial
No.
Matter
Schedule I of
the PR Act
read with
Section 58.
I (XXIV),
Title
Clause/Subsection
Maintenance
of community
assets.
Maintenance of
community
assets.
I (XXV)
Maintenance of
community
assets.
I (XXVI)
Maintenance of
community
assets.
I (XXVII)
Maintenance of
community
assets.
I (XXVIII)
Construction
and
maintenance
of
dharamashalas
, charts and
similar
institutions.
Construction
and
maintenance
of cattle sheds,
pounds, cart
and stands.
Construction
and
maintenance
of slaughter
houses.
Maintenance
of public
parks,
playgrounds,
(2) Preservation
and maintenance of
other community
assets.
Construction and
maintenance of
dharamashalas,
chathras and
similar institutions.
Maintenance of
community
assets.
Construction and
maintenance of
cattle sheds,
pounds, cart and
stands.
Construction and
maintenance of
slaughter houses.
Maintenance of
public parks,
playgrounds, etc.
87
Activities
Remarks
Serial
No.
Matter
Schedule I of
the PR Act
read with
Section 58.
Title
Clause/Subsection
etc.
Maintenance of
community
assets.
I (XXIX)
Regulation of
manure pits in
public places.
Regulation of
manure pits in
public places.
Maintenance of
community
assets.
I (XXX)
Establishment
and control of
shandies.
Establishment and
control of shandies.
88
Activities
Remarks
6.3 Salient features of the range of activities covered above in the Activity Mapping
are as follows:
6.3.1 Activity Mapping for GPs
An analysis of the Activity Mapping in respect of GPs further strengthens the
powers given under the Act to GPs. Thus, wherever the Act in Schedule I has indicated
that promotional responsibilities are with the Grama Panchayats, the Activity Mapping
had gone ahead and entrusted
the actual implementation, planning and supervision
functions. Examples in this regard are in respect of rural sanitation, housing, minor
irrigation tanks and fisheries. Activity Mapping for Grama Panchayats in Karnataka is an
example of where Activity Mapping has carried forward the evolutionary process of
Panchayati Raj and increased the responsibilities at the GP level by further
decentralization. In respect of public distribution system though this was not covered
under the Activity Mapping, separate orders were issued in 2005 devolving
responsibilities concerning the public distribution system to the Gram Panchayats.
However in recent times the implementation of rural housing schemes have been
entrusted to a separate Corporation created for the purpose. There has also been dilution
in the powers assigned to the Gram Panchayats in the implementation of drinking water
schemes by way entrusting them with only maintenance of the schemes.
6.3.2 Activity Mapping for Taluk Panchayats
Activity Mapping in respect of Taluk Panchayats indicates that it has been given
major responsibilities in minor irrigation and watershed development, animal husbandry,
dairying and poultry, fisheries development, social forestry, khadi and village industries,
drinking water, roads, education, health care and health centres, women & child welfare
and social welfare. These activities cover activities of planning, implementation and
maintenance of facilities and services delivered under these departments. However, it is
interesting to note that Activity Mapping for Taluk Panchayats has not covered welfare
of the weaker sections and the aspect of public distribution system. This goes contrary to
the actual ground position where it is the Taluk Panchayats that are constructing and
maintaining SC/ST hostels and also the allocation of food grains under Public
Distribution System in Karnataka.
89
6.3.3 Activity Mapping for Zilla Panchayats

Activity Mapping for Zilla Panchayats reflects the strong commitment to Zilla
Centric Panchayati Raj in Karnataka, which has come right from 1987 onwards.
Therefore, it is the Zilla Panchayat that has been given the planning and consolidation
of rural plan responsibilities in almost all matters in the 11th Plan Schedule. The areas of
Activity Mapping has been undertaken for ZPs in respect of education, training and
vocational education and the public distribution system.
The powers given to the Zilla Panchayats cover all the 29 functions envisaged in the 73rd
Constitution Amendment but they have remained as pious intentions and have not been
translated into action so far.
90
6.4 Current Status of implementation of Activity Mapping by PRIs in Karnataka

Field visits were carried out in 3 districts in Karnataka and detailed discussions were held with the elected representatives and
functionaries to assess the extent to which the activity mapping is followed by the 3 tiers of PRIs and also the line departments. Focus Group
Discussions were also held with the officials, elected representatives and community to ascertain their opinions. The study shows that the
activity mapping is being followed only to a limited extent by the departments and also PRIs.
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
AGRICULTURE
1. Prepare comprehensive crop plan
1.
Assist ZP in organising Farmers

fairs, Kisan Melas, etc.
1. Estimate crop yield and maintain

database regarding crops and
cropping pattern.
During Eleventh Year plan Zilla Financed under Taluk Panchayath Panchayath secretaries involved in
Panchayath was involved in the programme, like Agricultural fairs and crop estimation surveys.
preparation of the Comprehensive Exhibitions.
District Agriculture Plan (C-DAP)
2.
Production
Develop and maintain data 2. Organise on-farm verification trials 2. Assist in preparation of crop plan
base for cropping pattern, land use
and
demonstration
of
new
and inputs are for planning
technologies
Field level officers perform.
TP is not involved. Officials of

agriculture department perform.
Grama panchayats involved in the

preparation of C-DAP.
3. Organise Kisan Melas, Fairs and 3. Report and initiate action plans for 3. Assist in advising farmers about
Exhibitions
different items
remunerative crop activities and
crop diversification
Kisan Melas, Fairs and Exhibitions Action plans
being arranged under various approved for
91
are prepared and Raitha Samparka Kendras assist

Taluk Panchayath the farmers.
Activity
Zilla Panchayat
Taluk Panchayat
centrally
sponsored
schemes Schemes. They are
implemented as ZP programme.
(i) Assistance to farmers
(ii) Agricultural
fairs
exhibitions
4.
Protect bio-diversity
Grama Panchayat
and
4. Coordinate activities of field level 4. Assist in identifying progressive

extension workers and officials
farmers
for
adoption
and
diffusion of new technologies
Bio-diversity committee formed at

the ZP level. But it is not active.
Very limited scope for Taluk

Panchayath. Assistant Director of
Agriculture Department does this
activity.
Agriculture staff at Grass root level

assist. RSKs play the pivotal role.
5.
5. Act as a link between ZP and GPs for

transfer of knowledge,
5. Help in providing custom hiring

services for plant protection
equipment and farm implements
Promote profitable crop

technologies
Centrally sponsored schemes and Achieved during the 11th Five year plan Not done through GP body.
State
sector
schemes
are Active participation in the preparation
implemented.
of C-DAP.
6. Help in crop yield estimation through 6. Generate awareness in use of
maintaining links with various
organic fertilizers and
agencies, GPs and farmers.
vermiculture
Facilitate crop estimate surveys.
7.
Advise suitable cropping system

based on location specific
characteristics.
92
Workshops, Seminars arranged

under
different
Supporting
schemes with the assistance of
agriculture staff.
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
Department Staff performs

8. Arrange awards to progressive
farmers.
Not involved. Agriculture department
officials perform.
1. Prepare consolidated
input requirement.
plan
for 1. Assess inputs needs for GPs inputs 1. Assist in assessing needs of
and forward consolidated request to
various such as seeds, fertilizers,
TP.
pesticides.
Agriculture and Industries standing Not involved. Agriculture department

committee is involved partially.
perform this activity.
Gross root level agricultural staff

assess the needs
2. Acquire and arrange distribution 2. Ensure timely availability of required 2. Assist in timely distribution of
of inputs in time
inputs to GPs
adequate inputs to farmers
Assessment and
Agriculture and Industries standing Not involved

committee, facilitates and motivates
the
department
through
its
deliberations.
3. Improve adequate storage facilities 3. Arrange storage and transport facilities
for inputs
for inputs close monitoring of inputs
delivery system
Not involved
Not involved
4. Monitor distribution of quality

inputs
Agriculture
and
Industries
Standing committees meetings,
General Body meetings and
Karnataka
Development
93
Not involved
Activity
Credit
Zilla Panchayat
Taluk Panchayat
Programme review meeting - review
the status.
1. Prepare credit plan
1. Assist in preparing credit plan
It is being done by bureaucracy. It is being done by bureaucracy. BLBC

However Loan- linked schemes is the forum.
reviewed in Agriculture and
Industries Standing committee and
KDP meetings.
2.
Ensure
timely
credit 2. Ensure timely credit from formal
availability and linkage between
institutions.
agriculture development and credit
institutions, and monitor credit
mobilisation.
Grama Panchayat
1. Assist in assessing credit needs of

various groups of farmers and
crops
Gross root level staffs of
agriculture,
co-operation
Department assess.
2. Exercise social control and

regulate interest areas and
recovery of loans from formal
and informal credit institutions.
It is being reviewed in Monthly It is being reviewed in monthly Not done.

Karnataka
Development Karnataka Development Programme
Programme
chaired
by
the chaired by the Panchayath, Taluk
Adhyaksha, Zilla Panchayath.
Panchayath.
3. Help in strengthening of
cooperative credit institutions
3. Monitor credit delivery system.
Through grants given under 9 ZP Not done

programmes of Link Document.
94
3.
Help in formation of selfhelp Groups
Women and Children Department

official like Anganawadi workers,
Primary Agriculture credit cooperatives, Grama Panchayath
secretaries, Agriculture Extension
Officers play a key role in
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
information of self help groups.
1. Maintain linkage with research 1. Prepare plan for visit of extension 1. Monitor the visit of extension
and training organizations
workers and monitor their work.
workers to the village farms.
Extension support
Only officers and scientists meet

once in two months nearest
research station/ KVKS.
ADA
Assistant Director of Agriculture

monitor the visit of extension
workers to the village forms.
2. Ensure regular visits of extension

staff and help in dissemination of
new technologies.
2. Advice and identify extension officials 2. Identify suitable plots for

for training.
conducting trials and
demonstration.
JD Agriculture performs their

function.
ADA does it.
Grass root level Agriculture

Department staff does it.
3. Ensure regular training of 3. Assist scientists in identifying local 3. Select farmers for participating in
extension officials for updating
problems for designing their research
Kisan melas and training.
their knowledge of advancements
work relevant to local needs.
in technologies.
ZP Deputes the Department Taluk Panchayath not involved. But Done by the Department
personnel for training to reputed Department staff does it.
training institutes like NIRD,
ICRISAT, MANAGE- etc.,
4. Ensure better linkages between
farmers and extension staff.
Through Assistant Director Agriculture
at Taluk level, Taluk Panchayath
insures
5. Operate and run farmer service
centres, Kisan Kendras and Raitha
95
Activity
Zilla Panchayat
Taluk Panchayat
Samparka Kendras
Grama Panchayat
It is done by the Commissionerate.

Soil Testing
Establish soil-testing laboratories. Monitor Soil testing work. Help in

Monitor soil testing work.
identifying locations for soil testing
work. Help farmers for improvement of
soil fertility in consonance with soil
testing results
Assist
technical
experts
in
conducting soil tests. Help in
ensuring feedback from soil testing
to farmers.
State level programme
State level programme
Field staff of the department does

it.
1. Establish and improve storage

facilities
1. Maintain godowns
1. Help in organizing farmers for

group sale in bulk
Not done
Not done
Not done
2. Develop marketing infrastructure 2. Organize marketing committees and 2. Assist in increasing awareness
at suitable locations
maintain market yards
about better storage facilities for
seeds and food grains.
Post-harvest
management
Since 16-10-2004 this scheme is

transferred from State Sector to the
District Sector. But most of the
districts do not earmark any budget
under this scheme. During 2010-11
only Rs.96.30 lakhs are earmarked
for the whole state
Not done
3. Monitor regulated marketing
3. Regulate market charges and ensure

correct weights and measures
Not done
Not done
4. Ensure
correct
weights
and 4. Provide, manage and run market

96
Not done
Activity
Zilla Panchayat
measures.
Taluk Panchayat
information systems
Not done
Grama Panchayat
Not done
5.
Ensure prompt payment to the

farmers
Not done
1. Assess losses due to natural 1. Estimate crop losses and report action 1. Report losses due to natural
calamities and formulate relief
taken.
calamities
and
relief
plan
requirements.
Revenue Department does it with Revenue Department does it with the
the help of Agriculture and other help of Agriculture Department.
Departments.
Not done
2. Monitor and
operations
2. Supervise relief operations and

distribution of material
Not involved
Department
Risk Management
supervise
purely
relief 2. Monitor relief operations.
Revenue Not involved
Not involved
3. Assist in providing benefits from Crop 3. Motivate and help in identifying

insurance schemes.
farmers to take up crop insurance
schemes.
State Control
Regular Field staff and banking

network perform this function.
4. Arrange crop insurance schemes and 4. Assist in the implementation of

coordinate among insurance agencies
contingency plan.
Agriculture Department and credit Not involved
institutions perform this function.
5. Prepare contingency agricultural plan
97
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
AD Agriculture does it.

1. Guide and coordinate the work of 1. Coordinate the work of GPs where 1. Primary
responsibility
for
GPs & IPs.
inter-GP collaboration is needed.
keeping all common property of
local nature in good condition.
Protection and
Maintenance of
Village Commons etc.
Very rarely. When the occasion Executive Officer performs whenever it Gram Panchayaths have to finance
rises it is done.
is required
the maintenance of common
property of local nature in good
conditions. However it is rarely
being done as the Gram
Panchayaths
have
resource
crunch. Even the available grants
are equally shared among the
Gram Panchayath members who
never involved the caring of
common property.
2. Provide legal administrative and 2. Coordinate with the legally constituted 2. Keep watch over them so that
financial assistance to GPs & TPs
machinery involved in the matter
they are not encroached upon or
as far as practicable, in the
converted to uses not in the
conduct of legal proceedings
interest of the community.
Chief Executive Officer guides
Executive Officer does.
3. Decide on disposal of village

common property or their
conversion to other uses with the
concurrence of the GP concerned.
Grama
Panchayaths
are
empowered through KPAR Act
1993, Section 58, 58(1-A), 82, 84,
96.
3. Identify encroachment as well as
conversion of illegal or wrong
uses of commons.
98
Activity
Zilla Panchayat
Taluk Panchayat
Not empowered
Grama Panchayat
Grama Panchayaths are
empowered through KPAR Act
1993, Section 58, 58(1-A), 82, 84,
96.
4. Provide assistance in and
collection of evidence towards
the conduct of the proceedings by
such authority.
Not done
1. Prepare district plan for soil and 1. Coordinate with officials of soil 1. Assist the professional/official
water conservation projects.
conservation machinery.
machinery for soil conservation
work through helping group
action by land owners.
Under MGNREGA, IWDP, IWMP, Under MGNREGA Executive Officer
WGDP and other watershed as the programme officer does this
development programmes plans are function.
being prepared.
Soil Conservation
Micro
Watershed
Committee
formed at the gross root level
performs this function.
2. Desegregate this plan into TP 2. Inter GP coordination for smoothly 2. Direct

assistance
in
level, GP level or even lower level
carrying out soil conservation
implementation e.g., organising
deliverable units
operations
cutting
across
GP
owner labour as part of
boundaries including creation of water
contributions of the cost of
channels
operations,
All water shed development Only under MGNREGA Executive
programme are Grama Panchayath Officer of the Taluk Panchayath as
Programme.
Programme Officer performs this
function.
It is done under MGNREGA.
3. Harmonise the plan with other
3. Post conservation vigilance to

99
Activity
Zilla Panchayat
employment generating as well as
area development plans.
Taluk Panchayat
Grama Panchayat
ensure that work done is not
undone once again.
Through MGNREGA this acting

is being carried out. Coordination
with various agencies of the ZP as
well as the district administration
who will either participate in or
whose work will impinge upon the
implementation of the plan.
Standing Committee of Grama

Panchayaths are not active. They
can play the role of Vigilance
Committee by reviewing the needs
assets created and their usage.
4. Only under MGNREGA this

activity is carried out.
4. Create public opinion in favour of

use of soil only in consonance
with its properties, gradients etc.
Not exactly done by Grama
Panchayaths. Department staff
does.
5. Distribute subsidies and other
assistance according to
determined scales and priorities
Water
Shed
Development
Committee perform this activity.
Development of MI
system, drainage
system, water
harvesting structures
MINOR IRRIGATION, WATERSHED MANAGEMENT AND WATERSHED

1. Formulate MI projects
1. Formulate MI Projects
1. Assist in formulation of MI
projects and ratification by
Grama Sabha.
Shifted to State Sector. Engineering
Department does it.
Not done
100
Not done
Activity
Zilla Panchayat
Taluk Panchayat
2. Technically appraise MI projects 2. Technically appraise

(outside TP purview)
proposed in TP Plan.
Not done
MI
Grama Panchayat
projects 2. Identify locations for projects.
Not done
Not done
3. Execute MI Projects outside TP 3. Execute MI projects included in TP 3. Execute Community MI Projects

and GP plan
Plan
Not done. Panchayath Raj
Engineering does it for ZP tanks
Not done
Only under Ganga Kalyana

Scheme Community MI Projects
are implemented meager budget is
provided for GP. During 2010-11
for the Whole State Budget
provided is Rs. Lakhs.
4. Assign projects to TP and GP
4. Execute MI Projects assigned by ZP.
4. Execute MI Projects assigned by

ZP and TP.
Not done
Not done
Not done
5. Development of drainage system

in water logged areas.
5. Construct percolation tanks and check 5. Construct percolation tanks and

dams (outside GP plan)
check dams including projects
assigned by the ZP and TP
No Schemes
No Schemes
Only Labour Budget under

MGNREGA is approved by the ZP.
Subject Committees are not active
Under MGNREGA works are

being executed.
6. Sanctioning
projects
for 6. Supervision, monitoring and review of 6. Enforce inter-well distance (well
percolation tanks, check dams and
the progress, and quality of works by
density) as per prescribed norms.
land leveling.
the Subject Committee.
101
Notification dated 23rd October

2003 has been issued to preserve
the sources of public water supply
schemes and also to control the
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
utilisation of ground water.
However no rules have been issued
further to strengthen the hands of
Grama Panchayath.
7. Supervise, monitor and review of 7. Coordinate between various line 7. Identify
beneficiaries
under
the progress and quality of works
departments / agencies funding for MI
various programmes for MI
by the subject committee.
projects.
projects through Gram Sabha.
Done by General Standing
Not done.
Committee, Agriculture and
Industries Committee and Finance,
Audit and Planning Committee
8. Coordinate
between
various
departments and agencies funding
MI projects.
Not in all programmes only in case

of MI Projects implemented by
Panchayat Raj System.
8. Supervise, Monitor and review
progress, quality of work
Not done
Water Management
Only under Ganga Kalyana

Scheme.
1. Propagate
modern
water 1. Guide and motivate people to adopt 1. Identify beneficiaries through
management delivery methods
modern methods of irrigation, onGram Sabhas for subsidized
farm
development
and proper
sprinkler and drip irrigation
maintenance of field channels.
system.
Done by line departments like Done by line departments.
agriculture, horticulture
Not done.
2. Propagate use of sprinkler and drip 2. Select beneficiaries for subsidized 2. Constitute Neeru Panchayats for
irrigation in drought prone / water
sprinklers, drip irrigation equipment
proper utilization of water
scarce area.
and delivery system and supply them,
including use for drinking
including
providing
technical
purposes.
guidance to beneficiaries.
102
Activity
Zilla Panchayat
Done by line department.
Taluk Panchayat
Grama Panchayat
Neeru Panchayaths are not
popular village and water
sanitation
committees
are
constituted
to
monitor
the
utilization of drinking water, but
they are not effective.
3.
Organise farm demonstration for 3. Encourage farmers for on-farm
modern
water
management
development and development of
techniques.
field channels / delivery system
for proper utilization of water.
Watershed
development
1. Identify, select and approve

watershed projects.
Done with the
Department staff.
assistance
Under MGNREGA these works are

taken up.
1. Prepare watershed project in inter-GP 1. Participate in

watersheds.
implementation
projects
planning and
of watershed
of Executive Officer as the Programme Water

shed
development
Officer performs this function.
committees prepare action plan.
2. Promote watershed development 2. Organise people

approach in all areas for better
committees
management of natural resources
and environment development.
Watershed
development Not done
programmes
are
Grama
Panchayaths programmes. No
money comes to Zilla Panchayath.
to
form
work 2. Approve land/water use plan for

watershed development through
Grama Sabhas
It is done under MGNREGA.
3. Supervise, Monitor and review of 3. Form technical team to assist GP in 3. Assist in constituting user /
the progress and quality of works
the implementation of watershed
Beneficiary committees in the
103
Activity
Zilla Panchayat
by the Subject Committee.
Taluk Panchayat
projects.
Grama Panchayat
watershed for their direct
participation in the execution of
the project.
Agriculture and Industries standing Not done. Taluk Level Watershed Yes it is done.
committee performs this activity.
Department team consisting of officials
from Agriculture, Horticulture, Social
Forestry and Animal Husbandry
perform this function.
4. Integrate various beneficiary oriented 4. Maintain
community
assets
and area development oriented
created under watershed project.
schemes to harmonise with watershed
projects.
Not done
Only on the availability of funds.
5. Monitoring supervision and reporting 5. Supervise and monitor quality of

progress.
works
Not done
Water shed sub committee
6. Coordinate between various agencies 7. Select beneficiaries and provide

and
departments
implementing
assistance to them for executing
watershed projects such as agriculture,
individual
works
under
forestry, DPAP and DDP.
watershed.
Not done. Watershed development
department does it.
Not done.
ANIMAL HUSBANDRY DAIRYING AND POULTRY

Development of
livestock
1. Assess the need and formulate 1. Distribute

quality
breeds
to 1. Assist in
projects for the establishment,
beneficiaries
under
various
beneficiaries
improvement and maintenance of
programmes
programmes
breeding farms for cattle, sheep,
104
identification of
under
various
Activity
Zilla Panchayat
goats and hatcheries.
Taluk Panchayat
Grama Panchayat
Rearing of Giriraja. District Sector. Distribution of Cross Bred Cows, Selection of Beneficiaries through
Supply of improved Ram Lambs Graded Buffalo, Sheep, Goat, Bullock Grama Sabha.
and
Piglets
Cattle
Farms through SCP&TSP.
maintained by State Sector.
2. Propagate improved breed of livestock 2. Motivate people to maintain
among farmers
quality breeds and adopt modern
methods of maintaining livestock.
Extensive AI programmes, subsidy to
maintain well bred calves through
SLBP
(Special
Livestock
breed
programme)
1. Establish, improve and maintain 1. Supervise
the
functioning
veterinary hospitals, Dispensaries,
veterinary services in the TP.
Rural Livestock Units (RLUs) and
AI Centres.
Veterinary Services
Through extension activities like

Grama Sandarshana, Film Shows,
Health Camps, Training of SHG
Members. by department officials
of 1. Supervise the functioning of RLU

and AI service centres.
Building,
infrastructure, Through TP Scheme new dispensaries Through Local Hobli level Officers
equipments and other necessities, in backward taluks.
like supply of liquid Nitrogen Drugs
and Chemicals.
2. Procure and supply medicines, 2. Maintain mobile veterinary unit to 2. Report out-breaks of diseases and
equipment and other materials to
provide veterinary care and control
epidemics.
hospitals, dispensaries, RLUs and
diseases and epidemics.
AI Centres.
Through Z.P. Schemes.
i) Establishment of Poly
Clinics at veterinary
Through TP scheme. Opening of Rural Through

grass
root
level
Veterinary Dispensaries and their up functionaries of the department.
gradation as Taluk level dispensaries.
105
Activity
Zilla Panchayat
Hospitals.
ii) Supply of Drugs Chemicals
and Equipments.
iii) Strengthening of extension
Units.
iv) opening of Rural veterinary
Dispensaries and their up
gradation as Taluk Level
Dispensaries
3. Monitor
the
functions
veterinary services.
Taluk Panchayat
of
Surprise visits of Deputy Director of

AH&VS Regular review of progress
Regular auditing. Bureaucratic
supervision.
1. Propagate production of nutritive
1. Organise cooperatives for fodder
fodder and promote proper feeding
production and provide financial
of animals
assistance.
Feeding and Fodder

including support
during droughts
Grama Panchayat
1. Help in establishing cooperative

fodder farm.
Supply of good quality fodder seeds Special Development Programme in Silvipasture

Development
under
special
development backward Taluks and
fodder plot Gomal and Govt. land
programme
establishment.
in
2. Procure and establish fodder banks 2. Supply improved variety of fodder

in drought areas
seeds.
2. Allocate community land for

fodder production.
Not being done
Silvipasture Development: 1 Unit

of 4 Hectares/Taluk in ferments
land or Gomal of Grama
Funds under Natural Disaster from DC

Office. But not through T.P.
106
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
Panchayaths and @ 25000-00.
3. Propagate modern methods of feeding

to improve livestock productivity.
3. Control grazing and improve

grazing and pasture lands.
Enrichment of Fodder Training Silvipasture Development in

through
ATMA
Programme. Gomala of Grama Panchayath.
Department officials perform this
function.
4. Supply fodder during droughts.
4. Distribute fodder during

droughts.
Done through the co-ordination with Through

Fodder
Bank
local Revenue Officials.
Establishment of Goshalas in
Grama Panchayaths.
1. Assist Dairy Development Boards 1. Develop and open new milk routes for 1. Assist in organizing milk
or
Cooperatives
in
the
milk collection.
producers cooperative societies.
development of infrastructure for
milk collection, collection centres,
transportation and processing.
Dairy Development
Infrastructure facilities to milk Karnataka milk federation does

Partially
producing co-operative societies for
women under SGSY
2. Promote milk producers, cooperative 2. Identify beneficiaries for dairy
societies
development programme
Under SGSY Infrastructure fund.
Not done
3. Ensure timely payment to milk 3. Select beneficiaries under various
107
Activity
Zilla Panchayat
Taluk Panchayat
producers
Grama Panchayat
programmes.
Not done
Beneficiaries selected through

Grama Sabha
4. Supply quality milch animals.

Under special compound plan and
tribal.
1. Develop infrastructure for poultry 1. Train Poultry farmers
farming.
1. Identify beneficiaries for poultry

farming.
Not done
Not done
Not done
2. Production and supply of quality 2. Arrange for the supply of poultry feed.
chicks to poultry farmers.
2. Select beneficiaries and establish

poultry complexes for them under
various programmes.
ZP schemes Rearing of Giriraja Not done

bird and others.
The beneficiaries for ZP Schemes

selected through Grama sabha
Poultry Development
3. Allot or lease Community land

for establishing poultry complex
Not done
1. Formulate Projects for fisheries 1. Select beneficiaries
development.
training.
Fisheries
All Schemes except SCP and TSC Not done

implemented
by
Fisheries
Department are ZP Schemes. They
are:
Assistance to Fisheries Requisites
Assistance to Grass carp Fish Seed
108
for
fisheries 1. Develop
fisheries.
village
Pond
construction
MGNREGA
pond
for
under
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
purchase.
Assistance to Construction of Fish
pond in saline and water logged
area.
Exhibition and Training
Assistance to Fish Market and Fish
Sales
Assistance to Central Fish Farmers
Development Agency.
2. Technically appraise and approve 2. Organise fishermen's cooperatives.
projects for development of inland
water bodies for fisheries.
2. Identify
beneficiaries
for
assistance
under
various
programmes and assist them in
organizing
fishermen's
cooperatives.
Done through ZP programme.
Grama sabha identifies

beneficiaries.
Not done.
3. Establish fish seed production 3. Distribute boats, nets and other 3. Assist TPs in the distribution of
farms.
equipment and give assistance to
boats, nets and other equipment.
cooperatives and beneficiaries.
Done under schemes like assistance Being done at ZP level.
to inland fisheries development,
construction and maintenance of
fisheries buildings and facilities.
Assist ZP.
4. Formulate Projects for fisheries 4. Monitor, supervise and report progress

development.
4. Supervise and report progress to

TPs.
Done under Zilla Panchayath

programmes.
Not done.
Officials at taluk level perform.
109
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
5. Arrange training of fishermen in 5. Lease village ponds to fishermens 5. Execute fishpond and
modern management techniques
Co-operatives and groups
improvement projects.
for fish production.
tank
Fish Farmers Development Agency Not done. Grama Panchayath lease fish Not done.
performs this activity under ZP ponds within 40 hectares.
programme.
6. Procure and supply fishing
equipment for distribution among
selected fishermen's cooperatives
and beneficiaries.
ZP programme, loans to FCs for
purchase of Fishermans requisites.
7. Monitor and supervise
implementation.
plan
Being done under ZP programme.

1. Procure and supply motorised and 1. Select sites for marine aquaculture and 1. Identify beneficiaries and assist
modern boats and equipment to
brackish water fishing
them
in
organising
into
selected groups of beneficiaries
fishermen's cooperatives.
and cooperatives.
Development of
Marine fisheries.
Under ZP scheme of CSS Not done

Motorisation of traditional crafts. A
meager amount of Rs.29.70 lakhs
are provided for the whole state
during 2010-11.
2. Develop brackish water fisheries.
2. Organise fishermen's cooperatives.
2. Select Beneficiaries for assistance
Through a few ZP programme.
Grama sabha select the
Not done.
110
Not done
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
beneficiaries.
3. Enforce environmental restrictions 3. Distribute boats and equipment to 3. Distribute boats and equipment to
selected beneficiaries and cooperatives
on marine aquaculture and
beneficiaries and cooperatives
brackish fish production activities
Not done
Not done. It is a ZP programme.
Not done.
4. Install weather forecasting and 4. Monitor impact of marine aquaculture 4. Create awareness for and adopt
early warning system for marine
on environment
safety measures during rough
fishermen.
weather
Not done
Not done.
Not done.
5. Monitor the impact of Marine
aquaculture
on
village
environment and initiate impact
mitigation measures
Not done.
1. Encourage private entrepreneurs to 1. Organise and train fishermen in

establish processing, packaging
processing,
packaging
and
and storage facilities.
preservation of fish and fish products.
Development of
Infrastructure
Welfare Measures
Not done.
2. Assist in establishing
marketing infrastructure
Not done.
other 2. Develop tie-up arrangements between
fishermen and processing units
Under
Zilla
Panchayath Not done.
programme
assistance
for
construction of fish markets and
marketing of fish, this activity is
being carried out.
1. Promote group insurance schemes
1. Implement family and group insurance 1. Encourage fishermen to take up

111
Activity
Zilla Panchayat
for fishermen.
Taluk Panchayat
schemes for fishermen.
Grama Panchayat
insurance schemes
Not done.
Not done.
2. Sanction relief to affected families

during natural calamities.
2. Distribute relief to families affected by 2. Assess loss, damage and relief

calamities
requirements of families affected
by calamities
Not done.
Not done.
SOCIAL FORESTRY
1. Promote Social Forestry and Farm 1. Identify degraded and wastelands and
Forestry.
formulate social forestry projects.
Through MGNREGA
Through MGNREGA
Not done.
Not done.
1. Identify degraded and waste lands
for social and farm forestry and
formulate projects with the
support of the Grama Sabha.
Through MGNREGA
2. Promote and propagate social and 2. Implement TP social forestry projects 2. Execute social forestry projects
farm forestry for improving
and those assigned by ZP
through village people.
ecology and environment.
Social forestry and
Farm Forestry
Through MGNREGA and Special Through Special component plan and Through MGNREGA
Development Programme of social tribal sub plan
forestry.
3. Establish forest nurseries for 3. Plant trees along roads, rails and
supply of seedlings and saplings
public places.
for distribution.
3. Encourage private farmers for

farm forestry and assist them
Through special development plan Saplings raised under MGNREGA are Through MGNREGA
of social forestry.
being planted with the assistance of TP
4. Propagate fuel fodder and timber 4. Produce and supply seedlings and 4. Distribute seedlings and saplings
producing plants and bio-diversity
saplings for social and farm forestry
projects
112
Activity
Zilla Panchayat
Taluk Panchayat
Through special development plan Being done

of social forestry.
MGNREGA
5. Organise vana-mahotsava
Marketing of
Fuel/Fodder and
timber
at
GP
level
Grama Panchayat
under Through MGNREGA
5. Propagate fuel fodder and timber

producing plants
5. Organise and participate in vana

mahostsava
Not done
Not done
6. Lease land to groups and
individuals interested in social
forestry on sharing basis.
Under MGNREGA
6. Ensure adequate production of
fuel, fodder and timber for local
use.
Not done
1. Establish links for marketing of
forest products
Under MGNREGA
1. Collect, distribute and sell fuel,
fodder and timber
Not done
Not done
MINOR FOREST PRODUCE
Regeneration of MFP
species
1. Plan raising MFP plantation in 1. Establish

MFP
nurseries
concentrated blocks to facilitate
propagation of MFP species.
collection and marketing.
for 1. Assist in identification of families

willing to plant MFP species
Not done
Not done
2. Encourage cultivation of MFP in
existing forest, degraded forest
lands, barren and uncultivable
area, and community wastelands.
Through MGNREGA
2. Distribute MFP seedlings for
plantation.
Not done
3. Encourage plantation of MFP such
as gum, resin, medicinal plants,
aromatic plants, leaves, oil seeds,
Through MGNREGA
113
Activity
Zilla Panchayat
tans and dyes, grasses, seeds,
canes, bamboo, etc. particularly in
tribal areas.
Taluk Panchayat
Grama Panchayat
It is done through Tribal Sub PlanTP programme.

4. Promoting plantation of MFP
species in drought prone, desert
areas and under social forestry
activity under JGSY, particularly
in tribal areas.
Done through MGNREGA GP
programme.
Training
MFP Collection
1. Organise training for scientific

tapping of gums, resins, and
grading of MFPs
1. Organise training at the TP level.
1. Elect and forward trainees names

to the TP
Not done.
Under SGSY
Under SGSY
Monitor MFP collection activities in

forest ranges.
Timely payment of collection
Organise item wise MFP cooperatives

like Tendu leaf.
Organise pruning operation of

Tendu trees before the leaf plucking
season.
Not done.
Processing and
marketing charges.
Under TP programme Financial

Not done
assistance to LAMPS for establishment
of Processing units.
1. Set up small scale industrial units 1. Liaise with forest department for 1. Promote
collection
primary
for value addition to MFPs.
constitution
of
Joint
Forest
processing and value addition to
Management Committee for MFP
MFP before selling.
2. Fix support prices for MFP
regeneration
collection,
processing
procurement.
2. Ensure timely payment and
and marketing.
adequate collection charges to
114
Activity
Zilla Panchayat
Taluk Panchayat
3. Establish godowns for storage of 2. Ensure value addition to MFP before
MFPs.
it leaves the forest area
4. Strengthen market intelligence
and market extension
Not at all done.
Industrial Resource
potential survey
and Not done.
and
project
Whenever the occasion arises.
1.
Develop
inter-linkages
in 1.
Establish small rural industrial 1. Identify suitable locations for
institutions and organisations
estates and complexes.
rural industries.
2. Establish small industrial estates
at suitable locations and develop
other
related
infrastructure
activities.
3. Identify location and develop food
processing complexes.
Performed by line departments
Entrepreneur
Development
Not done
SMALL SCALE INDUSTRIES INCLUDING FOOD PROCESSING INDUSTRIES

1. Formulate Projects by the DIC in 1.
Assist
industrial
resource 1. Assist survey
coordination with KVIC/KVIB
potential survey.
formulation.
and other agencies based on
Industrial Resource Potential
survey.
Department of Industries
Commerce does this.
Development of
Infrastructure
Village forest committees are formed at

the GP level.
Grama Panchayat
MFP collectors.

1. Organise entrepreneurial Development
Programmes
2. Select entrepreneurs and encourage
private investments.
115
Activity
Zilla Panchayat
Taluk Panchayat
3. Establish
Industrial
counseling
Information and guiding centres
4. Assist entrepreneurs in formulating
viable projects, and cooperative
industrial projects.
Grama Panchayat
Not done
1. Provide information and guidance 1. Assist in providing financial and other
about credit facilities and other
help to small industries.
Government
financial incentives.
Departments and
2. Coordinate
credit
support
Agencies
activities
with
financial
institutions.
Performed by Department
Industries and Commerce.
of Not done
KHADI, VILLAGE AND COTTAGE INDUSTRIES

Planning, Monitoring
and Supervision
1. Consolidate plans prepared by TPs 1. Prepare plan for Khadi, Village and 1. Assist TP in identifying potential
for Khadi, Village and Cottage
Cottage Industries and other artisan
activities and formulation of
industries
including
artisan
activities integrating schemes of other
projects.
activities.
agencies such as KVIC/KVIB/
Handloom/Handicraft Development
Performed by District Industries Not done
Centre
2. Monitor and supervise the overall
progress in this sector, and ISB
sector of SGSY
District committee reviews the
116
Not done
Activity
Zilla Panchayat
Training Skill
development and
Transfer of technology
to beneficiaries
progress
1. Establish and identify training
Centres for Skill Development.
2. Allocate and sanction funds for
Training and stipend to the
trainees
3. Identify appropriate technologies
and arrange for their transfer to
workers.
Infrastructure
Development

support
Not done
1. Arrange supply of raw material,
equipment, and other inputs to
workers.
2. Tie up arrangements for marketing
of products through Government
and non-government marketing
agencies.
3. Set up retail show rooms for
products
4. Encourage
cooperatives
for
production and marketing of
products
Taluk Panchayat
Grama Panchayat
1. Select beneficiaries for Training and 1. Identify beneficiaries for training

Skill development and nominate them
through Gram Sabha.
to training Institutes.
2. Arrange master crafts persons
3. Pay stipend to beneficiaries and
honorarium / training cost to the
trainers.
4. Transfer and up gradation of
technology in different areas of
production.
Not done
1. Supply of raw material, equipment and
other inputs to beneficiary workers.
2. Coordinate programmes of various
agencies
for
infrastructure
development such as construction of
common workplaces, worksheets and
market complexes.
3. Organise Cooperatives for production
and marketing of products
Done under SGSY

1. Assist in Distribution of raw
material equipment, etc.
2. Allow beneficiaries to use locally
available raw material
3. Construct common work sheds /
workplaces
and
market
complexes.
Under SGSY
Under SGSY
Under SGSY
1. Ensure credit support through 1. Ensure credit support.
1. Identify beneficiaries for financial
credit plan.
support
under
various
2. Assist beneficiaries in formulating
117
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
2. Monitor and supervise credit flow
programmes
project plan.
and financial assistance from other 3. Arrange for subsidy and financial 2. Assist loan recovery
agencies to cooperatives and
support under various programmes to
individual units.
the beneficiaries.
4. Monitor, supervise and report
progress.
Not done. Line departments
perform and lead district bank
supports
Not done. Line department perform.
1. Through
grama
sabhas
beneficiaries are identified.
2. Not exactly participating

1. Provide information and guidance 1. Assist in providing financial and other
about credit facilities and other
help to small industries.
Government
financial incentives.
Departments and
2. Coordinate
credit
support
Agencies
activities
with
financial
institutions.
Department of Industries and
Commerce does.
Approval of TPs plan

and sanctioning of
fund for rural housing
schemes
Not done
RURAL HOUSING INCLUDING INDIRA AWAS YOJANA

1. Determine design and unit cost for 1. Assist GPs in execution of housing 1. Identify beneficiaries and prepare
guidance to GPs keeping in view
projects
lists through Gram Sabha.
technical advice and beneficiary 2. Procure and supply of building 2. Acquire land for housing layouts,
needs
materials
{other than Ashraya housing
layouts}
3. Assist in allotment and distribute
housing and house sites.
4. Constitute
beneficiaries
118
Activity
Supervision and
monitoring of rural
housing schemes
Zilla Panchayat
Taluk Panchayat
Decided at the state level.
Beneficiaries build their houses.
Grama Panchayat
committee.
5. Execute construction work.
6. Provide
assistance
in
the
distribution of building material.
1. List of houseless and site less
people is approved by grama
sabha.
2. Acquire land under Ashraya
scheme for formation of sites.
3. Grama sabha approves the list of
beneficiaries. The same is placed
before the Gram Panchayaths
and approved list is forwarded to
taluk Panchayath.
3. There
is
provision
for
constitution of vasati samiti at
Gram Panchayat level,. But it is
not effective.
5. Beneficiaries
themselves
construct the houses.
6. Distribution of building material
is banned.
1. Supervise construction quality,
use of material and report
progress.
Houses are built by beneficiaries
themselves now, on the basis of the
progress of the construction money
119
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
is being released directly to the
beneficiarys bank account.
DRINKING WATER
supply system

supply schemes
1. Formulate major water supply 1. Formulate projects and seek technical

schemes
approval from ZP
2. Technically appraise and approve 2. Construct schemes within the
schemes proposed by TPs and
prescribed cost limits for TPs.
GPs.
3. Award contracts for the execution
of major schemes outside TP and
GP plans
4. Establish water testing laboratories
for control of chemical and
biogenic impurities.
1. Identify schemes and locations,

estimate cost and formulate
projects through the involvement
of Gram Sabha.
2. Construct wells, tanks and village
water supply schemes of its own
or as assigned by the ZP or TP
3. Periodically
chlorinate open
wells and treat water
4. Ensure proper distribution of
water to all households in its
villages.
5. Collect water sample for testing
Drinking water scheme action plans and projects are prepared by the Engineering personnel and forwarded to CEPRED through CEO, since 2010-11.
1. Monitor and supervise the 1. Monitor and supervise progress and 1. Monitor scheme implementation
progress, quality of work and
quality of works.
and report progress,
target achievement
Not done. Done by the Engineering
Department.
Not done. Done by the Engineering

Department.
Maintenance of water
supply system
Not done
Maintain drinking water schemes,
collect water charges and appoint
operators wherever necessary
Rs.8000 per piped water supply
120
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
Scheme, Rs.3500 mini water
supply scheme and Rs.600 per
Hand pump provided Thirteenth
Finance Commission grants can
also be utilized for maintenance of
water supply schemes.
FUEL AND FODDER

Fodder
1. Build awareness for use of fuel- 1. Identify wastelands and degraded

efficient devices and improved
lands for taking up fuel and fodder
fodder species.
plantation.
2. Consolidate assessments of fodder
and fuel demands for the district
Plan and coordinate fuel and
fodder production activities
No such activities are carried out.
Only under MGNREGA
121
1. Assess
fuel
and
fodder
requirements.
2. Select species and sites for fuel
and fodder plantations
3. Identify beneficiaries for fuel and
fodder demonstration plots,
4. Undertake plantation activities.
5. Maintain and protect fuel wood
plantations and fodder plots in
community or panchayat lands
6. Decide mechanism and oversee
the distribution of fuel and fodder
produced from community lots
7. Identify sites for fodder nurseries.
8. Coordinate nursery establishment
programme.
9. Distribute fuel efficient wood
stoves and smokeless chulhas
Officials perform this activity.
Only
under
MGNREGA
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
activities form SL.No. 2 to
Sl.No.8 can be taken up. Vana
samvardhana scheme dropped
2. Distribution of
improved
Chullahs under NPIC (National
Programme
for
Improved
Chullah) is also dropped
Bio-Gas
Development
Centrally
sponsored
Programme is implemented as
GP scheme.
ROADS, CULVERTS, BRIDGES, FERRIES, WATERWAYS AND OTHER MEANS OF COMMUNICATION

Development of road
1. Survey, technical feasibility, road 1. Identify villages as per MNP norms 1. Assist in formulating road
network and
alignment, and formulate road
inaccessible by all weather road and
construction projects and obtain
accessibility
development projects.
formulate projects for construction of
approval through Gram Sabha.
link
roads
connecting
more
than
one
2. Approve, allocate and sanction
2. Seek technical advice, feasibility
TP.
funds,
and approval from TP engineers,
3. Assist in acquiring land, assess 2. Survey, technical feasibility, sanction 3. Allocate, approve and sanction
of funds
grant of compensation
funds.
3.
Acquire
land,
assess
and
grant
4.
Award
contracts
for
4. Construct village link roads and
compensation.
procurement of material and
village lanes through works
equipment for construction of 4. Construct roads using local labour
committees, using village labour
roads and bridges and make
without contractors.
without contractors
supplies
5. Provide technical assistance for road 5. Monitor and supervise quality of
5. Monitor specifications of roads
construction projects proposed by
works through work committee
and bridges and supervise quality
GPs.
and report progress to IP
of works
6. Monitor the specifications of roads
and bridges and supervise of the
122
Activity
Zilla Panchayat
1.
Department of
Officials
perform this function under
PMGSY the Division repairs the
road plan and places it before the
General Body Meeting of the
Zilla Panchayath
2.
Done by the State
3.
Done under Z.P. Scheme
4. E-Tendering is done. Works are
being executed as per KTTP Act.
5. Done under Z.P. Scheme
Improvement and
Maintenance of the
existing roads /
culverts and bridges
Taluk Panchayat
quality of works and reporting
progress to the DP.
Grama Panchayat
There is only one TP scheme - 1. Needs are identified in the

asphalting road in village limits.
Grama Sabha.
2. It is being done. Further
Engineers are there for 2-3 GPs.
3. It is being done under GP
programmes
4. Through MGNREGA without
contractors.
5. It is being done for works
executed under GP funds.
1. Conduct traffic volume survey and 1. Convert TP roads into black topped 1. Assess costs of improvement,
identify road sections needing
roads
repair and annual maintenance of
improvement in capacity.
village roads.
Done by the line department.
It is done
2. Convert ordinary district roads 2. Undertake

annual
repairs
and 2. Raise funds through government
into blacktopped roads
maintenance of roads, culverts and
or own sources and donations
bridges
with the help of Gram Sabha
Ordinary district roads is not under Done by the line department.
ZP purview
Done
3. Carry out annual repair and 3. Approve, allocate and sanction funds 3. Execute works through work
maintenance of roads, culverts and
for improvement and. maintenance of
Committee
bridges.
IP roads.
Done under
Chief Minister Done
Grameena
Rasta
Abhivruddi
Done
123
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
Yojane.
4. Approve, allocate and sanction 4. Monitor and supervise quality of
funds for all types of improvement
works and report progress.
and annual maintenance work and
award contracts
Partially done and award of Done by the line department.
contracts done by the department as
per KTPP act.
5.
Monitor and supervise the
quality of works.
Done
Development of
1. Identify waterways suitable for 1. Inspect ferries and boats and maintain
construction of jetties for ferry
vigilance on services and traffic
regulations.
services.
2. Purchase ferries and contract
private operators for ferry services
3. Deepen and dredge waterways.
Regulate ferry services
Not done.
Expansion of
electrification
Not done.
RURAL ELECTRIFICATION INCLUDING DISTRIBUTION OF ELECTRICITY

1. Assess unelectrified villages, 1. Assist in obtaining power connection 1. Find land for installing electric
hamlets
and
colonies
and
for poor and SC/ST /OBC families
electrification transmission poles.
formulate projects for their
under various programmes
electrification in coordination with
KPTCL
ZP
co-operate
with
electrical It is being done

124
Co-operate
with
electrical
Activity
Zilla Panchayat
companies. The subject is reviewed
in
Karnataka
Development
Programme review meeting.
Taluk Panchayat
Grama Panchayat
companies.
2. Monitor and reporting progress of 2. Maintain and operate street lights

energisation of irrigation pump sets
Monitoring power
supply
Yes. It is being done. Monthly it is It is being done

being
reviewed
in
Karnataka
Development
Programme
review
meeting.
1. Ensure
power
supply
for
1. Report position during power
agriculture during critical periods.
supply prime crop season.
It is decided at the highest level of
the Government
2. Exercise vigilance against power
theft and illegal connection
It is decided at highest level of the

Government
2. Exercise Vigilance and report
against power theft and illegal
connections
Officials of electrical companies

and inspectorate perform this
function

function
3. Monitor power supply for
agriculture and assist in checking
power theft and illegal
connections
function.
125
Activity
Assessment of
districts energy
requirement
Zilla Panchayat
Grama Panchayat
NON-CONVENTIONAL ENERGY
1. Consolidate TPs plans for energy 1. Formulate projects for use of non- 1. Assist TP in identification of
requirement and supply through
conventional sources of energy in the
potential
sources
of
nonnon- conventional means
TP
conventional energy devices
requirement such as gobar gas,
bio-mass, solar energy and wind
energy
It is being done
Promoting nonconventional sources

of energy which
includes installations
of solar panels, wind
mills and gobar gas
plants and extension
education
Taluk Panchayat
It is being done
Assist the bureaucracy in the

preparation of projects based on
the potentiality
1. Promote non-conventional energy 1. Procure and supply material and 1. Assist in identification of
devices and sources.
equipment for the projects.
beneficiary for individual biogas
plants and other devices.
2. Promote and popularise energy 2. Assist in identifying suitably locations
saving devices.
and select individual beneficiaries for 2. Organise beneficiary training
installation of community and private 3. Monitor functioning of NCE
3. Coordinate different agencies
sources of energy.
including NGOs for promotion of
devices
alternative sources of energy
3. Train users in the maintenance of nonconventional energy devices.
4. Monitor and supervise the operation
and functioning of the projects
There is only one GP programme
Bio-gas development which is being
monitored. The above three
activities are performed by the
departmental officials
There is only one GP programme

Bio-gas
development
Bio-gas development which is being
programme is implemented.
monitored.
No Procurement is done. At present no
training programmes are conducted at
TP level.
126
GP
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
POVERTY ALLEVIATION PROGRAMMES

Planning and
implementation of
Poverty Alleviation
Programmes
1. Coordinate
with
departments and agencies
other 1. Assist GPs in providing technical and 1. Identify beneficiaries under

managerial
assistance
for
SGSY and other individual
implementation of schemes entrusted
beneficiary oriented poverty
to TPs
alleviation schemes, JGSY and
other employment generation
programmes entrusted to GPs
after approval of Grama Sabha.
It is done.
2. Develop training infrastructure
Done.
Done under SGSY
2. Collect and distribute data regarding 2. Utilise
JGSY
for
the
development and management at the
development of infrastructure in
district level
the GP.
Done by the line department
Scheme not in existence
3. Allocate funds for training and 3. Assist in the evaluation of schemes.

stipend for trainees.
3. Assist TP for the distribution of

identity cards under Employment
Assurance Scheme.
Done.
Done.
4. Procure and supply

quality 4. Release of funds to banks for subsidy 4. Put up information boards about
assets, machinery and equipment
adjustment, formulation of credit
all the works taken up under
for beneficiary schemes
plans through banks
Employment Assurance scheme.
Done.
5. Develop marketing infrastructure 5. Prepare plans at the block level under 5. Assist the TP in preparation of
marketing network for SGSY self
SGSY for filling up gaps in
plans for land development
help group products
technology, marketing
tie-ups,
schemes coming within TPs
training, strengthening infrastructure
purview
127
Activity
Zilla Panchayat
Done.
Taluk Panchayat
and market facilities.
Grama Panchayat
6. Prepare
plan
for
poverty 6. Assist GPs in organizing self-help 6. Select beneficiaries in Drought
alleviation programmes at district
groups and implement cluster
Prone Areas Programme.
level.
strategies
It is done.
Done.
7. Assist in extending technical 7. Review plans prepared by the GPs 7. Identify eligible beneficiaries
assistance for planning at GP and
and accord technical approval and
under Samagra Awaas Yojana
TP level.
assistance
Done.
Done.
8. Supervise
and
review 8. Draw action plans, get technical 8. Ensure proper utilization of
implementation
of
different
approvals and funds allocated under
funds of Central Finance
poverty alleviation programmes
land development scheme.
Commission by local bodies and
ensure that the scheme works
permitted within GPs are
completed.
It is done.
Done.
9. Review schemes implemented in 9. TPs can implement schemes with the 9. Identify beneficiaries under
Drought Prone Areas.
help of GPs and integrate other
Rural Sanitation Programme and
programmes with poverty alleviation
provision of Drinking Water
schemes
schemes.
It is done.
Done.
10.The ZP in active cooperation with 10.Assist in supervision of works under 10.

Arrange live demonstration
the TP and District Planning
District Decentralized Plan
under smokeless chulhas scheme
Committee
may
arrange
and
identification
of
decentralized Planning.
beneficiaries under National
128
Activity
Zilla Panchayat
Taluk Panchayat
Done
Done.
Grama Panchayat
Project on Improved Chulhas
and Sanitation Programme.
Scheme not implemented.
11. Review and supervise schemes 11.

Plan
and
implement 11.
Undertake the national
implemented under the grants
infrastructure development by rural
project on improved Chulhas and
recommended by the Central
local bodies.
Sanitation.
Finance Commission for local
bodies
Done
Done.
12. Review implementation of Rural 12.

Plan and implement Integrated
Sanitation and Water Supply
Rural Sanitation and Water Supply
scheme.
Scheme.
Done
13.
Implement
Employment.
Not done.
and
supervise 13.Arrange practical demonstration

under smokeless chulhas scheme

14.
Review
Central
Sanitation Programme.

Rural
Scheme is not in existence.

15.
Plan and review Biogas
plants schemes for individuals
and community.
Done.
16. Undertake Planning and review
of smokeless chulhas scheme and
National Project on Improved
129
Activity
Zilla Panchayat
Chulhas.
Taluk Panchayat
Grama Panchayat
Scheme is not being implemented.

Wage Employment
programmes
1. Prepare ZP level shelf of projects 1. Formulate projects with TP funds

and desegregate it into plans that
can be implemented by TP and GP
plans.
1. Assist in identification of
labourers in the village requiring
wage employment through Gram
Sabha, list them and provide
employment
cards
to
beneficiaries.
2. Formulate projects outside TP and 2. Scrutinise and grant technical approval 2. Formulate projects and get
GP
to GP Projects.
approval through Gram Sabha
and seek technical approval from
TP.
3. Assign projects to TPs, GPs, 3. Procure and supply material for 3. Constitute works committee for
NGOs and various other agencies
projects.
execution of works and projects.
and departments for execution.
4. Approve, sanction and release 4. Technically assist GPs for executing 4. Ensure employment to all in the
funds to TPs, GPs and other
projects.
village
organizations for the execution of
ZP projects.
5. Release funds to TPs as per 5. Execute projects outside GPs plans.
prescribed norms
5. Distribute projects and works as

per norms
6. Provide funds for maintenance of 6. Inspect muster rolls, quality of work, 6. Monitor and supervise quality of
assets created under JGSY / EAS
assets created and man days generated
works, assets created and man
etc.
by projects executed by IP and GPs.
days generated.
7. Inspect muster rolls and check
quality of works and wage
material ratio as per guidelines
130
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
8. Monitor and supervise progress of

programmes.
9. Submit quarterly returns and
utilization certificates to GOI and
State Government for release of
next installments.
MGNREGA is the only wage employment programme. Grama Panchayath is the implementing tier. TP and ZP
approve the labour budget, co-ordinate, facilitate and monitor the implementation.
EDUCATION INCLUDING PRIMARY AND SECONDARY SCHOOLS
Expansion and
development of
educational facilities.
1. Assess the requirements of 1. Supervise the functioning of primary 1. Ensure full enrollment of school
schools, teachers, equipment, etc.
and upper primary schools
age children
in the district and plan for them.
2. Maintain school buildings and related 2. Maintain school buildings, and
2. Supervise and monitor quality of
infrastructure.
play grounds,
educational services.
3. Supply and distribute material and 3. Exercise vigilance on regular
equipment to schools.
attendance of teachers and
students and report to the
concerned.
4. Campaign for full enrollment and
reduction of dropouts
5. Assess the drop out position and
initiate appropriate action to
reduce it.
It is being done
It is being done
131
These functions are performed.

School
Development
and
Monitoring Committee works
under the monitoring of civic
amenities of committee.
Activity
Establishment and
maintenance of
hostels, and other
welfare measures for
target group students.
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
1. Assess
and
plan
hostel 1. Distribute school uniforms, books and 1. Assist TPs in the distribution of
requirements for target group
other materials to target group
study material to target group
students.
students.
students
2. Assist in the maintenance of hostels.
2. Maintain hostels.
3. Supply school uniforms and books
for target group students.
Through social welfare backward Through social welfare backward It is being done
classes and minorities, Tribal classes and minorities, Tribal welfare
welfare schemes these activities are schemes these activities are performed.
performed.
Establishment and
maintenance of ITIs
TECHNICAL TRAINING AND VOCATIONAL EDUCATION

1. Establish and maintain ITIs
1. Conduct aptitude tests for selection of
students under various trades
2. Assess and plan for technical
training
2. Recommend for admission and
placement in ITIs
3. Assess vocational education needs
4. Supervise
and
monitor
functioning of ITIs
1. Not done
2. Not done
3. Not done
4. Not done
Promotion and
identifying suitable
courses for vocational
according to the needs
and potential of
Only one TP scheme has been

transferred from state sector to district
sector. Special component plan for
SC/ST.
1. Select courses for vocational 1. Assist in the promotion of vocational 1. Assist in identification and
education and identify education
education in schools and centres
recommend eligible candidates
schools and centres for important 2. Select candidates and students for
for vocational education and
courses
training
vocational courses
2. Motivate students for vocational
132
Activity
different areas in
education
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
training
1. Not done
2. Not done
1. Not done
2. Not done
1. Not done
Only one scheme has been transferred from state sector to district sector special component plan for training
programme for SC/ST. No other provisions are made in link document.
ADULT AND NON-FORMAL EDUCATION
Planning and
implementation of
adult and non-formal
education Total
Literacy Campaign
1. Identify suitable locations for 1. Implement Adult and

establishing
adult
education
education programmes
centres.
literacy campaigns
Adult
Education
performs
non-formal 1. Help in mobilising people for

and total
participation in Adult education
and TLC campaigns
department Done by the line department
2. Select volunteers and supervisors 2. Distribute material to the centres

for teaching and maintenance of
centres
Adult
Education
department Done by the line department
performs
3. Procure and supply all relevant
infrastructure and educational
material to centres.
Adult
Education
department
performs
4. Supervise and monitor activities
of adult education centres
133
2. Supervise
and
assist
in
functioning of centres and ensure
regularity of learners and
volunteers.
3. Supervise
and
monitor
functioning of the centers
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
5. Organise total literacy campaign
Establishment and
maintenance of
libraries
LIBRARIES
1. Plan for establishment of new 1. Assist in the maintenance
libraries and maintain and improve
functioning of libraries
existing ones
2. Procure and supply books, reading
material and popular literature
and 1. Establish and maintain libraries

2. Up-keep of library
3. Raise donations and collect books
for library
4. Subscribe to vernacular news
papers and magazines
Administration of rural libraries Administration of rural libraries shifted

shifted to district sector since 16-10- to district sector since 16-10-2004
2004
Maintenance of libraries is a GP
function. GPs collects library cess.
CULTURAL ACTIVITIES
activities
1. Guide, encourage and organise 1. Organise local festivals with the help 1. Organise sports festivals and
cultural programmes
of GPs
cultural events in villages using
folk media for strengthening of
national
integration,
family
planning campaign, literacy,
sanitation, etc.
It is done.
2. Utilise available popular media for 2. Plan and organise sports and cultural 2. To promote sports and organize
cultural affairs
meets with the help of local
youth clubs
organisations and voluntary efforts
Line department performs.
3. Organise youth festivals, sports
events on dates of national and
134
Done.
Activity
Zilla Panchayat
state importance
Taluk Panchayat
Grama Panchayat
Youth service department performs.

4. Establish
sports
complexes,
theatres and other infrastructure
Youth service department performs.
5. Identify and mobilise sponsors for
cultural and sports events and
youth festivals
Youth service and Kannada &
Culture department performs.
6. Maintain and
functioning of
Kendras
supervise the
Nehru Yuvak

Identification of
location and
development of market
yards
MARKETS AND FAIRS

1. Identify locations and develop 1. Develop and maintain agricultural 1. Maintain village fairs and weekly
marketing yards and infrastructure
market yards
markets
for marketing rural products and 2. Develop and maintain places for 2. Construct market complex within
formulating projects.
fairs/shandies and weekly markets
the GP.
Under SGSY funds and link Through grants on Central Finance Through Swarna Jayanthi Grama
document ZP programme.
Commission recommendations.
Swarozgar funds.
Market infrastructure programme.
Regulating wholesale
and retail markets,
1. Assist in Regulating
and retail markets
wholesale 1. Enforce fair trade practices and

maintain quality of commodities
135
Activity
supervision and
monitoring of
marketing activities
Zilla Panchayat
Taluk Panchayat
2. Supervise and monitor marketing 2. Assist in the maintenance of statistics
activities
on prices and commodity traded
3. Supervise District service and 3. Maintain statistics on prices and
marketing societies
commodities transacted within the
district.
Not done
Grama Panchayat
Not done
HEALTH AND SANITATION, INCLUDING HOSPITALS, PRIMARY HEALTH CENTRES AND DISPENSARIES
Health care
1.
Plan
through
health 1. Assist in supervision and maintenance 1. Assist in formation of village
committees to provide physical
of sub-centres and deployment of field
health committees comprising
infrastructure
staff
Panchayat
members,
representatives
of
villagers,
village health guide (VHG)
Trained Birth Assistant (TBA)
and
Multi-purpose
Health
Workers
Done.
Done.
Done
2. Coordinate
communicable 2. Supervise mid-day meals schemes for 2. Upkeep of village sanitation,
diseases programme with the State
school children
cleaning of roads and drainage
Done by the Health & Family Done.
Welfare Department.
Done
3. Coordinate
construction
and 3. Organise health and family welfare 3. Mobilise and organise people for
maintenance and supervise of
camps and conduct demonstrationhealth and family planning and
PHCs
cum-exhibition
programmes
on,
immunisation camps.
health, family welfare and sanitation.
Done.
4. Maintain district
Done.
ISM
(Indian 4. Assist
136
Done
in
supervision
of
Indian 4. Coordinate
and
supervise
Activity
Zilla Panchayat
System of Medicine) hospitals
Done.
Taluk Panchayat
Systems
of
Medicine
dispensaries.
Grama Panchayat
construction of sanitary latrines
(ISM)
Done.
Done.
5. Periodically
conduct
Epidemiological surveys
6. Promote
programmes
school
health
Done.
7. Organise health awareness rallies
and camps
Done.
These activities are performed These activities are performed through National Rural Health Mission has
through ZP programmes specified TP programme specified in link strengthened the system at Grama
in link document.
document.
Panchayath level. Funds from
Total Sanitation Campaign. Funds
and recommendations of Central
Finance
Commission
have
facilitated the GPs to carry out
these activities.
Sanitation
1.
Plan rural sanitation

1. Organise and supervise sanitary marts.
programmes
2. Formulate plan for assisting in the
2.
Promote
Information,
construction of sanitary latrines.
Education and Communication 3. Assist in inspection /assessment of
(IEC) campaigns
quality of public health inputs and
services.
137
1.
Chlorinate village tanks and

wells and spraying of DDT .
2. Assist
in
construction
of
individual sanitary latrines
3. Report of outbreak of epidemics
4. Assist in coordinating emergency
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
medical relief services
Yes. Done under Total Sanitation Yes. These activities are performed.
Campaign and other Health and
Family
Welfare
Department
programme.
Maternal and Child

Health (MCH) Centres
1. Plan for Family

programme
These activities are performed. As

per Section 58 of KPR Act GPs
have
to
discharge
their
responsibilities with the available
funds.
FAMILY WELFARE
Welfare 1. Distribute medicines, equipment and 1.
Assist in propagation of
family planning materials to centres.
maternal child care, family
planning and immunisation
programmes
Done.
Done.
Done.
2. Establish and maintain MCHs.
2. Propagate and create awareness about 2.

Assist in identification and
maternal and child care immunization
recommendation of beneficiaries
for maternity aid under NSAP
and family planning schemes.
and related schemes
Done.
Done.
Done.
3. Supply medicines and equipment 3. Coordinate and assist in monitoring 3.
Assist in maintenance and
to MCHs
and supervision of family welfare and
supervision of Anganwadies
family planning services
Done.
4. Train mid-wives and
medical functionaries
Done.
Done.
Para 4. Assist in organising family planning 4.
Identify beneficiary mothers
and immunisation camps
and children

Done.
5. Coordinate
with 5. Organise IEC Health
state/international agencies
promotional campaigns
138
Done.
and FW 5. Supervise the activities of ANMs
Distribute
and Anganwadi workers
Activity
Zilla Panchayat
Taluk Panchayat
materials, medicines and equipment
to ICDS Promote school health
programme
centres.
Assist
beneficiaries, mothers and children.
Grama Panchayat
Done.
Done.
6. Provide immunisation services
6. Distribute materials, medicines and 6. Collect vital statistics (e.g. births,

equipment to ICDS Promote school
deaths etc.)
health programme centres.
Done.
7. Propagate
family
planning 7. Assist beneficiaries, mothers and
methods, procure supply and
children.
distribute contraceptives
Done.
Done.
8. Organise family planning and

immunisation camps
Done.
9. Identify and approve NGOs for
FW
Done.
10.
Organise IEC/Health and FW
promotional campaigns.
Done.
11.
Promote
Programmes.
school
Health
Done.
139
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
12.
Plan supervise and monitor
ICDS
Done.
13.
Procure,
supply
and
distribute meals for children,
medicines and equipment for
ICDS centres.
Done.
14.
Train ANMs and others
Done.
15. Liaise with State/ National level
health programmes
Socio economic
development of
women
WOMEN AND CHILD DEVELOPMENT

1. Promote equal opportunity to 1.
Propagate the message of equal 1. Generate
awareness
among
women in all sectors of
opportunity to women in all sectors of
women about their rights.
development -social economic and
development
political.
It is done.
It is done.
It is done by Women & Child

Department.
2. Mobilise social support against 2.

Mobilise social support against 2. Promote
social evils like dowry, sex
social evils that discriminate against
women
determination, gender biases like
women.
killing girl child at birth,
discrimination in educating girl
child, etc.
140
self-help
groups
of
Activity
Zilla Panchayat
It is done by line department.
Taluk Panchayat
Grama Panchayat
3. Promote opportunities for women 3.

identify
income
to engage themselves in income
activities for women
generating activities.
Promotional activities are done by

GP.
generating
It is done.
4. Protect the interests of women
workers in the unorganised sector.
5. Ensure payment of minimum
wages to women agricultural
labourers.
The activities are performed by the The activities are performed by the It is being done.
department and the progress is department and the progress is
reviewed in the ZP KDP meeting.
reviewed in the TP KDP meeting.
Maternity benefit
Development of
Women and Children
in Rural Areas
(DWCRA)
1. Help pregnant women receive 1. Generate awareness among women 1. Identify pregnant women eligible
maternity benefits under the
about maternity benefit scheme,
for maternity benefit scheme, and
National
Maternity
Benefit
proper age of marriage and small
help them in getting benefits.
Scheme.
family norm
Done by department staff.
1. Supervise, guide and support 1. Prepare annual action plan
district level officials concerned
with the implementation of
DWCRA programme

1. Assist in development of data
base for women and child
development programmes.
Scheme is winded off.

141
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
2. Prepare district annual action plan 2. Assist ZP & GP in organizing 2. Prepare annual action plan
through
consolidation
and
training programmes, workshops and
aggregation of village and block
meetings.
level plans.
3. Appraise resources and conduct 3. Ensure convergence of services in 3. Assist

ZP
market surveys to identify
coordination with other departments
identification
demand based income-generating
at GP level
beneficiaries
activities.
and
of
TP
in
women
Done.
4. Prepare annual action plan for 4. Mobilise and organise women 4. Assist in identification and
DWCRA in line with the credit
through NGOs for implementation of
selection of demand based
plan
programmes
income-generating activities for
women groups.
Done.
5. Ascertain the availability of funds

for women and child welfare
5. Assist in conducting credit

camps to provide access to credit
for women groups from financial
institutions.

6. Identify active NGOs for the
implementation
of
the
Programme
Done.
6. Assist in organizing self
help/thrift and credit groups as
an entry point to the programme.
Done.
7. Ensure
coordination
converging services.
in
7. Assist in conducting training

programmes in
142
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
a. awareness building
b. gender sensitization
c. leadership and
d. skill development
Done.
8. Set up infrastructure facilities in

support of the programme.
8. Maintain infrastructure facilities

like drinking water, sanitation,
anganwadi
centers
primary
schools, common work sheds
and provide accommodation for
front line workers.
Done.
9. Assist in ensuring convergence
of services to women groups;
literacy, health, immunisation
and family welfare.
Assists the line departments.
10.
Assist women groups in
procuring raw materials
Assists the line departments.
DWCRA programme is not there. Through SGSY programme

However Swarna Jayanthi Grama
Swarozgar
Yojana
is
being
implemented.
Integrated Child
1. Supervise,
guide
and
With the grass root level staff of

Rural Development, ICDS, Health
and Family Welfare, Education,
Adult Education activities are
performed.
support 1. Supervise project staff of women and 1. Assist ICDS staff in TPs in
143
Activity
Development
Zilla Panchayat
Services
(ICDS)
for
implementation of ICDS projects
Done.
2. Monitor functioning
Scheme in the district
Done.
Taluk Panchayat
child welfare department
Done.
of
Grama Panchayat
conducting surveys
Done.
the 2. Assist officers concerned with the 2. Assist

in
programme in procurement and
beneficiaries
distribution of nutrition material and
other medical supplies.
Done.
selection
of
Done.
3. Promote people's participation in 3. Provide infrastructural facilities and 3. Assist in selection of sites for
programmes through involvement
other logistic support to facilitate
locating Anganwadi centers
of local leadership.
implementation of the programme
Done.
Done.
Done.
4. Coordinate with the District 4. Identify child labour working in 4. Ensure community participation
Collector for elimination of child
hazardous and other occupations
through
organizing
regular
labour.
meetings
Done.
Done.
5. Construct Anganwadi Centres in GPs
5. Involve women GP members in

supervising the functioning of
Anganwadi centres particularly
while ensuring attendance in the
center,
maintenance
of
cleanliness
and
hygiene,
supplementary nutrition in terms
of dietary schedule and timings,
proper child care and meeting of
educational needs, regular health
check up and immunization
144
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
Done.
Done.
6. Assist in the distribution of
nutrition and conduct of regular
health check-up
Done.
Done by department staff

Done by department staff
Done with the help of ICDS,
Health and Family Welfare staff.
ZP programme in link document TP programme in link document
Child Welfare
1.
ICDS district cell
2. Centrally sponsored scheme of
integrated child development service
3. Construction of Anganwadi buildings
4. Pre-school
children
feeding
programme
SOCIAL WELFARE, INCLUDING WELFARE OF THE HANDICAPPED AND MENTALLY RETARDED
Welfare of the
Disabled
1. Survey and classify disabled 1. Identify

disabled
persons
persons according to the nature of
coordinate with ZPs for
disability.
rehabilitation
It is done by Women
Department.
2. Make available text books in

Braille to visually handicapped
children in the schools.
145
&
and 1. Assist in identification of

their
disabled persons and coordinate
with Block and Zilla Panchayats
for their rehabilitation.
Child It is done.
Activity
Zilla Panchayat
Taluk Panchayat
3. Facilitate easy access to and

mobility with buildings and public
places for persons with disability
especially for people on wheel
chair and persons with visual
disabilities.
4. Inspect, supervise and monitor
voluntary organisations receiving
grant-in-aid from the Ministry of
Welfare GOI for rehabilitation of
persons with disability
5. Identify and promote voluntary
organs receiving grant in-aid
from the Ministry of Welfare,
Government
of
India
for
rehabilitation of leprosy patients.
6.
Identify
voluntary
organisations and assist them to
set up Special Schools for disabled
persons with Grant-in-aid from the
Ministry of Welfare.

7. Coordinate with organizations and
government in getting assistance
146
Grama Panchayat
Activity
Zilla Panchayat
for purchase of aids and
appliances for disabled persons.
Taluk Panchayat
Grama Panchayat

8. Coordinate
with
Special
Employment
Exchanges
and
Vocational Rehabilitation Centres
for assisting disabled persons to
secure employment.
9. Coordinate
with
District
Rehabilitation
Centres
for
providing rehabilitation services to
disabled persons.
10.Organise Sports Meet and
Cultural Programmes for people
with disabilities.
A separate wing of women & child This being done partially by the Taluk GPs perform this function with
welfare department at the district Panchayat
assistance from NGOs and
Resource Persons.
level performs these functions and
the programmes are financed by the
state sector. There is one ZP
programme where non-government
institutions are involved for the
welfare of physically handicapped.
147
Activity
Street Children
Zilla Panchayat
Not done, but Done by the line Not done, but Done by the line
department.
department.
1. Identify voluntary organizations 1. Identify parents willing to adopt 1. Assist in identification of parents
which deal with the adoption of
children and coordinate with the
willing to adopt children and
District Panchayat for their growth
coordinate with the TP and ZP for
destitute, abandoned, orphaned
and development.
their growth and development.
and relinquished children by
giving the child for growth and
development to parents other than
the child's biological parents, and
help in the adoption of orphaned
children.
Not done, but Done by the line
department.
Welfare of the Aged
Grama Panchayat
1. Identify street children suffering 1. Identify street children and coordinate 1. Assist in identification of street
from destitution, neglect, abuse
with the ZP for their development
children Coordinate with the TP
and ZP for rehabilitation and
and exploitation and help them in
getting integrated community
development
based
non-Institutional
basic
services
through
voluntary
organisations who get grant-in- aid
from Ministry of Welfare,
Government of India.
department.
Taluk Panchayat

department.
1. Identify destitute and aged persons 1. Identify the aged and coordinate with 1. Assist in identification of the
and help them in taking shelter in
the ZP for their maintenance, and
aged and coordinate with the ZP
voluntary organisations which
giving old age pension.
and TP for their maintenance and
receive grant-in-aids from the
giving old age pension.
Ministry of
Welfare
State
Governments for running Old Age
148
Activity
Zilla Panchayat
Homes; and for giving old age
pension.
Taluk Panchayat
Grama Panchayat
ZP activity is limited to identifying Through Child Development Project Through grass root level workers
voluntary organization to perform Officers
of
Women
&
Child of the department
the functions.
Department
Drug use Prevention
1. Build awareness and educate 1. Build awareness and educate people 1. Assist in building awareness and
people about ill-effects of drug
about ill-effects of drug abuse and
educating people about ill effects
abuse and prevent it
prevent it
of drug abuse and prevent it.
2. Assist drug addicts through a well 2. Coordinate with the ZP for their 2. Coordinate with the ZP and TP
rounded up programme of
rehabilitation
for the rehabilitation of drug
motivation, counseling, treatment,
addicts
follow up and social reintegration
of cured drug addicts at
Counseling Centres for drug
addicts
run
by
voluntary
organisations for which they get
grant in-aid from the Welfare
Ministry
Not done.
Not done.
3. Take drug addicts to counseling, 3. Take drug addicts to counseling, de- 3. Take drug addicts to counseling,
de-addiction and after care centres,
addiction and after care centres,
de-addiction and after care
deaddiction
and
awareness
deaddiction and awareness generating
centres,
deaddiction
and
generating camps for their
camps for their rehabilitation
awareness generating camps for
rehabilitation
their rehabilitation
149
7. Activity Mapping for Panchayat Raj Institutions Proposed Modifications

The Activity Mapping for Panchayat Raj Institutions circular was issued by
Government of Karnataka vide Notification No: RDP.367.ZPS.2002 dt. 18-08-2003. The
present study was taken up to ascertain the extent to which the activity mapping is
followed in the implementation of various development programmes by different line
departments and the role of different tiers of PRIs under different activities. Based on this
action research project, the following changes are proposed in the nomenclature of the
sectors and the activities performed under these sectors by different tiers of PRIs.
7.1 Sector-wise changes
Sl.
No.
Sector
Proposed Changes
Minor Irrigation, Watershed Management Minor Irrigation

and Watershed
Deleted, (Activities included

under Social Forestry Sector)
Fuel and Fodder
Included under Social Forestry
Small Scale Industries including Food Deleted

Processing Industries
Rural Housing including Indira Awas Rural Housing Schemes

Yojana
Rural Electrification including Distribution Rural Electrification

of Electricity
7.2 Activity-wise Changes

Sector
Agriculture
Activity
Proposed Changes
Assessment and Distribution Included under the

activity Increasing
of Inputs
Agricultural
Production
Credit
Credit Facilities
Extension Support
Deleted
150
Soil Testing
Included under the

activity Increasing
Agricultural
Production
Post Harvest Management
Post Harvest and

Risk Management
Risk Management
Merged with Post

Harvest
Management
Soil Conservation
Included under the

activity Increasing
Agricultural
Production
Watershed Development
Included under the

activity Increasing
Agricultural
Production
Veterinary Services
Deleted
Minor Irrigation
Feeding and Fodder including Fodder

support during droughts
Development
Animal Husbandry,
Dairying and Poultry
Dairy Development
Included
under
Livestock
Development
Poultry Development
Included
under
Livestock
Development
Development and Marketing Deleted

Processing
Infrastructure
(under fisheries)
Welfare measures
Social Forestry
Khadi, Village and

Cottage Industries
Deleted
Marketing of Fuel/Fodder and Deleted

Timber
Infrastructure Development
Deleted
Credit and Financial Support
Deleted
Credit
and
Financial Deleted
assistance
from
various
Government Department and
Agencies
151
Rural Housing
Approval of TPs Plan and Conducting

of
Sanctioning of fund for rural Survey
of
Houseless and site
housing schemes
less
families,
Monitor
and
Supervision
of
Rural
Housing
Schemes
Monitoring Power Supply
Deleted
Rural Electrification
Assessment
of
Districts Deleted
Energy Requirement
Technical Training
and Vocational
Education
Establishment
Maintenance of ITIs
and Deleted
Markets and Fairs
Regulating Wholesale and Deleted

retail markets, supervision and
monitoring
of
marketing
activities
Women and Child

Development
Development of Women and Deleted

Children
in
Rural
Areas(DWCRA)
152
7.3 Proposed Activity Mapping Structure after incorporating the above

modifications will be as follows:
Activity
Zilla Panchayat
Taluk Panchayat
Grama Panchayat
AGRICULTURE
Increasing
Agricultural
Production
Prepare
comprehensive
crop plan
Organize on-farm
verification trials and
demonstration of new
technologies
Assist in advising
farmers about
remunerative crop
activities and crop
diversification
Develop and
maintain data
base for cropping
pattern, land use
and inputs are for
planning
Advise suitable
cropping system
based on location
specific
characteristics.
Generate awareness
in use of organic
fertilisers and
vermiculture
Organize Kisan
Melas, Fairs and
Exhibitions
Arrange awards to
progressive farmers.
Assist in assessing
needs of various
such as seeds,
fertilizers,
pesticides.
Protect biodiversity
Arrange storage and

transport facilities for
inputs close
monitoring of inputs
delivery system
Assist in timely
distribution of
adequate inputs to
farmers
Promote
profitable crop
technologies
Monitor Soil testing

work. Help in
identifying locations
for soil testing work.
Help farmers for
improvement of soil
fertility in
consonance with soil
testing results
Assist technical
experts in
conducting soil
tests. Help in
ensuring feedback
from soil testing to
farmers.
Prepare
consolidated plan
for input
requirement
Coordinate with
officials of soil
conservation
machinery.
Assist the
professional/official
machinery for soil
conservation work
through helping
group action by
land owners
153
Acquire and
arrange
distribution of
inputs in time
Prepare watershed
project in inter-GP
watersheds
Participate in
planning and
implementation of
watershed projects
Improve
adequate storage
facilities for
inputs
Monitoring
supervision and
reporting progress of
watershed projects
Assist in
constituting
user/Beneficiary
committees in the
watershed for their
direct participation
in the execution of
the project
Monitor
distribution of
quality inputs
Coordinate between
various agencies and
departments
implementing
watershed projects
such as agriculture,
forestry, DPAP and
DDP
Maintain
community assets
created under
watershed project
Establish soiltesting
laboratories
Prepare district
plan for soil and
water
conservation
projects.
Harmonise the
plan with other
employment
generating as
well as area
development
plans
Identify, select
and approve
watershed
projects
Supervise,
Monitor and
review of the
progress and
quality of works
by the Subject
Committee
154
Prepare credit
plan
Credit facilities
Post-harvest
Management
and Risk
Management
Monitor credit
delivery system.
Assist in assessing
credit needs of
various groups of
farmers and crops
Ensure timely
credit availability
and linkage
between
agriculture
development and
credit
institutions, and
monitor credit
mobilisation.
Exercise social
control and regulate
interest areas and
recovery of loans
from formal and
informal credit
institutions
Help in
strengthening of
cooperative
credit institutions
Help in formation
of self-help Groups
Develop
marketing
infrastructure at
suitable locations
Estimate crop losses

and report action
taken
Help in organizing
farmers for group
sale in bulk
Ensure correct
weights and
measures
Monitor relief
operations
Assist in increasing
awareness about
better storage
facilities for seeds
and food grains.
Assess losses due

to natural
calamities and
formulate relief
plan
Arrange crop
insurance schemes
and coordinate
among insurance
agencies
Assist in
establishment of
Grain Banks in
villages
Monitor and
supervise relief
operations
Prepare contingency
agricultural plan
Supervise relief
operations and
distribution of
material
Motivate and help
in identifying
farmers to take up
crop insurance
schemes.
155
Decide on
disposal of
village common
property or their
conversion to
other uses with
the concurrence
Protection and of the GP
Maintenance of concerned.
Village
Commons etc.
Coordinate the work

of GPs where interGP collaboration is
needed.
Primary
responsibility for
keeping all
common property
of local nature in
good condition.
Identify
encroachment as
well as conversion
of illegal or wrong
uses of commons.
Provide assistance
in and collection
of evidence towards
the conduct of the
proceedings by
such authority.
MINOR IRRIGATION
Development
of MI system,
drainage
system, water
harvesting
structures
Water
Management
Formulate of MI
projects &
Execution
Supervise,
monitor and
review of the
progress and
quality of MI
works
Coordinate between
various line
departments /
agencies funding for
MI projects.
Assist in
formulation of MI
projects through
Grama Sabha
Identify locations
for projects
Enforce inter-well
distance (well
density) as per
prescribed norms.
Propagate
modern water
management
delivery methods
Guide and motivate

people to adopt
modern methods of
irrigation, on- farm
development and
proper maintenance
of field channels,
Identify
beneficiaries
through Gram
Sabhas for
subsidized sprinkler
and drip irrigation
system
Propagate use of
sprinkler and drip
irrigation in
drought prone /
water scarce area.
Organise farm
demonstration for
modern water
management
techniques through
Water Users
Associations
Constitute Neeru
Panchayats for
proper utilization of
water including use
for drinking
purposes
156
Development
of livestock
Assess the need

and formulate
projects for
development of
livestock
Distribute quality
breeds to
beneficiaries under
various programmes
Assist in
identification of
beneficiaries under
various
programmes
through Gram
Sabha
Assist Dairy
Development
Boards or
Cooperatives in
the development
of infrastructure
for milk
collection,
collection
centres,
transportation
and processing.
Propagate improved
breed of livestock
among farmers
Motivate people to
maintain local /
traditional quality
breeds and adopt
modern methods of
maintaining
livestock.
Develop
infrastructure for
poultry farming.
Promote milk
producers,
cooperative societies
Production and
supply of quality
chicks to poultry
farmers.
Supply quality milch

animals
Tran Poultry farmers
Arrange for the
supply of poultry
feed.
Fodder
development
Propagate
production of
nutritive fodder
and promote
proper feeding of
animals
Organise
cooperatives for
fodder production
and provide financial
assistance.
Procure and
establish fodder
banks
Propagate modern
Control grazing and
methods of feeding to improve grazing
improve livestock
and pasture lands.
productivity.
157
Help in establishing
cooperative fodder
farm.
Formulate
Projects for
fisheries
development.
Developing of
Inland
Fisheries
Development
of Marine
fisheries.
Select beneficiaries
for fisheries training.
Develop village
pond for fisheries.
Arrange training
of fishermen in
modern
management
techniques for
fish production.
Identify
beneficiaries for
assistance under
various
programmes
through Gram
Sabha
Monitor and
supervise plan
implementation.
Execute fishpond
and tank
improvement
projects.
Enforce
environmental
restrictions on
marine
aquaculture and
brackish fish
production
activities
Plan for development

of marine aquaculture
and brackish water
fishing
Identify
beneficiaries for
various
development
programmes /
welfare measures
for fishermen
through Gram
Sabha
Install weather
forecasting and
early warning
system for
marine
fishermen.
Implementation of
welfare measures for
fishermen
Create awareness
for and adopt safety
measures during
rough weather
Supervision of
all welfare
measures for
fishermen
SOCIAL FORESTRY
Social forestry
and Farm
Forestry
Prepare a district
plan for Social
Forestry and
Farm Forestry
inclusive of
Minor Forest
Produce
Identify degraded and

wastelands and
formulate social
forestry projects,
158
Execute social
forestry projects
through village
people
Establish forest
nurseries for
supply of
seedlings and
saplings for
distribution,
Propagate fuel fodder

and timber producing
plants
Encourage private
farmers for farm
forestry and assist
them
Organise vana
mahotsava
Identify wastelands
and degraded lands
for taking up fuel and
fodder plantation.
Distribute MFP
seedlings for
plantation
Encourage
cultivation of
MFP in existing
forest, degraded
forest lands,
barren and
uncultivable area,
and community
wastelands.
Organise training
for scientific
tapping of gums,
resins, and
grading of MFPs
Identify
beneficiaries for
fuel and fodder
demonstration plots
Undertake
Plantation
activities
Coordinate nursery
establishment
programme
Planning,
Monitoring and
Supervision
Consolidate plans
prepared by TPs
for Khadi,
Village and
Cottage
industries
including artisan
activities.
Prepare plan for

Khadi, Village and
Cottage Industries
and other artisan
activities integrating
schemes of other
agencies such as
KVIC/KVIB/
Handloom/Handicraft
Development
Monitor and
supervise the
overall progress
in this sector
159
Assist TP in
identifying
potential activities
and formulation of
projects.
Training Skill
development
and Transfer of
technology to
beneficiaries
Establish and
identify training
Centres for Skill
Development
Select beneficiaries
for Training and Skill
development and
nominate them to
training Institutes
Allocate and
sanction funds
for Training and
stipend to the
trainees
Arrange master crafts

persons
Identify
appropriate
technologies and
arrange for their
transfer to
workers.
Pay stipend to
beneficiaries and
honorarium / training
cost to the trainers.
Identify
beneficiaries for
training through
Gram Sabha.
Transfer and upgradation of

technology in
different areas of
production.
RURAL HOUSING
Conducting of
Survey to
identify
houseless and
site less
families,
monitoring and
supervision of
Rural Housing
Schemes
Determine design
and unit cost for
guidance to GPs
keeping in view
technical advice
and beneficiary
needs
Monitoring and
Liasoning for
effective
implementation rural
housing schemes
Identification and
selection of
beneficiaries of
rural housing
schemes
Supervise
construction
quality, use of
material and report
progress.
DRINKING WATER
Development,
Monitoring and
Supervision of
Rural Drinking
Water Schemes
Formulate
District plan for
Water Supply
Schemes
Implementation of
Water Supply
Schemes
160
Identify schemes
and locations
estimate cost and
formulate projects
through the
involvement of
Gram Sabha.
Technical
appraisal and
approval of
Water Supply
Schemes
Ensure water quality
Monitor and
supervise the
progress, quality
of work and
target
achievement
Periodically
chlorinate open
wells and treat
water
Ensure proper
distribution of
water to all
households in its
villages
Collect water
sample for testing
Maintain drinking
water schemes,
collect water
charges and appoint
operators wherever
necessary
ROADS, CULVERTS, BRIDGES, FERRIES, WATERWAYS AND OTHER

MEANS OF COMMUNICATION
Development
of road
network and
accessibility
Formulate &
implement
development
projects.
Supervision of
implementation of
construction of rural
roads
Assist in
formulating road
construction
projects and obtain
approval through
Gram Sabha.
Assist in
acquiring land,
assess grant of
compensation
Asphalting of roads
across the villages
Seek technical
advice, feasibility
and approval from
TP engineers,
Award contracts
for procurement
of material and
equipment for
construction of
roads and bridges
and make
supplies
Allocate, approve
and sanction funds.
Monitor
specifications of
roads and bridges
Construct village
link roads and
village lanes
161
and supervise
quality of works
Carry out annual

repair and
maintenance of
roads, culverts
and bridges.
Improvement
and
Maintenance of
the existing
roads / culverts
and bridges
Monitor and
supervise quality of
works through
work committee
and report progress
to IP
Monitor and
supervise quality of
works and report
progress.
Approve, allocate
and sanction
funds for all
types of
improvement and
annual
maintenance
work and award
contracts
Raise funds
through
government or own
sources and
donations with the
help of Gram Sabha
Execute works
Monitor and
supervise the
quality of works.
Development
of waterways,
ferrying. ferry
services, etc.
Identify
waterways
suitable for ferry
services
Inspect ferries and

boats and maintain
vigilance on services
Execution &
Supervision of
plans for waterways
/ ferries etc.
RURAL ELECTRIFICATION
Expansion of
electrification
Assess
unelectrified
villages, hamlets
and colonies and
formulate
projects for their
electrification in
coordination with
KPTCL
Assist in obtaining
power connection for
poor and SC/ST
/OBC families under
various programmes
NON CONVENTIONAL ENERGY
162
Maintain and
operate street lights
Promote nonconventional
energy devices
and sources
Promoting
nonconventional
sources of
energy which
includes
Formulation
and
installations of
solar panels,
wind mills and
gobar gas
plants and
extension
education
Procure and supply

material and
equipment for the
projects.
Promote and
Assist in identifying
popularise energy suitably locations and
select individual
saving devices
beneficiaries for
installation of
community and
private sources of
energy.
Coordinate
different agencies
including NGOs
for promotion of
alternative
sources of energy
Assist in
identification of
beneficiary for
individual biogas
plants and other
devices.
Train users in the

maintenance of nonconventional energy
devices.
Monitor and
supervise the
operation and
functioning of the
projects
Conducting
Household
Survey of BPL
families
Prepare a district
plan for poverty
alleviation
programmes
Implementation of
poverty alleviation
programmes
Identification &
selection of
beneficiaries
Monitoring &
Supervision of
poverty
alleviation
prgrammes
Monitoring &
Supervision of
poverty alleviation
prgrammes across
GPs
Implementation of
poverty alleviation
programmes
Prepare
comprehensive
plan for Training
and Capacity
Building
programmes
Conducting Training Monitoring and

and Capacity
supervision of
Building programmes beneficiary oriented
poverty alleviation
schemes
163
Creation of
forward &
backward
linkages for rural
development
programmes
Creation of forward
& backward linkages
for development
programmes
IEC activities

Assess the
requirements of
schools, teachers,
equipment, etc. in
the district and
plan for them.
Expansion and
development of
educational
facilities
Supervise the
functioning of
primary and upper
primary schools
Ensure full
enrollment of
school age children
Maintain school
buildings and related
infrastructure.
Maintain school
buildings, and play
grounds
Supply and distribute

material and
equipment to
schools.
Exercise vigilance
on regular
attendance of
teachers and
students and report
to the concerned.
Campaign for full
enrollment and
reduction of
dropouts
Assess the drop out
position and initiate
appropriate action
to reduce it.
Establishment
and
maintenance of
hostels, and
other welfare
measures for
target group
students.
Assess and plan

hostel
requirements for
target group
students
Assist in the
maintenance of
hostels,
Maintain hostels.
Supply school
uniforms and
books for target
group students.
164

Promotion and
identifying
suitable
courses for
vocational
according to
the needs and
potential of
different areas
in education
Select courses for

vocational
education and
identify
education schools
and centres for
important courses
Assist in the
promotion of
vocational education
in schools and
centres
Assist in
identification and
recommend eligible
candidates for
vocational
education and
training
Motivate students Select candidates and

for vocational
students for
training
vocational courses
Identify suitable
locations for
establishing adult
education centres
Implement Adult and

non-formal education
programmes and total
literacy campaigns
Help in mobilising
people for
participation in
Adult education
and TLC
campaigns
Select volunteers
and supervisors
for teaching and
maintenance of
centres
Distribute material to
the centres
Supervise and
assist in
functioning of
centres and ensure
regularity of
learners and
volunteers.
Planning and
implementation
of adult and
Procure and
non-formal
supply all
education
relevant
infrastructure and
educational
material to
centres.
Supervise and
monitor functioning
of the centers
Supervise and
monitor activities
of adult
education centres
Organise total
literacy campaign
LIBRARIES
165
Plan for
establishment of
new libraries and
maintain and
improve existing
ones
Establishment
and
maintenance of
libraries
Assist in the
maintenance and
functioning of
libraries
Procure and
supply books,
reading material
and popular
literature
Establish and
maintain libraries
Up-keep of library
Raise donations
and collect books
for library
Subscribe to
vernacular news
papers and
magazines
CULTURAL ACTIVITIES
Guide, encourage
and organise
cultural
programmes
Promotion of
Cultural
activities
Organise local
festivals with the
help of GPs
Utilise available
Plan and organise
popular media for sports and cultural
meets with the help
cultural affairs
of local organisations
Organise youth
and voluntary efforts
festivals, sports
events on dates
of national and
state importance
166
Organise sports
festivals and
cultural events in
villages using folk
media for
strengthening of
national integration,
family planning
campaign, literacy,
sanitation, etc.
To promote sports
and organize youth
clubs
Establish sports
complexes,
theatres and other
infrastructure
Identify and
mobilise
sponsors for
cultural and
sports events and
youth festivals
Maintain and
supervise the
functioning of
Nehru Yuvak
Kendras
MARKETS AND FAIRS
Identify locations
and develop
marketing yards
Identification
and infrastructure
of location and for marketing
development of rural products
market yards
and formulating
projects.
Develop and
maintain agricultural
market yards
Maintain village
fairs and weekly
markets,
Develop and
maintain places for
fairs/shandies and
weekly markets
Construct market
complex within the
GP.
HEALTH AND SANITATION

Plan through
health
committees to
provide physical
infrastructure
Assist in supervision
and maintenance of
sub-centres and
deployment of field
staff
Health care
167
Assist in formation
of village health
committees
comprising
Panchayat
members,
representatives of
villagers, village
health guide (VHG)
Trained Birth
Assistant (TBA)
and Multi-purpose
Health Workers
Coordinate
communicable
diseases
programme with
the State
Supervise mid-day
meals schemes for
school children
Upkeep of village
sanitation, cleaning
of roads and
drainage
Coordinate
construction and
maintenance and
supervise of
PHCs
Organise health and

family welfare camps
and conduct
demonstration- cumexhibition
programmes on,
health, family
welfare and
sanitation.
Mobilise and
organise people for
health and family
planning and
immunisation
camps.
Maintain district
ISM (Indian
System of
Medicine)
hospitals
Assist in supervision
of Indian Systems of
Medicine (ISM)
dispensaries.
Periodically
conduct
Epidemiological
surveys
Promote school
health
programmes
Organise health
awareness rallies
and camps
Sanitation
Plan rural
sanitation
programmes
Organise and
supervise sanitary
marts.
Coordinate and
supervise
construction of
sanitary latrines
Promote
Information,
Education and
Communication
Formulate plan for

assisting in the
construction of
sanitary latrines.
Chlorinate village
tanks and wells and
spraying of DDT.
168
(IEC) campaigns
Assist in inspection
/assessment of
quality of public
health inputs and
services.
Assist in
construction of
individual sanitary
latrines
Report of outbreak
of epidemics
Assist in
coordinating
emergency medical
relief services
FAMILY WELFARE
Plan for Family
Welfare
Programmes
Distribute medicines,
equipment and
family planning
materials to centres.
Assist in
propagation of
maternal child care,
family planning and
immunisation
programmes
Establish and
maintain MCHs.
Propagate and create

awareness about
maternal and child
care immunization
and family planning
schemes
Assist in
identification and
recommendation of
beneficiaries for
maternity aid under
NSAP and related
schemes
Supply medicines
and equipment to
MCHs
Coordinate and assist

in monitoring and
supervision of family
welfare and family
planning services
Assist in
maintenance and
supervision of
Anganwadies
Train mid-wives
and para medical
functionaries
Assist in organising
family planning and
immunisation camps
Identify beneficiary
mothers and
children
Maternal and
Child Health
(MCH) Centres
169
Coordinate with
Organise IEC Health
state/international and FW promotional
campaigns Distribute
agencies
materials, medicines
and equipment to
ICDS Promote
school health
programme centres.
Assist beneficiaries,
mothers and children
Supervise the
activities of ANMs
and Anganwadi
workers
Provide
immunisation
services
Distribute materials,
medicines and
equipment to ICDS
Promote school
health programme
centres
Collect vital
statistics (e.g.
births, deaths etc.)
Propagate family
planning
methods, procure
supply and
distribute
contraceptives
Assist beneficiaries,
mothers and children.
Organise family
planning and
immunisation
camps
Identify and
approve NGOs
for FW
Organise
IEC/Health and
FW promotional
campaigns.
Promote school
Health
Programmes
Plan supervise
and monitor
ICDS
170
Procure, supply
and distribute
meals for
children,
medicines and
equipment for
ICDS centres
Train ANMs and
others
Liaise with State/
National level
health
programmes
Promote equal
opportunity to
women in all
sectors of
development social economic
and political.
Mobilise social
support against
social evils like
dowry, sex
determination,
Socio
gender biases like
economic
development of killing girl child
at birth,
women
discrimination in
educating girl
child, etc.
Promote
opportunities for
women to engage
themselves in
income
generating
activities.
Propagate the
message of equal
opportunity to
women in all sectors
of development
Generate awareness
among women
about their rights.
Mobilise social
support against social
evils that
discriminate against
women
Promote self-help
groups of women
identify income
generating activities
for women
171
Protect the
interests of
women workers
in the
unorganised
sector.
Ensure payment
of minimum
wages to women
agricultural
labourers.
Maternity
benefit
Help pregnant
women receive
maternity
benefits under the
National
Maternity Benefit
Scheme.
Generate awareness
among women about
maternity benefit
scheme, proper age
of marriage and small
family norm
Identify pregnant
women eligible for
maternity benefit
scheme, and help
them in getting
benefits.
Supervise, guide
and support
Services (ICDS)
for
implementation
of ICDS projects
Supervise project
staff of women and
child welfare
department
Assist ICDS staff in

TPs in conducting
surveys
Monitor
functioning of the
Scheme in the
district
Assist officers
concerned with the
programme in
procurement and
distribution of
nutrition material and
other medical
supplies
Assist in selection
of beneficiaries
Promote people's
participation in
programmes
through
involvement of
local leadership.
Provide
infrastructural
facilities and other
logistic support to
facilitate
implementation of
the programme
Assist in selection
of sites for locating
Anganwadi centers
Coordinate with
the District
authorities for
elimination of
Identify child labour Ensure community

working in hazardous participation
and other occupations through organizing
regular meetings
Integrated
Child
Development
172
child labour.
Construct Anganwadi Involve women GP

members in
Centres in GPs
supervising the
functioning of
Anganwadi centres
particularly while
ensuring attendance
in the center,
maintenance of
cleanliness and
hygiene,
supplementary
nutrition in terms of
dietary schedule
and timings, proper
child care and
meeting of
educational needs,
regular health
check up and
immunization
Assist in the
distribution of
nutrition and
conduct of regular
health check-up
SOCIAL WELFARE, INCLUDING WELFARE OF THE HANDICAPPED

AND MENTALLY RETARDED
Welfare of the
Disabled
Survey and
classify disabled
persons
according to the
nature of
disability.
Identify disabled
persons and
coordinate with ZPs
for their
rehabilitation
Make available
text books in
Braille to visually
handicapped
children in the
schools
173
Assist in
identification of
disabled persons
and coordinate with
Block and Zilla
Panchayats for their
rehabilitation.
Facilitate easy
access to and
mobility with
buildings and
public places for
persons with
disability
especially for
people on wheel
chair and persons
with visual
disabilities
Inspect, supervise
and monitor
voluntary
organisations
receiving grantin-aid from the
Ministry of
Welfare GOI for
rehabilitation of
persons with
disability
Identify and
promote
voluntary organs
receiving grant
in-aid from the
Ministry of
Welfare, Govt. of
India for
rehabilitation of
leprosy patients.
Identify
voluntary
organisations and
assist them to set
up Special
Schools for
disabled persons
with Grant-in-aid
from the Ministry
of Welfare.
174
Coordinate with
organisations and
government in
getting assistance
for purchase of
aids and
appliances for
disabled persons.
Coordinate with
Special
Employment
Exchanges and
Vocational
Rehabilitation
Centres for
assisting disabled
persons to secure
employment
Coordinate with
District
Rehabilitation
Centres for
providing
rehabilitation
services to
disabled persons.
Street Children
Identify street
children suffering
from destitution,
neglect, abuse
and exploitation
and help them in
getting integrated
community based
non-Institutional
basic services
through
voluntary
organisations
who get grant-inaid from Ministry
of Welfare,
Government of
India
Identify street
children and
coordinate with the
ZP for their
development
175
Assist in
identification of
street children
Coordinate with the
TP and ZP for
rehabilitation and
development
Identify parents
willing to adopt
children and
coordinate with the
District Panchayat for
their growth and
development
Assist in
identification of
parents willing to
adopt children and
coordinate with the
TP and ZP for their
growth and
development.
Adoption of
Children
Identify
voluntary
organizations
which deal with
the adoption of
destitute,
abandoned,
orphaned and
relinquished
children by
giving the child
for growth and
development to
parents other than
the child's
biological
parents, and help
in the adoption of
orphaned
children.
Identify the aged and

coordinate with the
ZP for their
maintenance, and
giving old age
pension.
Welfare of the
Aged
Identify destitute
and aged persons
and help them in
taking shelter in
voluntary
organisations
which receive
grant-in-aids
from the Ministry
of Welfare State
Governments for
running Old Age
Homes; and for
giving old age
pension
Assist in
identification of the
aged and coordinate
with the ZP and TP
for their
maintenance and
giving old age
pension.
Drug use
Prevention
Build awareness
and educate
people about illeffects of drug
abuse and
prevent it
Build awareness and

educate people about
ill-effects of drug
abuse and prevent it
Assist in building
awareness and
educating people
about ill effects of
drug abuse and
prevent it.
176
Assist drug
addicts through a
well rounded up
programme of
motivation,
counseling,
treatment, follow
up and social
reintegration of
cured drug
addicts at
Counseling
Centres for drug
addicts run by
voluntary
organisations for
which they get
grant in-aid from
the Welfare
Ministry
Coordinate with the

ZP for their
rehabilitation
Coordinate with the

ZP and TP for the
rehabilitation of
drug addicts
Take drug addicts

to counseling, deaddiction and
after care centres,
deaddiction and
awareness
generating camps
for their
rehabilitation
Take drug addicts to

counseling, deaddiction and after
care centres,
deaddiction and
awareness generating
camps for their
rehabilitation
Take drug addicts

to counseling, deaddiction and after
care centres,
deaddiction and
awareness
generating camps
for their
rehabilitation
177
7.4 Assessment of Functionaries at different tiers of PRIs for effective implementation

of proposed Activity Mapping
Zilla Panchayat
Taluk
Panchayat
Grama
Panchayat
Increasing
Agricultural
Production
Joint Director / Deputy

Director
Assistant
Director /
Agricultural
Officer
Assistant
Agricultural
Officer
Credit Facilities
Post-harvest
Management and
Risk Management

Director
Assistant
Director /
Agricultural
Officer
Assistant
Agricultural
Officer

Director
Assistant
Director /
Agricultural
Officer
Assistant
Agricultural
Officer
Assistant
Engineer /
Junior Engineer
Assistant
Engineer /
Junior Engineer
Activity
AGRICULTURE
Protection and
Maintenance of
Village Commons
etc.
MINOR IRRIGATION
Development of MI
system, drainage
system, water
harvesting
structures
Executive Engineer
Assistant
Executive
Engineer
Water Management
Executive Engineer
Assistant
Executive
Engineer

Development of
livestock

Director
Assistant
Director
Veterinary
Inspectors
Fodder development

Director
Assistant
Director
Veterinary
Inspectors
Joint Director (Fisheries)
Deputy Director
(Fisheries) /
Senior Assistant
Director
Developing of
Inland Fisheries
178
Development of
Marine fisheries.
Joint Director (Fisheries)
Deputy Director
(Fisheries) /
Senior Assistant
Director
Assistant
Conservator of
Forests
Range Forest
Officer /
Forester
SOCIAL FORESTRY
Social forestry and
Farm Forestry
Deputy Conservator of
Forests

Planning,
Monitoring and
Supervision
Training Skill
development and
Transfer of
technology to
beneficiaries

Director
Assistant
Director /
Industrial
Extension
Officer
Industrial
Extension
Officer

Director
Assistant
Director /
Industrial
Extension
Officer
Industrial
Extension
Officer
Executive
Officer
Panchayat
Development
Officer /
Secretary
Assistant
Executive
Engineer
(PRED)
Assistant
Engineer /
Junior Engineer
(PRED)
RURAL HOUSING
Conducting of
Survey to identify
houseless and site
less families,
monitoring and
supervision of Rural
Housing Schemes
DRINKING WATER
Development,
Monitoring and
Supervision of
Rural Drinking
Water Schemes
Superintending Engineer
/ Executive Engineer
(PRED)
ROADS, CULVERTS, BRIDGES, FERRIES, WATERWAYS AND OTHER

MEANS OF COMMUNICATION
Development of
road network and
accessibility
(PRED)
179
Assistant
Executive
Engineer
(PRED)
Assistant
Engineer /
Junior Engineer
(PRED)
Improvement and
Maintenance of the
existing roads /
culverts and bridges
(PRED)
Assistant
Executive
Engineer
(PRED)
Assistant
Engineer /
Junior Engineer
(PRED)
Development of
Executive Engineer
EO
PDO /
Secretary
Executive
Officer
Panchayat
Development
Officer /
Secretary /
Assistant
Agricultural
Officer /
Industrial
Extension
Officer
Executive
Officer
Panchayat
Development
Officer / GP
Secretary
RURAL ELECTRIFICATION
Expansion of
electrification
CEO
NON CONVENTIONAL ENERGY

Promoting nonconventional
sources of energy
which includes
Formulation and
panels, wind mills
and gobar gas plants
and extension
education
Deputy
Secretary(Development) /
Project Director

Conducting
Household Survey
of BPL families
CEO

Expansion and
development of
educational
facilities
Establishment and
maintenance of
hostels, and other
welfare measures
for target group
students.
Joint Director (SSA) /

DDPI
Block Education
Head Master /
Officer / Cluster
SDMC
Officers
DSW Officer / BCW

Officer
Taluk Social
Welfare /
Backward Class
Welfare Officer
/ Inspector
180
Wardens of
Hostels
Promotion and
identifying suitable
courses for
vocational
according to the
needs and potential
of different areas in
education
Deputy Director
(Vocational Training)
Assistant
Director
(Vocational
Training)
Prerak
Librarian
Library
Assistant
including
Reading Room
Assistant of
GP
Assistant
Director
(APMC)
Inspectors
Taluk Medical
Officer / Block
Health Worker
Medical
Officers of
PHCs / Health
Inspectors /
Anganawadi
Workers /
ASHA workers
/ Junior Health
Assistants

Planning and
implementation of
adult and nonformal education
District Adult Education

Officer
LIBRARIES
Establishment and
maintenance of
libraries
District Librarian
CULTURAL ACTIVITIES
Promotion of
Cultural activities
Deputy Director /
Assistant Director
(Kannada and Culture)
MARKETS AND FAIRS

Identification of
location and
development of
market yards
Deputy Director(APMC)
HEALTH AND SANITATION
Health care
District Health and

Family Welfare Officer
181
Sanitation
Deputy Secretary
(Development)
Executive
Officer
Panchayat
Development
Officer / GP
Secretary
Taluk Medical
Officer / Child
Development
Project Officer
Junior Health
Assistants /
Anganawadi
Supervisors /
ASHA workers
FAMILY WELFARE
Maternal and Child
Health (MCH)
Centres
District Health and

Family Welfare Officer /
Deputy Director / Joint
Director(WCD)

Socio economic
development of
women
Deputy Director (WCD)
Child
Development
Project Officer
Anganawadi
Supervisors
Maternity benefit
Child
Development
Project Officer
Anganawadi
Supervisors
Integrated Child
Development
Child
Development
Project Officer
Anganawadi
Supervisors
SOCIAL WELFARE, INCLUDING WELFARE OF THE HANDICAPPED

AND MENTALLY RETARDED
Welfare of the
Disabled
District Welfare Officer

for Physically Challenged
/ Deputy Director(WCD)
Child
Development
Project Officer
Junior Health
Assistants /
Anganawadi
Supervisors
Street Children
District Social Welfare

Officer / Deputy
Director(WCD)
Child
Development
Project Officer
Anganawadi
Supervisors
Adoption of
Children

Officer / Deputy
Director(WCD)
Child
Development
Project Officer
Anganawadi
Supervisors
Welfare of the Aged

Officer / Deputy
Director(WCD)
Child
Development
Project Officer
Drug use Prevention

Officer / Deputy
Director(WCD)
Child
Development
Project Officer
Junior Health
Assistants
182
8. Conclusions and Recommendations
183

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Activity Mapping for PRIs

The Karnataka Experience

Abdul Nazir Sab State Institute of Rural Development

Decentralisation Process An Evolutionary Perspective

The 73rd and 74th Constitutional Amendments

Fiscal strengthening of Gram Panchayats

Legislative devolution of functions in Karnataka

Fiscal devolution to Panchayats

Activity Mapping for Panchayat Raj Institutions Proposed

Activity Mapping for GPs

the actual implementation, planning and supervision functions. Examples in this

Minor Irrigation, Watershed Management Minor Irrigation

Deleted, (Activities included under

Fuel and Fodder

Included under Social Forestry

Small Scale Industries including Food Deleted

including Rural Electrification

After incorporating the modifications the number of activities would be reduced to

For the most part, literature on decentralization and

major problem still remains to be the devolution of the 3 Fs Functions, Functionaries

To study the processes and/ approaches towards activity mapping including

To study the effectiveness of devolution of functions, functionaries and funds

To study the effectiveness of implementation of activity mapping in different

To identify guidelines issued by State Government which are in contravention

To identify accountability mechanisms at PRI level towards strengthening

To analyse the bottlenecks if any, in the implementation of activity mapping

To suggest measures for incorporating the changes to the activity mapping to

1.4 Methodology and Area of Study:

2. Decentralisation Process An Evolutionary Perspective

Gandhijis inspiration in the realm of decentralization derived from the institution

2.1 Local Government in Old Mysore Princely State

Karnataka has a long history of decentralization. It should be clarified that the

Union Panchayats with nominated Chairmen

Taluk boards with Sub-Division Officers as Presidents and Amildars (Tahsildars)

District Boards with Deputy Commissioners as Presidents and one elected

The Venkatappa Committees report attracted criticism for not recommending a

implementing the Act.

Hegde was then the minister for Rural

Reservation for women (admittedly miniscule)

Constitution of Gram Sabha

Establishment of Nyaya Panchayats

Chief Executive Officers to function subject to Adhyakshas powers

Constituting the State Panchayat Council

Coorg Panchayats Act 1956.

2.2.1 Balwantrai Mehta Committee Report

Following from these developments the Mysore (Karnataka) Village Panchayats

2.2.2 Ashok Mehta Committee Report

2.2.2.1 Two tier structure

2.3 Karnataka: The 1983 Act

2.3.1 Mandal Panchayats

2.3.2 Taluk Panchayat Samiti

2.3.3 Zilla Parishad

2.4 Reservation and Social Justice

2.5 Transfer of Resources

2.6 Financial viability

2.7 Functions and Powers

2.8 Staffing Pattern

3. The 73rd and 74th Constitutional Amendments

3.1 PRIs as Constitutional entity - The 1993 Act

3.3 Gram Panchayat

The Act specifies the functions of Gram Panchayats in Schedule 1. Principal

Production Committee: functions relate to agricultural production, animal husbandry,

3.4 Taluk Panchayat

Other functions include: