Kaustuv Kanti Bandopadhyaya graduated from Calcutta & completed post graduation from Sagar University in Anthropology before moving again to Calcutta for PhD. He studied Organizational Behaviour on his own interest. He joined PRIA in 1998 August before working with Indian Institute of Bio Social Research & Development based in Calcutta.

At PRIA he works for Urban Governance & Right to Information. He tells IndianNGOs.com about the faulty urban governance, where municipalities have become dependent on the state government & their autonomy is eroded due to little financial strength. He also points that much before RTI was enacted, PRIA adopted its masthead Knowledge is Power, acknowledging people's knowledge as inherent tool of development.

Which factors prompted PRIA to identify Urban Governance as its program?

PRIA had been working on citizen participation in the development program for quite some time. With 73rd & 74th constitutional amendment, PRIA saw an opportunity to enhance participation of citizens in democratic process through PRIs & Urban Local bodies. When we started work on PRI, we realized that most of the middle tier Panchayat Samitis are actually located in urban areas. A constitutional provision talks about the formation of District Planning Committee, only constitutional planning body. Even Planning Commission & state planning bodies are not mentioned in constitution. To strengthen the constitution & true implementation of 73rd & 4th amendment, District Planning Committees are necessary. These committees are supposed to be the champion of bottom up planning process so that citizens participate in the urban & rural development planning process.

What is the status of Indian municipalities?

These municipalities are completely ignored by the national & the state government. Basic services in small towns are very poor. We realized that through improvement of municipal governance these basic things can be improved & if citizens participate in planning process, it would result in better governance.

What was your strategy to deal with it?

We had two pronged strategy, targeting both the citizens & the councilors. We realized that urban areas are not like rural areas, where traditionally SHGs, committees like village education & watershed were promoted & some institutional space was created for development works & community participation. There is also no interaction between elected representatives (municipal councilors) & people. We started working upon mobilizing mohalla samitis, brining volunteers based on local level analysis. In 1998 we started work & till 2001 worked in four states & after that took up these programs on a much larger scale.

What were the paradigm shifts in your program in 2002?

During our pilot phase of 1998-2002, we learnt various things. We realized that many states did not have district planning committees as districts have little importance in state's administration. Planning is one of the major functions mentioned in 74th amendment. However, municipalities have no role in planning process though they are most constitutionally empowered. It's a complete violation by state governments till today.

When we started working with mohalla samitis, we realized that the capacity of these samitis is very poor. Even if you strengthen the demand side, supply side is very weak. There are numerous hindrances which do not allow municipalities to provide various services. States are supposed to devolve certain funds, functions & functionary to the municipalities. However, state government gives functions & not the functionaries. We made people aware about the rights against municipalities but also realized that municipalities had little capacity to provide the services. Hence, we formed our agenda to advocate before the government for the devolution of the funds & functionaries. State Finance Commission under the constitution recommends the state government how much funds are to be devolved to the municipalities & local bodies. Unfortunately, in many states finance commissions are not formed.

In which states FCs are formed?

In Harayana, FC were formed & they gave recommendations but state government did not take any action.

What is the financial status of municipalities?

We have initiated program on municipal finance in seven states. We found they still use single entry system in their accounts. It shows only expenditure & does not mention corresponding asset. Constitution talks about three types of taxes municipalities are required to collect, property tax, octroi & professional tax. In many cases, state government withdraw octroi & professional tax from municipality causing huge loss to them & in turn give them wholly inadequate token grants. On their own, municipalities are not inclined to collect property tax as it has political repercussions. Hence, the municipalities become dependent on the state government & their autonomy is eroded due to little financial strength.

What is the ideal role of a municipality?

We need safe drinking water, sewerage, solid waste management, good roads, proper distribution of electricity & good schools. India has 30% population below poverty line, which can not afford these services. It imposes responsibility upon the state to provide them these services.

Is it possible for an economically deprived state like Bihar to provide these services?

It is possible. Strengthening municipalities is an easiest way for it. In states like Karnataka, 30-40% of state budget is devolved to municipalities & they function well. Citizens also have an important role to play in demanding accountability & transparency from councilors. Several of the elected representatives do not know of their duties under 74th amendment. We initiated participatory planning process in Jharkhand. We launched an activist campaign throughout the city through local news papers, news channels, pamphlets. It facilitated interaction between citizens & councilors for town planning & urban development. It was a unique model we demonstrated in Rajnandgaon & Jhanjhgiri displaying capacity of municipalities.

At the time of municipal elections, we launch pre election awareness campaign. It checks malpractices of elections. We stitch together several civil society organisations & provided support to weaker candidates including dalit & women.

Doesn't the campaigning for election involve an element of getting influenced by political ideologies? How do you remain apolitical?

That's always a possibility. However, we do take certain precautions that we do not campaign for a particular candidate & we provide support in the form of how to contest an election. Even to file a nomination form, 20 affidavits are given. We support tribal & women contestant to file their petitions without being involved in partisan politics.

What links do you find between 73rd & 74th amendment?

The principles remain same. The developmental planning should be done at the lowest level. The primary education is best delivered by Panchayat. Secondary education may go at Zila Parishad level. Everything related to town plan is not linked with municipalities alone. The link between 73rd & 74th is district planning committee.

What is the role of Right to Information Act in local governance?

Knowledge has been our historical responses to emerging opportunity. PRIA has been working on right to knowledge & acknowledging people's knowledge for last 25 years. For us, knowledge is more than information.

A conversation between me & you is mere information for anyone else but if he puts into proper perspective the content of our conversation then it becomes knowledge. Knowledge indicates interpretation of information through perspective.

We believe in multiplicity of knowledge. In 2005, when RTI was enacted PRIA was not directly involved with the introduction of this Act. But, we took it as an opportunity to pursue transparency & accountability within the government institutions.

We focus on Panchayats & urban areas making efficient use of RTI. In some cases, we focus on RTI beyond local governance & target the government. For instance, for NREGA Panchayats are the implementing agencies for implementing it, but there is hardly any role for Panchayats to play there.

Panchayat is the most powerful institution. It can keep effective vigil on schemes like Sarva Shiksha Abhiyan & Mid Day meal. All the information related to government schemes may be had from Panchayats.

There are village education committees but without involving Panchayats, we bypass the grass root institutions.

How do you ensure effective implementation of PRIA?

We mobilize citizens to ask for RTI. Under RTI, various government authorities are mandated to voluntary disclose 17 manuals of the public information but most of them do no do so. We empower Panchayats to ask for voluntary disclosure.

With regard to RTI, 3-4 types of work are taken of. We produce huge amount of pamphlets, posters & training manuals to spread awareness about RTI.

Last month we had huge campaign in Karoli, Jhunjhunu of Rajasthan, Mahendragarh in Harayana. We are also working with various universities & law departments. There is tremendous enthusiasm amongst youth to use RTI. We have undertaken campaign in AMU, BHU. We are also studying implementation status of RTI in various states. We have decided to take up this study in 26 states to look what the State Information Commissions are doing.

What is the PRIA model of governance? What is the strength of PRIA?

We have constantly redefined our roles in last 25 years in response to need of the times. Now we have so many field offices but when I joined PRIA, we had only 35 people. Our role was solely of a support organisation. We did not have any field office. We mostly harvested knowledge from others & offered it to others. Our focus has now changed as now we are also engaged in direct knowledge generation.

We also ensure accountability both internally & externally. I am not only accountable to my senior here in PRIA, I also ensure that my every act helps the targeted beneficiary. It keeps us on or toes. We try to give value for the money we get.

Third is leadership. It starts from Mr Tandon & goes to Program Heads. We also have a very vibrant governing board. They keep us on toes. We know our every proposal would be challenged so better keep ourselves on check. Our leaders are very dynamic, keep their radars open, forge network with others. Lastly, it is the learning environment or PRIA. We have learnt a lot from here.

Ashutosh Bhardwaj
Jan 2007
New Delhi