Vuoden 2006 Bihar Panchayati Raj -lain mukaan kahden Gram Sabhan kokousten välillä ei pitäisi olla yli kahden kuukauden tauko? (2023)

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• Document of The World Bank FOR OFFICIAL USE ONLY Report No:150351-IN IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-51600) ON A CREDIT IN THE AMOUNT OF SDR 55.7 MILLION (US$84 MILLION EQUIVALENT) TO THE REPUBLIC OF INDIA FOR THE BIHAR PANCHAYAT STRENGTHENING PROJECT June 12, 2020 Governance Global Practice South Asia Region CURRENCY EQUIVALENTS (Exchange Rate Effective December 30, 2019) Currency Unit = Indian Rupees (Rs.) Rs. 71.78 = US $1 FISCAL YEAR April 1 – March 31 BCD Bihar Construction Department BGSYS Bihar Gram Swaraj yojana Society BIPARD Bihar Institute of Public Administration and Rural Development BPMU Project Management Unit BPSP Bihar Panchayat Strengthening Project CB Capacity Building CPF Country Partnership Framework DLI Disbursement Linked Indicator DPMU District Project Management Unit DPR Detailed Project Report E&S Environmental and Social EMF Environmental Management Framework e-PMS e-Project Management System FM Financial Management FY Fiscal Year GoB Government of Bihar GP Gram Panchayat GPDP Gram Panchayat Development Plan GPMS Gram Panchayat Management System ha Hectare HQ Headquarter ICR Implementation Completion and Results Report ICT Information and Communication Technology IDA International Development Association ISR Implementation Status and Results Report LAEO Local Area Engineering Organization M&E Monitoring and Evaluation NABARD National Bank for Agriculture and Rural Development NABCONS NABARD Consultancy Services NIILET National Institute of Electronics & Information Technology NIRD&PR National Institute of Rural Development & Panchayati Raj PDO Project Development Objective PRD Panchayati Raj Department PRI Panchayat Raj Institutions PSB Panchayat Sarkar Bhawan RF Results Framework RTPS Right to Public Services SC/ST Scheduled Castes / Scheduled Tribes SPMU State Project Management Unit TMIS Training Management Information System TQPA Third Party Quality Assurance UPS Uninterruptible power supply WB World Bank WIMC Ward Implementation & Monitoring Committee Regional Vice President: Hartwig Schafer Country Director: Junaid Kamal Ahmad Regional Director: Zoubida Kherous Allaoua Practice Manager: George Addo Larbi Task Team Leader(s): Farah Zahir ICR Main Contributor: Pedro Arizti; Sathyanadhan Achath TABLE OF CONTENTS DATA SHEET ............................................................................................................................... 1 1. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ..................................... 6 A. COUNTRY CONTEXT AT APPRAISAL .......................................................................... 6 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) ...................8 A. RELEVANCE OF PDO .............................................................................................................13 B. ACHIEVEMENT OF PDO (EFFICACY) ..................................................................................14 C. EFFICIENCY ............................................................................................................................20 D. JUSTIFICATION OF OVERALL OUTCOME RATING .........................................................21 E. OTHER OUTCOMES AND IMPACTS (IF ANY) .....................................................................21 2. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME......... 24 A. KEY FACTORS DURING PREPARATION .............................................................................24 B. KEY FACTORS DURING IMPLEMENTATION .....................................................................25 3. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME ................................................................................................................................. 26 A. QUALITY OF MONITORING AND EVALUATION (M&E) ................................................26 B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE .....................................27 C. BANK PERFORMANCE........................................................................................................28 D. RISK TO DEVELOPMENT OUTCOME ...............................................................................29 4. LESSONS AND RECOMMENDATIONS ........................................................................ 30 ANNEX 1: RESULTS FRAMEWORK AND KEY OUTPUTS ............................................. 33 ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ... 39 ANNEX 3. PROJECT COST BY COMPONENT ................................................................... 41 ANNEX 4. EFFICIENCY ANALYSIS ..................................................................................... 42 ANNEX 5. BORROWER, COFINANCIER, AND OTHER PARTNER/STAKEHOLDER COMMENTS............................................................................................................................... 45 ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) ............................................................. 47 ANNEX 7. BORROWER IMPLEMENTATION COMPLETION REPORT ..................... 48 ANNEX 8. SURVEY ASSESSMENT ....................................................................................... 81 ANNEX 9. LAND SELECTION................................................................................................ 86 ANNEX 10. COUNTRY, SECTOR AND PROJECT BACKGROUND ............................... 87 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Click here to enter text. DATA SHEET BASIC INFORMATION Product Information Project ID Project Name P102627 India - Bihar Panchayat Strengthening Project Country Financing Instrument India Investment Project Financing Original EA Category Revised EA Category Partial Assessment (B) Not Required (C) Organizations Borrower Implementing Agency Department of Panchayati Raj , Government of Bihar, Republic of India Bihar Gram Swaraj Yojana Society (BGSYS) Project Development Objective (PDO) Original PDO The Project Development Objective is to support Bihar's capacity to promote and strengthen inclusive, responsive, and accountable Gram Panchayats in selected districts across the state. Page 1 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) FINANCING Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) World Bank Financing 84,000,000 69,000,330 56,476,128 IDA-51600 Total 84,000,000 69,000,330 56,476,128 Non-World Bank Financing 0 0 0 Borrower/Recipient 36,000,000 0 0 Total 36,000,000 0 0 Total Project Cost 120,000,000 69,000,330 56,476,128 KEY DATES Approval Effectiveness MTR Review Original Closing Actual Closing 27-Sep-2012 21-Aug-2013 31-Dec-2017 30-Dec-2019 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 10-Jun-2016 .73 Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Disbursements Arrangements Change in Institutional Arrangements Change in Financial Management Change in Implementation Schedule 30-Apr-2019 34.30 Change in Loan Closing Date(s) 18-Oct-2019 47.21 Cancellation of Financing Reallocation between Disbursement Categories KEY RATINGS Outcome Bank Performance M&E Quality Moderately Satisfactory Moderately Satisfactory Modest Page 2 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) RATINGS OF PROJECT PERFORMANCE IN ISRs Actual No. Date ISR Archived DO Rating IP Rating Disbursements (US$M) 01 24-Dec-2012 Moderately Satisfactory Moderately Satisfactory .23 02 26-Jun-2013 Moderately Satisfactory Moderately Satisfactory .23 03 01-Jan-2014 Moderately Satisfactory Moderately Satisfactory .23 04 12-Jul-2014 Unsatisfactory Unsatisfactory .43 05 31-Dec-2014 Unsatisfactory Unsatisfactory .56 06 23-Jun-2015 Unsatisfactory Unsatisfactory .67 07 28-Dec-2015 Unsatisfactory Unsatisfactory .77 08 06-Jul-2016 Unsatisfactory Unsatisfactory .96 Moderately 09 27-Feb-2017 Moderately Unsatisfactory 1.30 Unsatisfactory Moderately 10 25-Sep-2017 Moderately Unsatisfactory 11.45 Unsatisfactory Moderately 11 01-Dec-2017 Moderately Unsatisfactory 11.45 Unsatisfactory 12 24-Apr-2018 Moderately Satisfactory Moderately Satisfactory 11.75 13 06-Nov-2018 Moderately Satisfactory Moderately Satisfactory 14.55 14 07-May-2019 Moderately Satisfactory Moderately Satisfactory 34.53 15 11-Sep-2019 Moderately Satisfactory Moderately Satisfactory 47.44 SECTORS AND THEMES Sectors Major Sector/Sector (%) Public Administration 90 Sub-National Government 90 Health 5 Health 5 Page 3 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Water, Sanitation and Waste Management 5 Other Water Supply, Sanitation and Waste 5 Management Themes Major Theme/ Theme (Level 2)/ Theme (Level 3) (%) Public Sector Management 84 Public Finance Management 14 Public Expenditure Management 14 Public Administration 70 Transparency, Accountability and Good 14 Governance Municipal Institution Building 56 Social Development and Protection 9 Social Inclusion 9 Participation and Civic Engagement 9 Human Development and Gender 6 Nutrition and Food Security 6 Nutrition 3 Food Security 3 Urban and Rural Development 2 Rural Development 2 Rural Infrastructure and service delivery 2 ADM STAFF Role At Approval At ICR Regional Vice President: Isabel M. Guerrero Hartwig Schafer Country Director: N. Roberto Zagha Junaid Kamal Ahmad Director: Ernesto May Zoubida Kherous Allaoua Practice Manager: Joel Hellman George Addo Larbi Task Team Leader(s): Mohan Nagarajan Farah Zahir Page 4 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ICR Contributing Author: Pedro Arizti Page 5 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 1. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES A. COUNTRY CONTEXT AT APPRAISAL 1. In 2006, the Government of Bihar (GoB) requested the World Bank’s (Bank’s) assistance in strengthening the Panchayati Raj Institutions (PRIs). The PRIs in India according to the 73rd Constitutional Amendment of 1992 are considered units of self-governance capable of planning and implementing development schemes, promoting community life, generating employment opportunities, and providing justice “at the doorstep.” During Project appraisal, the Bank’s engagement in Bihar focused on governance reform and economic and social empowerment of the poor. Therefore, the Project was designed to help the state administration and PRIs unlock access to resources under central and state-sponsored schemes and strengthen implementation capacity. As PRIs demonstrated growing capacity and good governance standards, the Project was to help the state government design and implement new intergovernmental fiscal and administrative systems allowing more autonomy and demand accountability of the PRIs. The Project design was based on the Bank’s continued dialogue during the previous six years as well as the IDA assistance strategy for Bihar at the time. 2. The Project was requested by the GoB because of the Chief Minister’s vision of “Government at your doorstep.” As part of this vision, the construction of Panchayat Sarkar Bhawans (PSBs) enabled governance and strengthened institutions at the local level. The state government received funds under the 13th Finance Commission, 1 which facilitated the construction of over 1,000 PSBs during implementation of the Project. Although the availability of funding from the central Government may have slowed project implementation, the GoB nevertheless remained strong in its decentralization agenda. 3. The priority of the state government is not just to provide its citizens with basic amenities, such as drinking water, toilets, and electricity, but also to expand the network of basic infrastructure such as roads, bridges, footpath-drainage systems, and so on. The State of Bihar underwent rapid social and economic transformation in recent years, with a marked increase in focus on the social sector and consequent increase in public spending and utilization of Government schemes. There has been renewed focus on strengthening the PRI system in Bihar. In this context, the processes relating to the decentralization of planning and governance have been improved over time. This is evidenced by the fact that regular elections have been held in 2006, 2011, and 2016, and affirmative actions were ensured for the greater participation of women and of Scheduled Tribe (ST), Scheduled Caste (SC), and Other Backward Class populations. 2 For further details see Annex 10. Sectoral and Institutional Context at Appraisal 4. The Constitution of India gives a federal structure to the Republic of India, declaring it to be a Union of States. The power relationship between the states and the center is defined by the Constitution, which divides legislative power into three lists. The Union List (or List I) is a list of 100 items in the seventh schedule in the Constitution of India over which Parliament has exclusive power to legislate. The State List (or List II) covers 61 items of exclusive state responsibility, and the 1Federalfinancial arrangements of India, under which financial resources are transferred from the center to the states. 2The Scheduled Castes, Scheduled Tribes, and Other Backward Classes are officially designated groups of historically disadvantaged people in India. Page 6 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Concurrent List (or List III) comprises 52 items under legislative power. These lists guide the functions that both the central and state governments are expected to fulfill. For further details see Annex 10. 5. In Bihar, PRIs were introduced after independence in 1947. 3 In India, a GP, or village council, is the only grassroots-level local self-governance system at the village level. Seven GP elections were held between 1952 and 1978, but none thereafter. The PRIs emerging from the 2001 elections had only legal existence, but neither functions nor funds. 6. The assignment of functions and sub-functions to the three tiers of the PRIs presented challenges to the institutional development of PRIs. First, in many cases the activity mapping neither provided financing for these activities nor assigned the functionaries necessary to carry out the activities. By and large, these functionaries remained employees of the state. Thus, the activity mapping provided the Panchayats with supervisory authority over the work of the state functionaries. Secondly, the activity mapping did not define the responsibility of each of the 29 functions where there were concurrent assignments among the four tiers of the government—that is, the GoB and the three tiers of the PRIs—nor did it provide for coordinating mechanisms or authority in case of overlapping responsibilities within or among functions. And finally, the GPs and Panchayat Samitis 4 were assigned only indirect supervisory or recommending responsibilities. For further details see Annex 10. Theory of Change (Results Chain) 7. The GoB needs strong PRIs as units of self-governance. The Project aimed at improving the autonomy, capacity, and accountability of PRIs so they can effectively plan and implement development initiatives that provide key public services and social support programs to the population, particularly poor and disadvantaged communities. The Project’s main interventions included building systems and institutions of local self-governance and helping the GoB design and implement new intergovernmental fiscal and administrative systems allowing more autonomy to and demanding accountability of the PRIs. The Project design process included reviewing the program documents of similar programs and consulting with a broad range of stakeholders to understand what had worked before. During the Project design phase, the team described critical activities that would lead to the long-term goal of strengthening PRIs as units of self-governance. Project Development Objective (PDO) 8. The PDO was to support Bihar’s capacity to promote and strengthen inclusive, responsive, and accountable PRIs in selected districts across the state. Key Expected Outcomes and Outcome Indicators 9. The PDO achievements were assessed through the performance indicators listed in Table 1. 3 Panchayat Raj Institutions (PRIs) is a system of rural local self-government in India. 4 An association, especially one formed to organize political activity. Page 7 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Table 1. Key Expected PDO Indicators (original) Baseline Target Indicator rating rating 1. Increased trained elected representatives perform mandated role effectively. TBD* Increasing 2. The regular meetings of the GP focus on planning and program budgeting TBD Increasing 3. Socially disadvantaged groups actively participate at Gram Sabha meetings. TBD Increasing 4. Increased % of GP Project beneficiaries are from socially disadvantaged groups. TBD Increasing 5. GP Standing Committees meet regularly to discharge their statutory functions. TBD Increasing 6: Increased # of GPs submit financial statement within four months after end of FY TBD Increasing 7. Increased % of people perceive that GP is increasingly “inclusive, responsive, and TBD Increasing accountable” in helping to address their individual and community issues. Note: TBD = To be determined; the baseline ratings had not yet been commissioned. 10. The Project supported the following five components: (a) Component 1: Panchayat Sarkar Bhawan 5 (US$50 million). Activities included constructing PSBs in 330 GPs and making them functional; (b) Component 2: Capacity building for PRI (US$27.5 million). Activities included building Panchayats’ core institutions and developing GPs’ capacity to plan and implement initiatives in natural resource management, nutritional status of women and children, quality of drinking water, and village sanitation; (c) Component 3: Strengthening the state government’s capacity to manage the decentralization and empowerment process (US$2.5 million). Activities included (i) establishing a regulatory framework for PRIs; (ii) monitoring Panchayat finance and performance; (iii) developing Panchayat capacity-building curriculum; and (iv) audits; (d) Component 4: Panchayat Performance Grant (US$20 million). Grants for exceptional Panchayats that are inclusive, responsive, and accountable.; (e) Component 5: Project management and coordination (US$15 million). Activities included operational costs for the implementing agency Bihar Gram Swaraj Yojana Society (BGSYS). 6 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) 11. The Project became effective in August 2013 after 12 months’ delay, due primarily to frequent changes in the government leadership and not receiving timely approvals of posts to be created under the Project, including for capacity-building organizations. Before restructuring, only a few activities were initiated with less than 1 percent funds disbursed. Progress toward PDO achievement remained unsatisfactory until the Project underwent three Level 2 restructurings. 7 12. First Restructuring (June 12, 2016). At the Government’s request, the Bank agreed to restructure the Project as follows: • Change in Project design: The Project had an intensive learning agenda to identify what works and what does not. The Project was initially implemented in six districts; however, after successful experimentation and learning in these six districts, the scope was expanded to 12 districts. 8 5 The formal office building of the local government at the village level (office of the Gram Panchayat). It consists of office rooms for the Mukhiya (President of GP), Up-Mukhya (Vice-President of GP), and Panchayat Sachiv (Secretary of GP), as well as meeting halls, space for the Gram Sabha (village meeting of all voting adults in a particular village), and meeting space for self-help groups, etc. 6 BGSYS was established by the Department of Panchayati Raj, GoB, as a catalyst agency for the GoB’s vision for empowering PRIs. It served throughout the project as the project implementation and coordination unit inside the state government. https://www.facebook.com/bgsysbihar/. 7 Level 2 restructuring applies to project modifications that are changes other than in the PDO statement or the safeguard category. At this level, approval is delegated by the Board to Regional management to be exercised by the Country Directors. 8 The Project initially covered Patna, Nalanda, Bhojpur, Saharsa, Supauland, and Madhepura districts. It was expanded to include Rohtas, Gaya, Aurangabad, Madhubani, Samastipur, and Darbhanga. Page 8 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) • Changes in PDO-level results indicators: The number of PDO-level indicators was reduced from seven to three to make them more specific and measurable (see Table 2). Table 2. Revised PDO Indicators Original Revised PDO indicators (original) PDO indicators (revised) targets targets 1. Regular meetings of GPs focusing on Gram Sabhas meet regularly to consider Increasing 330 program planning and budgeting issues of importance 2. Socially disadvantaged groups participate at Women participate in regular Gram Sabha Increasing 330 Gram Sabha meetings meetings in GPs 3. Increased number of project GPs submit Project GPs disclose annual plans, budget, annual financial statement within four months Increasing accounts, and progress reports 330 after the end of each fiscal year 4. Increased trained elected representatives Increasing Deleted perform mandated role effectively 5. Increased % of GP project beneficiaries from Increasing Deleted socially disadvantaged groups 6. GP Standing Committees meet regularly to Increasing Deleted discharge their statutory functions 7. Increased % of people from all social groups perceives that GP is “inclusive and Increasing Deleted accountable” to address community issues • Changes in the Results Framework: The RF was revised to reflect (i) the reduction in the number of indicators to focus on critical results; (ii) the modification of indicators to facilitate results measurement; and (iii) the addition of a new intermediate indicator to capture the outcome of new activities. • Changes in components: Changes were introduced under each component as follows: a. Component 1a: A new implementing agency, the Local Area Engineering Organization (LAEO), was introduced (US$50 million). Component 1b: (new subcomponent) - “Functional Panchayats”- was added to strengthen functionality of the GPs, and a results-based modality in the form of a disbursement linked indicator (DLI) was adopted for disbursements (US$15 million). GPs with newly constructed PSBs are considered functional only when they have key public officials in place (Panchayat Sachiv, Data Entry Operator, and Panchayat Accountant), and two positions available part-time for fixed office hours (Panchayat Rozgar Sewak/ MNREGA technical assistant, and Halka Karamchari (Revenue Official)); Gram Sabhas held in accordance with the PRI Act; Standing Committees constituted and performing mandated duties; and Bhawans (local government offices of the Panchayats) equipped with adequate furniture, fixtures, and computers and other peripherals for smooth functioning, and publishing basic information. This has been verified by the third-party agency before disbursement. b. Component 2: Activities related to “Natural Resource Management and Nutrition” were dropped as they were already covered in other centrally sponsored schemes. c. Component 3: Training activities were moved to Component 2, along with activities to develop research capacity to monitor Panchayat performance (US$32.5 million). d. Component 4: “Panchayat Performance Grant” was dropped at the request of the state government because of lack of capacity to monitor and evaluate performance on the ground Page 9 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) e. Component 5: Minor changes were introduced in staffing positions to accommodate new project management requirements under restructuring (US$7.5 million). • Reallocation of funds: The new Subcomponent 1b provided funds for non-procurable items such as salaries and cost-of-living allowance etc. Somehow, the costs in the system did not reflect the US$5 million originally allocated for contingencies. During restructuring, therefore, the contingency amount was cancelled. (Table 3 shows revised funds distribution). Table 3. Revised Funds, by Component (US$ million) Component name Original Revised Component name (original) (revised) cost cost Subcomponent 1a: Construction and making functional PSBs in Construction of PSBs 1 50.00 65.00 approximately 300 GPs Subcomponent 1b: Functional Panchayats Capacity Building of PRIs: building Panchayats’ core institutional competencies to empower them to 2 achieve development outcomes Capacity Building for PRIs 27.50 32.50 Strengthening State Strengthening State Government capacity to manage 3 Government capacity to 2.50 7.50 a gradual decentralization and empowerment process manage decentralization 4 Panchayat Performance Grants Component deleted 20.00 Deleted 5 Project Management and Coordination Not revised 15.00 15.00 6 Contingency - 5.00 0.00 Total 120.00 120.00 • Changes in disbursement arrangements: A results-based financing modality was adopted for the new Subcomponent 1b to provide incentives for achieving results. Funds were disbursed against the achievement of key results set out in disbursement-linked indicators. • Extension of the Project Closing Date: The Project was extended by 18 months, from December 31, 2017, to June 30, 2019, to facilitate completion of Project activities. 13. Second restructuring (April 30, 2019). Cancellation of credit: US$15 million, accrued due to exchange rate gains, was cancelled. 14. Third restructuring (June 2019).The closing date was extended by six months, from June 30, 2019, to December 30, 2019, to facilitate completion of outstanding activities, increase learning from the Project, allow rollout of the Gram Panchayat Management System (GPMS) in another 330 Gram Panchayats, allow communication and capacity-building activities to continue, and ensure steps for the sustainability of Project initiatives. Rationale for Changes and Their Implications for the Theory of Change (ToC) Page 10 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Chart 1: Results Chain Activities Outputs Intermediate Outcomes PDO Outcome Component 1: PSBs • Construction and Panchayat Capacity Building making functional • GP Bhawans fully functional PSBs in around 300 with premises used for Gram Panchayats intended purposes • Project Elected Representatives trained perform their mandated role Gram Sabhas in effectively Project GPs • Project GPs regularly disclose meeting regularly budget to the public in a to consider issues simple and accessible manner of importance to Component 2: Capacity • Project GPs regularly log the GP building of PRIs citizen grievances and report to every Gram Sabha progress in • Institutional Women resolving them. Resources: $84 million Strengthening participating at • 300 PSBs in • Project GPs report progress in • Development-oriented regular Gram 12 Districts of implementing development Panchayat leadership and Sabha meetings in Bihar schemes. local initiatives Project GPs constructed State Capacity Building and made functional • PRI FM manuals, accounting Project GPs manual, procurement manual disclosing annual are issued. plans; budgets, • All planned training modules statements of field tested and finalized. accounts; and • Panchayat Finance and progress reports Component 3: Performance database fully Strengthening Bihar State operational and captures capacity to manage panchayat finance and decentralization and performance in Project districts empowerment process • The State of Panchayat Report documenting the status of • Establishing regulatory decentralization in Bihar and framework for PRIs performance of panchayats is • Monitoring Panchayat produced and widely finance and performance disseminated annually. • Producing Panchayat • An increase in GP audit capacity building coverage in project district curriculum every year. • Expanding annual audit coverage Underlying Assumption: Panchayats to be responsive, inclusive, and accountable 15. The above ToC reflects the challenges and the flow of inputs, outputs, and intermediate and PDO-level outcomes. It provides more clarity in measuring the achievement of the PDO: some of the original indicators were replaced by improved indicators and targets, and others were added to provide clearer links to the results chain. For example, the original somewhat vague target “Gram Sabhas to have increasing number of meetings” was replaced by more specific language: “Gram Sabhas to meets regularly in 330 GPs.” Similarly, to ensure increased percentage of women in the GPs, the original indicator “to increase participation of socially disadvantaged groups” was replaced by: “to ensure women’s participation” at Gram Sabhas in all 330 GPs. The PDO remained unchanged, and only the PDO indicators were revised to be more measurable. The additional time provided through two extensions and the resource reallocation also contributed to more effective linkages in the results chain. Chart 1 reflects the ToC showing the new subcomponent (1b) added under Component 1; “Training activities” moved from Component 3 to Component 2; Component 4 dropped; and the Grant reference removed from the Intermediate Indicator column. Page 11 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 16. Restructuring allowed developing capacity to better measure the intended results and the outcome performances. For example, the participation of women in the regular Gram Sabha was ensured by the review of the minutes of the Gram Sabha meetings. Earlier, during the first three years of operation, the enabling institutions like PSBs were not in place and the Presidents continued to operate from makeshift buildings, so that it was difficult to measure and reward performance, let alone the use of funds. An assessment of services delivered by the rural local bodies 9 suggested that the newly built GP offices, with waiting areas, separate toilets, and breastfeeding rooms, make it safer and more comfortable for female community members to visit as well as wait comfortably if they need to. The findings show that gender-friendly structures and spaces are essential to ensure the inclusion of women in local government functioning. 9“Assessment of Services Delivered by Rural Local Bodies in Bihar,” prepared by ICRA Analytics (erstwhile Management Consulting Services Limited (IMaCS)). Page 12 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) A. RELEVANCE OF PDO Assessment of Relevance of PDO and Rating 17. Relevance of PDO is rated High. The PDO was fully aligned with the Indian Government’s commitment to strengthen GPs as part of its overall strategy of state building. The PDO supported a long-term vision of inclusive, responsive, and accountable local governance that encompassed (i) a critical mass of grassroots political leaders able to promote development, social justice, and cohesion; (ii) improved PRI processes and practices to address their own development priorities; (iii) more autonomous PRIs; and (iv) informed and engaged citizens who participated in governance and service delivery and demanded government accountability. 18. Alignment with the current Country Partnership Framework (CPF). The PDO remains relevant to the current CPF, under which the core competencies of public sector institutions, including their accountability mechanisms, remain the World Bank’s prime focus in developing rural PRIs and urban local bodies, and increasing local governments’ capacity to share greater service delivery responsibilities. 10 Under “approaches for smarter engagement,” the CPF highlights the Bank’s continued support for India’s development of human capital, with a relatively stronger focus on improving the quality of delivery of key services. Strengthening public sector institutions is considered critical to achieving these objectives. 11 19. The GoB carried out a survey to assess the relevance and impact of the services delivered to better understand the role of PSBs in achieving the Project’s PDO. The survey found that (i) the Project GPs with operational GP offices were more inclusive than the non-Project GPs without GP offices; (ii) GP offices in Project GPs were more forthcoming and responsive to the local residents in accessing various services; (iii) Project GPs with proper office infrastructure showed better responsiveness; for example, the majority of the applicants from Project GPs received the required services within 10 days of submitting their application, while most of the applicants from non-Project GPs received the required services only 10-30 days after submitting an application; and (iv) an operational GP office reduces the transaction cost to residents of accessing specific services. The participation of women in regular Gram Sabhas is ensured by reviewing the minutes of Gram Sabha meetings. 20. Analytical work was carried out to define the elements of the PDO in the context of existing GP situations. For example, inclusiveness was defined in terms of accessibility to the PSB and of the SB’s location and gender-friendliness. Responsiveness was defined in terms of the availability of functionaries at the PSB, the availability of an application form and of a Right to Public Service unit (RTPS), and the number of visits required for submission of an application. Accountability was defined in terms of follow-up visits required for receiving a service, time taken for delivery of mandated services, and record-keeping by PSBs. As PSBs were constructed, the inclusive, responsive, and accountable elements of PRIs were substantially enhanced. An operational PSB has the potential to make positive change in the service delivery function of the GPs. Accessibility is directly related to the inclusion of stakeholders. 21. To help Bihar achieve its long-term institutional development vision, therefore, the PDO focused on strengthening statutory institutions established by the Constitution under the Bihar PRI Act (2006)—the Gram Sabhas and Gram Panchayat Standing Committees—and supporting the District Planning Committees and the State Finance Commission, once they were constituted. The operational focus was on (i) providing basic office infrastructure and human resources to manage various programs; (ii) democratizing decision-making processes within Panchayats by facilitating results-oriented work and the work of the Standing Committees; (iii) facilitating government officials’ cooperation; (iv) encouraging collective action Page 13 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) among villagers; and (v) strengthening citizens’ capacity to monitor Panchayat operations and hold the Panchayat accountable. 22. Alignment with the Government’s decentralization strategy. The Project took a results-based approach to decentralization by focusing on selected development outcomes that were agreeable to the local leadership, with initiatives in sanitation, quality of drinking water, nutrition, and natural resource management. Collaboration across departments on the part of GoB and the Bank was considered critical. Given the deep- rooted social divisions in Bihar and the risk of elite capture of decentralized power and resources, the Project invested significant operational energy in raising awareness and building the capacity of citizens and leaders from disadvantaged groups to meaningfully participate in local governance, and to undertake collective action that benefited them as well as the broader community. Regarding strengthening decentralization and local government empowerment, the Project focused on building the capacities of more than 3,000 elected representatives on basic computer skills and smartphone handling to ensure their inclusion in the digital governance platforms. Several information and communication technology (ICT) initiatives were envisaged and implemented to ensure improved and timely delivery of services to the constituents: e-PMS (e-Project Management System: http://epms.bgsys.in); Results Framework Portal (http://result.bgsys.co.in); GPMS (Gram Panchayat Management System, a financial accounting software, gpms.bgsys.in); Training Management Information System (TMIS: http://tmis.bgsys); and mobile application (http://bgsys.co.in). B. ACHIEVEMENT OF PDO (EFFICACY) 23. The overall outcome rating is considered Substantial. While the Project experienced significant challenges from the beginning i.e.: only limited progress made and less than 1 percent of funds disbursed during the first three years of implementation, primarily because of lack of staff and inadequate technical capacity of BGSYS, the Project nevertheless fully achieved its development objectives and, in some cases, exceeded the intended outcomes after restructuring. A joint assessment (by BGSYS and the Bank) was carried out 12 to evaluate whether construction of local government offices, equipped with staff, furniture, fixtures, and other peripherals, helped build “inclusive,” “responsive,” and “accountable” institutions as stated in the PDO. Noteworthy achievements under these three dimensions are highlighted below: 24. Inclusive Gram Panchayats. To assess the inclusiveness of GPs, three indicators were used: location, accessibility, and gender-friendliness of GP office. 25. Location of GP office. This was a major determinant of access by and inclusion of all sections of the community. Earlier, having the GP office functioning in any building other than a dedicated GP office limited the inclusion of all stakeholders. For example, women community members were reluctant to visit a GP office that operated out of the residence of the GP President. All Project-financed GPs have a newly constructed GP office building with the necessary facilities for both service providers and recipients, enabling community members to have easy access to services. The assessment found that 89 percent of Project GPs are functioning from PSBs. The remaining 11 percent, though they have newly built PSBs, are still functioning either from other government buildings or from the residence of GP President for such reasons as lack of adequate furniture and fixtures, delays in electricity connection, and absence of water facilities in the building. It is worth noting that all non-Project GPs, without proper office buildings, are functioning from the personal office of GP President or a makeshift office (26%), from the residence of the GP President (30%), or from the public facility building (35%). 10 Country Partnership Strategy Report (126667-IN) for FY18–FY22; dated July 25, 2018. 11 CPF, para 35. 12 “Assessment of Services Delivered by the Rural Local Bodies in the State of Bihar” by IMaCS Consulting Services Ltd. Page 14 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 26. Accessibility of GP office. The assessment study used the Likert scale 13 to measure respondents’ ability to access GP offices. The respondents were asked to choose their response on a scale of 1 to 5, where 1 means the accessibility of the GP office was not a problem at all and 5 means very difficult to access the GP office. Of respondents from the Project GPs, 90 percent reported their GP office to be “well accessible.” In non-Project GPs, only 57 percent rated the accessibility of their GP offices as “well accessible”. It is noteworthy that in Project GPs, the location for the newly constructed PSB was decided through a resolution passed by the Gram Sabha, which is a participatory process. This has led to the higher levels of satisfaction in Project GPs (see Annex 8 Figure 1). 27. Gender-friendliness of GP office. Female respondents covered under the assessment were asked h comfortable they feel while approaching the GP Office for services. Most female respondents felt safe and co the independent offices of Project GPs (see Annex 8 Figure 2), which have waiting areas, separate toilets, and b rooms. The findings showed that gender-friendly structures and spaces were essential to ensure the inclusion the local government functioning. 28. Responsive Gram Panchayats. To assess the responsiveness of the GPs, the following indicators were used: (i) availability of functionaries at the GP office; (ii) availability of application forms and RTPS facility; and (iii) visits required for submission of a service-specific application. 29. Availability of functionaries at GP office. Ideally, a GP should have a dedicated secretary, but at present in Bihar, more than 50 percent of the GP secretary positions are vacant. As an ad hoc arrangement, each GP secretary is assigned to more than one GP, each with fixed days for the secretary’s visit. In addition, where GP offices are operating from the house or a school building, the lack of good working facilities often encourages the secretary and his/her staff to be absent from these offices. The assessment found that around 43 percent of Project GPs and 46 percent of non-Project GPs have secretaries visiting the GP office “less than three days per week.” In the absence of the secretary, more than two-thirds of the GPs across both categories are unattended by any alternate staff. In some GPs, the GP Presidents play a crucial role by making themselves available to the community members for accepting applications and listening to their grievances. However, as the administrative power lies with the secretary, the GP President is unable to deliver the end-to-end service to local residents. Because secretaries are unavailable and the dates and times of their visits to GPs are uncertain, community members tend to waste time and efforts on frequently visiting the office to seek services. 30. Availability of application forms and RTPS facility. The Project has established these facilities at the GP office to reduce local residents’ overdependence on the Block headquarters. This saves both time and effort for community members, since the local GP office is able to facilitate the initiation of applications without any loss of time and additional effort. This also strengthens the link between the GP office and the local residents as more and more people see the value in dealing with this institution. The result of these initiatives is restoration of faith in the GP as a responsive/responsible institution that caters to the local needs of the resident. 31. Visits required for submission of service-specific application. Most applicants from the Project GPs are able to submit their applications for various documents (birth certificate, death certificate, pension scheme forms, etc.) during the first visit, while around half of the applicants from non-Project GPs make three or more visits to the GP office to submit their application (see Annex 8 Figure 3). This shows that the Project GPs with 13Likert scale is a psychometric scale commonly involved in research that employs questionnaires. It is the most widely used approach to scaling responses in survey research, such that the term (Likert scale) is often used interchangeably with rating scale. Page 15 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) formal GP offices are more responsive than non-project GPs in helping the local residents. For the birth certificate, which is mostly needed at the time of school admissions, the availability of the Panchayat secretary in the local office is essential. 32. Accountability. To assess the accountability of GPs, the following indicators were used: (i) follow- up visits required for receiving a service; (ii) time taken for delivery of mandated services; and (iii) visits required to the Block Office by service seekers. 33. Follow-up visits required for receiving a service. The need for applicants to make fewer follow-up visits to receive a specific service is an indicator of the efficiency of a GP office in delivering various mandated services. The Project GPs took significantly less transaction time to deliver services than non-Project GPs (see Annex 8 Figure 4). 34. Time taken for delivery of mandated services. Timely delivery of services displays the GP office’s accountability toward the needs of the local people. While a majority of the applicants from the Project GPs received the required services within 10 days of submitting their application, most of the applicants from non- project GPs received the service in 10-30 days (see Annex 8 Figure 5). Thus, the GP offices in the Project GPs are more accountable than those in non-Project GPs. 35. Visits required to Block Office by service seekers. Except for “Pension Schemes,” most of the respondents from Project GPs did not need to visit the Block Office, while most of the applicants from non- Project GPs reported that they had to visit the Block Office during the application process for various services (see Annex 8 Figure 6). For a comparatively easily accessible service like birth and death certificates, about 73 and 69 percent of the applicants, respectively, from non-Project GPs without proper office infrastructure had to visit the Block Office during the application process. Other noteworthy achievements: 36. Government at your doorstep. To access services, villagers used to physically visit Block HQ or District HQ. With the construction of PSBs, villagers receive these services at their own doorstep, reducing the financial and physical burden on them. The utilization rate of basic services also increased. 37. Financial savings. Villagers travelled over 9 kms to Block and District HQ to access basic services, losing wages and incurring transportation costs and opportunity costs. The average financial losses were $3 in wages and $2 in travel cost for one visit alone—and they usually had to make many such trips to submit applications or to follow up and finally receive services. It can be safely assumed that having the GP office nearby results in substantial savings for villagers. 38. Improved functions. Because of institutionalization, the improved function of local governments is achieved in parallel with capacity building, communication, and one-on-one handholding of the PRI members. The physical building has provided a platform to perform what they have learned. 39. Investing in transformational infrastructure. The Project financed the completion of 271 PSBs, which are increasingly becoming a model across Bihar for construction financed by the state. Additionally, 330 GPs have now become functional through provision of furniture, computers and peripherals, online uninterruptible power supply (UPS), and human resources to carry out important functions of the Panchayat. RTPS units, staffed with executive assistants, data entry operators, and accountants have been established in all 271 PSBs that became functional during 2018-2019. Page 16 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 40. Achievements have helped GPs gain confidence and credibility among villagers. The space provided in PSBs made it possible for Gram Kacheri,14 Village Sachiv (Secretary), and other services to be made available under one roof. Thus, having a functional PSB for the Panchayats has become an important step toward strengthening local self-governance. Citizens now have easy access to legal advice and to such services as birth, marriage, caste, and character certificates. 41. Increasing citizens’ satisfaction. Where GP offices operate from a house or some school building, the lack of good working facilities limits the availability of the secretary and his/her staff, encouraging people to be absent from these offices. No proper record of staff attendance is maintained in these places, and frequent absenteeism weakens local residents’ trust and confidence in GP offices as an institution. In Bihar, there is a “trust deficit” with PSBs, but it was much higher in non-Project GPs where the staff of the independent local government offices were absent. Thus, physical infrastructure at the local level is very important, helping people meet their needs. The Government of India, through the 13th Finance Commission, gave money to build and develop buildings/local government offices in all the states to strengthen the relationship of local people with the government that is closest to them. The service delivery survey results support this point. 15 42. Managing the quality of outputs through independent verification. To help maintain the quality standards of the works, BGSYS enlisted an independent agency, Nabcons, 16 to carry out third-party quality audit of the construction of 330 PSBs in 12 districts of Bihar. The quality audit was done in five stages: foundation stage, plinth stage, roof level (1st floor), roof level (2nd floor), and finishing stage. Nabcons made 764 visits to PSBs at various stages of the construction. Monthly observations were shared with BGSYS and LAEO, and follow-up visits were made to ensure the effective implementation of observations. In monthly meetings, LAEO, BGSYS, and Nabcons reviewed shortcomings with a view to ensuring expeditious compliance at the field level. This process improved the quality of construction and ensured that common quality concerns were rectified. Since the Project has ended, maintenance of the buildings will be the responsibility of the state government or the GP, with their own resources. 43. Capacity building and training of local communities. The Project has contributed substantially to building the technical skills of the PRIs. The institutional strengthening initiatives were institutionalized and now serve as a learning ground for the Panchayat Mukhiyas 17 and other functionaries. For instance, selected Mukhiyas of 330 GPs in 12 Project districts were oriented on aspects of functional GPs (as envisioned under the Project), followed up by an exposure visit. Further reference training of more than 690 participants was provided (at the district level) on the Acts and Rules and up-to-date amendments needed for making a GP functional. Under various capacity-building programs, more than 3,000 Panchayat officials were trained in the use of information and communication tools and technologies and in cellular tools and applications, to enable them to handle smartphones and computers to get relevant information from different websites. This helped PRI staff immensely in integrating with the state- and central-level PRI strengthening programs. The Project organized training on basic accounts and the GPMS to make more than 3,000 PRI members and functionaries aware of the importance of keeping good accounts. 44. The Project helped to create a conducive environment for developing inclusive participatory Gram Panchayat Development Plans by orienting more than 1,500 participants (approximately 80% women). To 14 Gram Kacheri is a local judiciary body at the Gram Panchayat level. 15 Report on Assessment of Services Delivered by Rural Local Bodies in Bihar 16 NABARD Consultancy Services (Nabcons)is a wholly owned subsidiary promoted by the National Bank for Agriculture and Rural Development (NABARD). http://www.nabcons.com/default.aspx 17 Mukhiya is the leader of a Panchayat, commonly translated as village chief or head of the community. Page 17 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) inform PRI members about the importance, formation, and roles and responsibilities of Standing Committees, the Project built the capacity of more than 1,500 participants from the Project districts. Moreover, capacity- building activities have transformed the personalities of Mukhiyas and elected representatives and made them more capable in handling their responsibilities. Mukhiyas are even considered as opinion leaders now. The Bihar Panchayat Raj Act, 2006, chapter III, section 22 subsection (i) requires that GPs prepare annual plans for the development of the Panchayat area. The outcome of the Project’s capacity building can be easily shown by the indicator “Project GPs preparing annual plans and monitoring implementation”—a number that increased from 96 to 330 within one year. 45. Digitizing local communities. The Project has been implemented in line with the Government of India’s “digital India” campaign, which is focused on building the capacities of elected representatives in basic computer skills and smartphone handling to ensure their inclusion in digital governance platforms. Under the Project, to ensure improved and timely delivery of services to constituents, several ICT initiatives were implemented: e-PMS (e-Project Management System), Results Framework Portal, GPMS, Training Management Information System (TMIS), and mobile applications. 46. An integrated financial management information system, the GPMS, has been rolled out in functional GPs on a pilot basis. The system covers only accounting and some of the GPs’ schemes (notable exceptions are the Mahatma Gandhi National Rural Employment Guarantee Act and the Pradhan Mantri Awas Yojana Urban Mission). The rollout of GPMS has been completed in all 330 functional Gram Panchayats, and the GPs’ past and current financial transactions (up to December 2018) are already updated in the GPMS system. The GPMS will benefit the Gram Panchayats in preparing registers such as the cash book and scheme registers. The plan was to roll out GPMS in 3,186 GPs by December 2019; actual achievement was rollout in 2,800 GPs, though data capture varied across GPs. The full rollout was constrained, as the Cabinet had not yet approved the GP accounting rules at the time of Project closure. On the sustainability of the GPMS rollout, the GoB has already engaged over 8,000 executive assistants and 2,000 accountant- cum- IT assistants for GPMS. This offline accounting software, based on a cash basis double-entry system for maintaining daily accounts and generating all the statutory books of accounts and some other need-based customized reports for GPs, ensures real-time tracking of tax and audit compliance and monitoring of the use of funds by various local governments. Currently the Project has captured the financial data for 2863 GPs through GPMS in 12 Project districts. 47. Data about the regular functioning of the Panchayats are being uploaded on the Results Framework portal. The Results Framework Matrix MIS system was created to capture PDO-level results indicators for all functional GPs. This has helped integrate the functioning of the Panchayats with the state-level political and bureaucratic management of the PRIs. 48. The Web-based e-PMS was developed to facilitate the monitoring and evaluation of the construction of PSBs across the state—from the beginning (arrival of the letter of availability of land for the PSB) to the completion of all the construction milestones. It has improved transparency and accountability and has allowed the generation of daily, weekly, monthly, quarterly, and annual progress reports. The e-PMS has also served as a decision support mechanism as it provides current information pertaining to a project and highlights related issues. It has now been adopted as a model for all construction projects across the Panchayat Raj Department, Government of Bihar. 49. The TMIS was developed to strengthen data capture, analysis, and decision-making related to training PRI members. TMIS is a “single window” for all static databases related to training (that is, documents such as training guidelines, training manuals, course content, training calendars, circulars, and other relevant material) and for the dynamic databases that capture all real-time trainings, nominations, post- Page 18 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) training evaluations, and post-training deployment. A centralized database of trained human resources, the TMIS facilitates analyzing the gap between trained and untrained people. 50. BGSYS has established a Contact Center as a grievance redress mechanism for citizens. The center collects data in 22 different formats for the Department of Panchayati Raj. 51. WhatsApp groups have been created for all village officials, helping to improve overall communication between Panchayats and between Panchayat officials. Goods work, policies, programs, projects, and best practices implemented in one village are communicated to other villages and eventually mainstreamed. Sustainability 52. The Government of Bihar has decided to continue with the project for another two years. The project would continue only on the capacity building component and all construction related activities would be discontinued. The project would serve as “knowledge and capacity hub” serving the needs of building capacity of the PRIs across all government department. BGSYS would be converted to a State Panchayat Resource Center and all its district offices as District Panchayat Resource Centers imparting training, the necessary hand holding and mentoring to all the PRIs. 53. The long-term sustainability of the Project is significantly enhanced by the fact that the GoB is replicating the models developed under the Project (capacity-building approaches and methodologies, design of PSBs, awareness-generation material/street plays/short films, digital initiatives, etc.). Various innovative participatory tools have been developed—for example, P-Rap, a traditional folk song in the form of a rap; P-LUDO, a snakes-and-ladders game developed to impart training to the elected GP representatives about the main provisions for GPs in the Bihar Panchayat Raj Acts 2006 and in subsequent amendments and rules; and P-Vyapar, a Monopoly-like game used to train elected GP representatives on the Gram Panchayat Development Plan, or decentralized planning. 54. The effective implementation of these innovative tools has enhanced local-level participation and ownership and understanding of the concepts, which is likely to continue after project closure. The momentum started with the Project has paved the foundation for strengthening the PRIs. The capacity- building innovation, IT system development, robust building designs (earthquake resistant), and so on have been absorbed by the state government in totality. The government has huge machinery for implementing various interventions at all levels in the system, and the orientation of this machinery has enabled them to take forward reform functions at the PRI level. Women’s Empowerment 55. The construction of PSBs has not only empowered residents but also ensured a safe place for women. As highlighted above, women can now participate regularly and articulate their demands from local representatives without fear of ill-treatment. The office space provides a free, safe, and fair environment for local women who were earlier either discouraged from or fearful of visiting the residence of Mukhiyas on their own. Furthermore, as the PSBs are mostly situated within the village or adjoining villages, females no longer need to travel far—losing wages, incurring transportation costs, and possibly meeting with physical harm or accident—to request a service. 56. Empowering and training women local leaders. The Project laid special emphasis on training women Mukhiyas/Presidents —particularly those who were elected for the first time when the seat was Page 19 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) reserved for women—to perform the responsibilities of the PRIs. The Project has also expanded leadership opportunities for women beyond Mukhiyas, helping them build confidence to bring sustainable improvements in villagers’ well-being. Although there is evidence of the so-called mukhiyapatis and sarpanchpatis (husbands of the Mukhiya and Sarpanch) phenomenon (women who hold positions only as proxy officials on behalf of their husbands), the reality is that women are gradually being empowered across the state, and the Project has contributed to this silent revolution. 18 57. BGSYS organized more than 40 training events on various subjects, including safety, election process, mobile handling, GPMS, GP Development Plan, basic accounts, and acts and rules to build the capacity of PRI members and employees. The direct beneficiaries of training were the approximately 20,000 participants, of which 12,000—well over 50%—were women. It is assumed that there must also be more than 15,000 indirect beneficiaries, as the participants transferred the knowledge they had gained. 58. Access to legal services at the local level. By law 50 percent of the seats are reserved for women candidates in the elections for the post of Mukhiyas and Sarpanch (judges). Thus, women have increased opportunities not only to vote, but to get elected. A unique feature of Bihar’s local governance is that the GP is responsible for social awareness and development. The Gram Kacheri (court) provides justice services at the local level: under Section 43 of the Indian Penal Code and the Code of Criminal Procedure, this council of elected members can hear local disputes. Because 50 percent of the seats on the Gram Kacheri are reserved for women, the women of rural areas are increasingly playing an important role in providing justice in their communities, a fact that helps provide a conducive environment for them to address atrocities against women. Mass Media Awareness and Civic Engagement 59. In 2018, an agency was selected to prepare materials for, pilot-test, and roll out communication activities in Nalanda, one of the Project districts. The materials developed with the support of the Project are ready to be rolled out to all districts of the state. The initiatives taken in this direction have paved the way for the development of innovative communication materials and implementation plans for other districts in the state. Table 4. Achievement against Formally Revised PDO Indicators Achievements End Actual % Indicator name target Gram Sabhas in GP meet regularly to consider issues of importance to GPs 330 330 100% Women participate at regular Gram Sabha meetings in GPs 330 330 100% Project GPs disclose annual plans, budgets, statements of accounts, and 330 330 100% progress reports C. EFFICIENCY 60. The Project’s overall efficiency is rated Substantial. As described above, all planned activities were successfully completed with cost savings. The two-year extension was provided at no cost to permit Project activities to be completed. 18https://blogs.worldbank.org/governance/how-silent-revolution-rural-bihar-empowering-women-be-agents-change Page 20 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 61. An economic analysis was not carried out during Project appraisal as it was not considered applicable at the time. Nevertheless, the Project’s overall efficiency is considered Substantial since all planned activities were successfully completed with cost savings (due to exchange rate gains). The efficiency for each component is discussed below. 62. Activities under Component 1 were completed in a short span of two years. Land details were collected from 326 Project districts and shared with LAEO; budget was provided in the form of grants from the Department of Planning and Development for LAEO to construct PSBs; LAEO was provided technical support to prepare Detailed Project Reports (DPRs); model DPRs were prepared and approved by the BGSYS; a construction plan for PSBs was prepared; a tender for PSBs was published; construction of PSBs began; e-PMS was developed to monitor construction; and the Executive Committee of BGSYS approved the Environmental Management Framework (EMF) and Social Management Framework (SMF). In addition, staff were hired, and PSBs were equipped with adequate furniture, fixtures, and computers and other peripherals to function smoothly. 63. Under Component 2, for the first time, a detailed Capacity Building and Communication Plan was prepared, followed by the preparation of a training module on Basic Finance for GPs. Other activities included training for elected representatives; an exposure visit of elected representatives to GPs with best practices; an orientation-cum-exposure program on Functionality for GP Presidents; consultation meetings on the recommendations of the 5th State Finance Commission; and preparation of a module on Gram Kacheri and an awareness generation module on functional GPs. 64. Under Component 3, GPMS was replicated and rolled out in various GPs. The details are provided in the preceding sections of the ICR. 65. Under Component 4, the Project Management Unit was made fully functional with the deployment of District Project Management Units. To ensure transparency in the system, a MIS application and portal for monitoring progress against the RF were developed. D. JUSTIFICATION OF OVERALL OUTCOME RATING 66. The overall outcome is rated as Moderately Satisfactory. The overall rating is based on (a) High rating for PDO relevance; and (b) Substantial rating for efficacy and for efficiency. In accordance with the ICR guidelines, as the PDO remained the same, and the scope of the project expanded from six to twelve districts, applying split rating is not necessary. E. OTHER OUTCOMES AND IMPACTS (IF ANY) Gender 67. Gender-focused Project. The Project targeted women and specifically included one PDO-level indicator (Indicator #2) to ensure women’s participation at regular Gram Sabha meetings in the GPs. An intermediate-level indicator (Indicator # 4) was included to ensure an increased percentage of women in the GPs. The Project also laid special emphasis on training women Mukhiyas in Panchayats to perform the responsibilities of the PRIs. In the service delivery assessment female respondents were asked “how safe and comfortable they feel while approaching the GP office for services.” Responses show that in Project GPs, 90 percent of women feel safe and comfortable in approaching an independent GP office. The newly built GP offices, with waiting areas, separate toilets, and breastfeeding rooms, are safer and more comfortable for Page 21 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) female community members to visit or to wait in if required. The findings show that gender-friendly structures and spaces are essential to ensure the inclusion of women in local government functioning. 68. Contributing to women’s empowerment. The construction of local government offices at the village level has contributed to women’s emancipation and the inclusion of vulnerable people. The Project integrated feedback and input from women in the villages in designing and locating the offices. It also ensured that these local offices are designed with several gender-sensitive features: they are equipped with separate toilets for women; they are not in a remote corner of the village, and there are suitable facilities in terms of accessibility, safety, and connectivity for women; offices have electricity connections and are well-lit, with a boundary wall improving safety; and there is a place for young mothers to breastfeed and a meeting room for women’s self- help groups. The whole experience of creating these local offices contrasts sharply with the past, when the elected representatives (all men) functioned either from their homes or from limited spaces provided in schools or community centers. In several PRIs across Bihar women are beginning to be active and informed, mobilizing without fear of marginalization or discrimination. Also, the physical construction of simple office buildings (PSBs), equipped with essential facilities, realizes rural women’s dream of a place that is inclusive and participatory and ensures a safe working environment with opportunities for all. Institutional Strengthening 69. BGSYS has become a training institute for Panchayats. Well beyond serving as implementation agency for the project, BGSYS has developed a network of activists across the state and gathered substantial human capital to train, support, and empower communities. It has provided various kinds of trainings: (a) exposure visits of elected Mukhiyas both within and outside the state; (b) rolling out basic training on the Panchayat’s roles and responsibilities in about 3200 Panchayats; (c) scaling up GPMS throughout the state, with all records to be maintained in GPMS; (d) need-based training to different Panchayats on demand; and training of newly elected Panchayat representatives on computer literacy and use of smartphones. 70. Development of standard public investment projects. Standard investment projects refer to predefined investment projects that can be replicated using prototypes with common technical standards across the state in different environments, with small variations. The rationale for the development of these projects is that a large percentage of investment is allocated to certain outputs that can be replicated and scaled up with minimal variations, adapting them to different geographical or even cultural characteristics. For example, for basic infrastructure projects such as PSBs, the technical specifications and procurement documents developed under the Project are now being used by the GoB across the state. 19 Developing and using standard models for investment reduces the time and cost to design, procure, and execute these investment projects across the state and will ensure that future PSBs incorporate such safety, environmental, and social features as ramps, boundary walls, toilets for women and differently-abled persons, and multi-disaster-resistant standards. It will also contribute to strengthening public sector cross-cutting aspects related to infrastructure planning and maintenance. 71. Information technology tools and capacities. The e-PMS, developed to help manage the construction of more than 300 PSBs from preparation to procurement, construction, and disbursement, generates data about the status of construction activity, budgetary disbursement figures, and readiness of the PSBs for use by the local governments. Also, the Results Framework Portal has been built to collect village- level social and governance data and program-level indicators data to enable timely tracking of progress and 19 The Government of Bihar is hoping to carry out projects to cover all 8,387 GPs across the state. So far, the Department of Panchayati Raj has constructed 1,173 PSBs using their own funds and has approved the construction of 1,435 more. Page 22 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) monitor timely delivery of services. Regular data entered by each village under the Project provides raw data input to calculate values for each of the defined indicators. 72. The Training Management Information System (TMIS). To strengthen the capacities of the employees and elected representatives of the local village-level governments for efficient and timely service delivery, several training programs have been launched under the Project. TMIS helps to streamline these training programs and to collect and collate data about each of them. 73. Developing a model for local capacity building. With technical support from the Project, the capacity-building team prepared five training manuals for training of trainers: for Panchayat, Rules and Regulations of Panchayat, Scheme Literacy, Schemes of Two Departments (Rural and Panchayat), and Village Judiciary. These manuals were provided to 260,000 elected representatives as a part of building their capacity. The training has empowered Mukhiyas and enhanced their knowledge about roles and responsibilities. Despite the low literacy levels and diverse backgrounds of elected representatives, participation was considered high. The use of new technologies has enabled these representatives to connect with other Mukhiyas and learn from their experiences. 74. Facilitating communication across PRIs. A mobile application has been developed to enable village-level users to collect and enter data into the systems with their hand-held devices using 2G/3G connectivity at local levels. A radio pilot in Nalanda district was visualized in 2010. In 2018, an agency was selected to prepare, pilot-test, and roll out the communication activities in one of the Project districts. The materials developed with the support of the Project are ready to be rolled out to all districts with the help of the state government. The initiatives taken in this area have paved the way for the development of innovative communication materials and implementation plans for other districts in the state. Mobilizing Private Sector Financing 75. N/A Poverty Reduction and Shared Prosperity 76. The Project has had a positive impact on the efficient functioning of PRIs and through them is helping to reduce poverty at the village level in rural Bihar. The GPMS software, once rolled out across the PRIs, will streamline the financial functioning of the Panchayats, improving the financial prudence and efficient use of funds at the PRIs, and thus their impact on poverty reduction at the village level. It will also help improve communications about financial disbursement and data use to the villages and the state capital, thereby helping the state leadership efficiently allocate limited resources and funds to all PRIs. 77. The Project also will have an impact on people below the poverty line. For example, having a PSB in the village itself helps villagers save money and time by being able to access services like birth and death certificates, pensions, and so on locally. Other Unintended Outcomes and Impacts 78. By creating a paradigm shift in PRIs in Bihar, the Project has become a steppingstone for further strengthening of PRIs. Its achievements have triggered a positive impact that has been noticed by political leaders and the bureaucracy. 79. With BGSYS’s built-in resources and capacity, it has become a capacity-building center for the Panchayats of the whole state, and it is acting as the State’s Panchayat Resource Center to ensure the Page 23 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) sustainability of the capacity built. The District Panchayat Management Unit is acting as the District Panchayat Resource Center. The Project also created “Beacon Panchayats” to lead other Panchayats by example. BGSYS has also become a nodal agency for imparting knowledge and building capacity across different departments of GoB. 80. The e-PMS has helped monitor and manage the construction of 304 PSBs, helping to ensure that construction work finished on time. It has been adopted as a model for all capital projects across the Panchayat Raj Department. 81. The Project was instrumental in creating better understanding among elected Panchayat representatives on their roles and in helping them better fulfill their responsibilities for the welfare of communities. In particular, the Project contributed to behavioral changes, especially in Mukhiyas; for example, it helped them realize their potential and boosted their confidence in interacting with people and speaking out their views. 82. LAEO is now replicating the design used for the construction of PSBs for other PSBs supported by the state government. In addition, GPMS, capacity-building methodologies such as P-Ludo and P- Vyapaar, and communication materials have been replicated by the state government and provided to all other Panchayats in the state. 83. The process of selecting PSB construction sites according to the Bank’s selection criteria has helped build BGSYS’s capacity for future needs. 84. PSBs as isolation centers during the outbreak of COVID19. During the COVID-19 pandemic, PSBs served as isolation centers for migrant laborers reaching Bihar from different parts of India. The 12 districts of Bihar where BGSYS has been working ensured that the buildings were physically functional in terms of toilets, water, and electricity. Those who were quarantined at the PSBs were given meals and beds. BGSYS staff, along with Block administration and PRI members, were involved at many places in monitoring the centers. 2. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME A. KEY FACTORS DURING PREPARATION 85. In the context of weak public sector governance, the Project preparation team recognized the challenges of implementation and prepared the Project design with sound background analysis and comprehensive assessment of the government’s commitment. During Project preparation, lessons learned from previous projects were taken into account. Further, potential risks that could impede Project achievements were also identified. (For details see Annex 10) Factors affecting preparation included the following. 86. Divergent views between the Bank and the GoB on the Project priorities slowed Project preparation. While the GoB initially insisted that 90 percent of the Project funds should go for the construction of PSBs and only 10 percent for capacity building, the Bank did not agree. During negotiations it was decided that 40 percent would go for the construction of PSBs and 60 percent for capacity building. Page 24 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 87. The PSBs were to be built by the state (not BGSYS) with limited Panchayat or BGSYS ownership of the construction. The funds for the technical assistance component for construction were drawn by the authorized implementing agency BGSYS and placed with Bihar Construction Department (BCD), the agency responsible for construction. BGSYS had no supervisory role to monitor or demand delivery of the PSBs that were not being constructed, despite its various attempts to provide procurement support, supervisory assistance, and quality assurance support. 88. There were frequent changes of key government and project staff. The Principal Secretary of the Panchayati Raj Department and the Project Director, for example, changed several times. Also, no institutional arrangements were in place, and BGSYS lacked manpower. For example, only one engineer was posted there to take care of construction work. Moreover, no institutional support was available at district levels. For further details see Annex 10. B. KEY FACTORS DURING IMPLEMENTATION 89. In the first few years of the Project, BGSYS had a shortage of manpower—only four state project managers, too few to manage the project in six districts. In 2015, 40 people were hired and some of them were posted in the districts. In addition, the procurement process was slowed by state government officials’ lack of understanding of the Bank’s procurement rules and their reluctance to adopt them. 90. For construction, the Project had to find more than 300 land sites in rural Bihar that were complied with environmental safeguards, were encroachment-free and had clear titles. According to the government’s policy decisions, no land could be purchased, nor could any compensation be paid for any land parcel. However, the government did not have enough human resources on the ground to identify appropriate land, so delays resulted. 91. The construction of new PSB buildings had to comply with the Environment Management Plan that was included in DPRs and with the bidding process. The capacity of the BGSYS Project team to monitor and report on compliance and to ensure compliance at the construction sites continued to be weak, despite many rounds of training and hand holding by the Bank. 92. From 2014 to 2016, implementation was adversely affected because of various elections: the Lok Sabha election in 2014, the Vidhan Sabha election in 2015, and the prolonged process of Panchayat elections from March to August 2016. Because the Model Code of Conduct prohibits recruiting new staff and advertising tenders during an election period, the state government came to a standstill, affecting the pace of implementation. 93. According to the original plan, the construction of PSBs was to be done by BCD, which did not have the capacity to prepare DPRs and Standard Bidding Documents (SBD). As a result, the construction of PSBs was delayed by about three years. In 2016, BCD was replaced by the LAEO, which already had experience in constructing PSBs for the state government and had a standard design for them. Page 25 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 3. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME A. QUALITY OF MONITORING AND EVALUATION (M&E) M&E Design 94. The Project’s RF was prepared according to the Bank’s guidelines and the PDO indicators, and the targets were compatible with the Government’s approach and long-term strategy of improving Panchayat leadership. However, the original RF included far too many indicators, some of them almost impossible to measure, and some that required a special survey for the baseline and tracking. The PDO indicators were also weak, disconnected to expected outcomes, and not substantive enough to provide strong evidence of PDO achievement. Changes in the RF were later introduced through restructuring to enhance results monitoring. The restructuring simplified the RF and focused on aligning with the country’s own systems, using indicators that were going to be included in the planned M&E system for GPs. M&E Implementation 95. During the initial stages, the M&E on both environment and social safeguards was extremely weak because of the Project team’s lack of capacity. However, after project restructuring, there was improved M&E. 96. For construction work, a robust system of monitoring was developed. Real-time data were collected using software 20 that was specifically developed for the Project to track results frameworks and civil works. The progress in construction works was regularly updated by LAEO and BGSYS. 97. The Project task team regularly collected data, updated progress against the baseline established after Project restructuring in June 2016, and highlighted issues for Bank Management’s attention. Several reports, including quarterly and annual progress reports and monthly fiscal reports, were prepared to monitor outcome and results indicators. 98. The analysis of the survey data concluded that (i) the Project GPs with operational PSBs are more inclusive than the non-Project GPs without PSBs; (ii) PSBs in Project GPs are more forthcoming and responsive to local residents in providing various services; and (iii) an operational PSB reduces the transaction cost of accessing a specific service by local residents—particularly those who are aged, destitute, or differently abled. (For more details, see Annex 8 for the Summary of the Assessment of Services Delivered by Rural Local Bodies in Bihar). M&E Utilization 99. Data collected from the progress reports on indicators were regularly evaluated and used to inform decision-making on Project activities. For example, on the basis of the data and information collected from the reviews, the Bank and the government decided to restructure the Project and extend the closing date by two years. Annual Work Plans and Procurement Plans were also modified when necessary. 100. Decisions about changing sites, reducing the number of sites, and so on were based on the MIS reports and analysis of the site-specific issues. The entire system was developed to allow making quick decisions on the ground. 20 E-PMS - a web-based Project Management System Page 26 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Justification of Overall Rating of Quality of M&E 101. The overall quality of M&E is considered Modest. This rating is assigned mainly because there were significant shortcomings in the M&E design. As highlighted above, the original RF included too many indicators, some impossible to measure while others required special survey to develop a baseline. The PDO indicators were considered weak, disconnected to expected outcomes, and not substantive to provide strong evidence of PDO achievement. The M&E design was nevertheless kept flexible facilitating the Project team to adjust the indicators and target values during implementation. Timely M&E reports allowed the team to keep track of Project status at any given time. The occasional Moderately Satisfactory rating for M&E in the Implementation Status Reports (ISRs) did not reflect the Bank’s M&E processes, but rather the contribution by the implementing agency and occasional delays in delivering timely progress reports. B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE Environmental and Social Safeguards Compliance 102. Environmental Safeguards. The Project was classified as Category B and triggered OP 4.01, Environmental Assessment. At Project restructuring in 2016 the component on natural resources was dropped, and the Environmental Management Framework (EMF) was revised to provide appropriate mitigation actions during the selection of land parcels and construction of new PSB infrastructure. Screening was carried out to ensure that the selected land parcels met the EMF requirements. Because an environmental development specialist was appointed only at a later stage of the Project, there were delays in carrying out land screening and monitoring compliance with the Environmental and Social Management Plan during the construction of the PSBs. Overall, the environmental safeguards compliance is considered Moderately Satisfactory. 103. Social Safeguards. The Project triggered OP/BP 4.12, Involuntary Resettlement, and an appropriate resettlement and rehabilitation framework was prepared during Project appraisal. As PSBs would be constructed on government land, no land acquisition was involved. Screening was carried out to identify encumbrance-free land that also met the EMF criteria. A social development specialist was appointed at a later stage of the Project. Overall, the social safeguards compliance is considered Moderately Satisfactory. For further details see Annex 10. 104. Financial Management. The Project’s financial management (FM) performance is considered Moderately Satisfactory. While BGSYS, as a special purpose entity, followed its own FM systems, LAEO followed the state government system. These two dissimilar systems complicated the FM arrangements in terms of funds flow, accounting, reporting, and auditing. Another complication was that the Project implementation covered multiple field units of LAEO. The Bank FM team worked continuously with Project counterparts on implementing and strengthening the Project FM arrangements. The provision of counterpart funds was satisfactory and, except during the first month of each financial year, adequate funds were available to the Project. Some initial delays in implementing the agreed FM arrangements improved as the Project progressed. These delays related to finalization of the revised FM Manual, appointment of Project auditors, institution of internal audit, and submission of interim unaudited financial reports and audited financial statements, particularly for LAEO. At the first audit of the Project transactions in LAEO, the auditors disallowed expenditures amounting to Rs. 17.9 million (around US$250,000). As the construction activity picked up, efforts were made to strengthen the systems. Delayed submissions of internal audit reports and Project audit report pertaining to LAEO were the key issues. Page 27 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 105. Procurement. The Project’s procurement performance is rated Satisfactory. All procurement activities were carried out by BGSYS. The procurement of civil works—that is, the construction of PSBs—was carried out by the BCD. During Project appraisal, BCD’s procurement capacity was assessed, and the risk was considered high. Risk mitigation measures, including additional procurement staff and training, were discussed and put in place. BGSYS (through its various departments) gained further understanding of procurement procedures and satisfactorily implemented procurement using competitive methods. Prerequisites were put in place to help ensure successful procurement and implementation, and all procurement contracts were awarded in line with the Bank’s Procurement Guidelines. There were occasional delays in processing procurement packages, mainly due to weak coordination to get all technical inputs in time to start the procurement work. C. BANK PERFORMANCE Quality at Entry 106. During appraisal, the Government had made BCD responsible for the construction of PSBs, including preparation of the Bill of Quantity and providing Technical Sanctions of PSB design estimates. The Project preparation team however, overestimated BCD’s capacity, as it later became apparent that BCD did not possess adequate capacity to prepare Detailed Project Reports or the Standard Bidding Documents and which had resulted in around three years of delays down the road until BCD was replaced by LAEO. 107. Notwithstanding the above, the Bank adequately considered appropriateness of the project design, including the technical, financial, institutional, and procurement aspects. An economic analysis was not carried out as it was not feasible for a project of this nature. Major risk factors and lessons learned from earlier projects were also considered and incorporated into the design. The Project was considered well-grounded in the realities of Bihar and its problems in the public sector and was well focused on the decentralized reform approach. An experienced and committed task team was constituted to provide technical support that reform implementation required. Quality of Supervision 108. As highlighted earlier, the project faced significant challenges in its early phase. During this time only limited supervision reports (aide-mémoire) were prepared so there may have been limited guidance from the Bank’s management. Lack of proper leadership at the Bank’s side was a factor that hindered progress; frequent changes of task team leaders (three during the first four years alone) also caused difficulties and delays during implementation. 109. The Bank’s performance after restructuring was substantially superior under a new task team leader. During this time, the supervision team redoubled its support efforts, resulting in a total turnaround with significant progress in all areas. The achievement of PDO, high disbursement ratio, capacity-building initiatives, and construction of buildings within the stipulated timeframe were the main factors behind the rating. 110. Appointment of new team. The new task team was led by seasoned professionals and had an adequate skills mix, including an FM specialist, environment specialist, procurement specialist, social development specialist, economist, institutional development specialist, and M&E specialist. The Bank’s technical and fiduciary teams provided regular support that resulted in adjustments, including restructurings. The new task team conducted regular supervision missions to take stock of the Project’s progress and prepared detailed aide- mémoire and ISRs. Page 28 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 111. Appointment of a new agency. The implementation arrangements were addressed during the midterm review when the government nominated a new agency, LAEO, to build PSBs. LAEO was a new organization undertaking small Panchayat works and it was necessary to build its capacity to procure, supervise, and manage construction projects following the Bank’s norms. Regarding Bank’s role in facilitating nomination of LAEO to take over from BCD, the Bank during its review meetings with the State government observed that progress was not being made as expected due to BCD’s inability to prepare DPRs and SBD. At the same, the Bank noted LAEO had already started construction of PSB for the state government showing good results. Thus, after deliberation the Bank team agreed to replace BCD with LAEO for construction work. 112. Support in quality and frequency of supervision arrangements for all aspects of the project: The Bank team regularly visited projects sites to review the quality of project progress (starting from identification of land up to construction of PSB) at the ground level. Various missions and regular technical support were provided to the BGSYS and LAEO to ensure continuity of work progress accordance to the prescribed standards. 113. Support to the implementing agency in meeting Safeguard requirements on identifying land in rural Bihar: The Bank team assisted BGSYS in the development of EMF and SMF and developing initial site screening checklist. Further the Bank team conducted workshops for the field staff for collection of data. The Bank’s safeguards team also made joint site visits with field staff. The Bank safeguards team organized trainings on Project’s Social Safeguards for the State Project Management Unit (SPMU) field staff (District Project Managers and Block Project Managers), staff members from SPMU head office and staff of LAEO). See Annex 9 for more details. 114. Procurement Support: The Bank provided a procurement consultant to work with SPM-Procurement and other technical experts who assisted the project team in reviewing the ToRs, cost estimates, Expression of Interests, and other bidding documents and provided inputs to streamline the procurement documents and activities. A Standard Bidding Document (Small Works) for the project was finalized to allow LAEO to float tenders for commencement of civil works. The Bank team also assisted in the preparation of capacity building and communication plan with clearly defined implementation strategy. 115. M&E Support: The Bank team assisted the project in developing a set of indicators for monitoring of labor issues and standards for the laborers appointed by the contractors undertaking construction works in the Bank-funded PSBs. Additionally, a Grievance Redressal system was put in place by the project on the recommendations of Bank experts. 116. Financial Management Support: The Bank reviewed and provided regular feedback on project financial statements, internal audit reports, and all other financial reports submitted by the BGSYS. Justification of Overall Rating of Bank Performance 117. The overall rating for the Bank’s performance is considered “Moderately Satisfactory” given that no noteworthy progress was observed during the first three years of project implementation, and significant progress experienced after restructuring. D. RISK TO DEVELOPMENT OUTCOME 118. The government has demonstrated its resolve and political will to promote decentralization by giving a lot of attention to the Project and its outcomes. However, in the years to come this commitment could weaken. Page 29 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 119. The government has decided to retain its entire institutional framework at the state, district, and local levels. Until the state government gets further financial support from international funding agencies, it will support PRIs from the state budget. For example, the government has already allocated Rs. 25 crores (US$3.48 million) from the state budget to fill the funding gap until March 2020, and this approach will continue to be its policy. The government has also decided to absorb, and pay the salaries of, about 700 BGSYS staff for the next 2-3 years. 120. The government is interested in developing a follow-on project and receiving support from the Bank, especially on softer components such as training, capacity building, IT, and M&E. To sustain the Project efforts, the government plans to construct PSBs using its own funds, with support on capacity building and communication coming from existing resources. This will ensure not only the continuity, but also the long-term sustainability, of the Project’s initiatives to empower GPs. However, it will be important for the government to adopt good practices—especially on procurement—that are based on the effectiveness of this Project. If it does not, the achievements of the Project may collapse. 121. At Project closure, the GPMS had not been fully rolled out. While the GoB is committed to implement reform in PRIs, the rollout has been delayed because the Cabinet has yet to approve the GP accounting rules. It is not clear how long it will take for the GoB to pursue the rollout of the GPMS after Project closure. 4. LESSONS AND RECOMMENDATIONS 122. The Project offers several important lessons, some that are specific to India and others that are broader and more generally applicable. Some of these lessons are not new, but reinforce lessons consistently emerging from the Bank portfolio. The following lessons learned are organized in three areas: the Bihar context, implementation and supervision and other lessons. The Bihar context 123. Deep understanding of the political economy of the state of Bihar is paramount. The Project, it seems, was ahead of its time, and the Government had lost interest in pursuing decentralization after conducting Panchayat elections, possibly fearing political competition at the grassroots. The state government and the Panchayats had adequate funding from large centrally sponsored schemes such as the Mahatma Gandhi National Rural Employment Guarantee Act - (also known as MNREGA Scheme), and their attention was focused on creating the capacity to address scheme requirements. Little attention was therefore given to strengthening what is known as the 3Fs (the devolution of functions, funds and functionaries) in Panchayats, and they were not demanding more resources because of the rush of central schemes. The following facts illustrate the limited interest in the Project: (i) Panchayat Rules were not issued to support the Panchayat Act; (ii) the State Finance Commission was considered only as a notional commission; (iii) Panchayat General Body meetings were not being held; (iv) Panchayat committees mandated under the Act were not being formed; and (v) the Project did not have any intervention to audit GPs as per GoB’s decision. 124. Adapting the intervention design to the local context is crucial. The initial operational design did not sufficiently take into account the scale of the challenge, the capacity constraints, and the poor governance context in Bihar. The Bank often encourages project teams to pursue “best practice,” but sometimes it is better to focus on “good fit” and “second-best options” in difficult contexts. The Bank should be bolder in creating the space for allowing task teams to adapt to the context and allow as much flexibility during implementation as possible. Page 30 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 125. Implementation Binding constraints to implementation in Bihar are beyond the project level. This was not the only project facing implementation challenges in Bihar during the implementation period. The Kosi project and the Bihar Social Protection project were also facing implementation difficulties. The Jeevika project was the only successful project at the time. But none of these other projects were run with the help of Panchayats, as Panchayats had no capacity to implement. They were state-led and were implemented by deconcentrated units of Government departments such as the Rural Drinking Water. This contributed to the lack of interest in strengthening Panchayats’ capacity for managing drinking water and sanitation, which was one of the Panchayat Project’s components for capacity building. 126. Local elite capture is always a risk that needs to be mitigated in decentralization efforts. Decentralization should never be considered as a panacea for inclusion; in fact, at times it may result in displacing of exclusionary practices from the center to the local level, where local elites take control of the new power and resources offered by the decentralization process. Given the social structures in Bihar, some believe that the availability of buildings for PRI functions has mitigated local elite capture and strengthened participation and the outreach of services to the wider population. Implementation and Supervision 127. Changes in project leadership, on both the Bank and client side, can have severe effects on project implementation. Continuity of leadership on the part of both the Bank’s project team and the counterpart is crucial for effective project implementation. During the implementation of BPSP, the Bank’s task team leader changed four times, BGSYS had 10 Project Directors in the first three years, and the Principal Secretary of the Panchayati Raj Department also changed several times. These frequent changes created discontinuity and disruption and had an adverse impact on implementation. To ensure stability in implementation, it is important that the Project Director be retained for a fixed tenure of at least two or three years. 128. Proactive restructuring is fundamental to turning a project around and to overcoming implementation challenges. The Project turned around after restructuring was thanks to the adoption of a results-based logic and the appointment of very dedicated PIU and Bank supervision teams. Following the restructuring, the coordinated efforts of World Bank team members, regular follow-up, and the availability of a long-term Project Director led to success of the Project. There is no better recipe for overcoming implementation struggles than a fully committed and proactive task team and project implementation team on both the client and Bank sides. 129. Relying on strong implementation teams. For state-level projects, strong and efficient project implementation teams at the state, district, and village levels are important. Strong and responsive project leadership at the state level and at the Bank is equally important for successful implementation. Moreover, the nodal department responsible for implementing the project should have adequate institutional arrangements and human resources to carry out its responsibilities. 130. Intensive engagement is a necessary condition. For a Bank project in a state such as Bihar, with low capacity and a complex political economy, intensive engagement and focusing on the basics are important. Intensive support from the Bank’s team is needed to meet the minimum requirements for complying with E&S safeguards and conducting monitoring and reporting. Moreover, regular Bank missions and efficient oversight by the Bank do much to bring global best practices to affect the outcome of the project. Supervision missions should go up to the village level and interact with village administration for better project outcomes. It must be stressed that intensified supervision support efforts can lead to a turnaround in progress. The key lesson learned from the turnaround in this Project is that “empowered decision making” with adequate technical support can completely transform project progress. Page 31 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) 131. The focus on local service delivery, as a final result, has to be at the center of these interventions. Decentralization should not be implemented just for the sake of decentralization, but rather to improve access to public services of quality. Although the Project did not focus on this for a good reason, it could be a lesson for a next phase of lending in Bihar. The GoB carried out an assessment survey and found positive impact on the services delivered, better understanding of the role of PSBs in achieving the Project’s PDO, and reduction in transaction costs associated with various types of services and with the quality and operational efficiency of service delivery at the local level. All of this reinforced people’s trust and belief in local government. Other Lessons 132. A critical, yet not new lesson, is that the Government’s constant commitment and ownership are a must. For decentralization project such as BPSP, political willingness and commitment on the part of the government is very important for achieving the objectives and sustaining them. Lack of strong support should trigger drastic actions to either to find ways to regain that support, or to terminate the operation. 133. Project design: simple and flexible is better. As decentralization is a complex issue that involves many beneficiaries, it is critical for the project design to be as simple as possible so that implementation is smooth and straightforward, allowing flexibility to adapt during implementation. The design should also be flexible and include scope for “learning by doing” so that midcourse corrections can be made as needed. Finally, it is also important to do proper studies, surveys, and needs assessments during project preparation to generate data that allow implementation teams to learn, adequately plan, and as necessary (redesign the project for successful implementation. 134. Information and communication technologies (ICT) can facilitate local changes and capacities. ICT can help strengthen the capacities of institutions far beyond the financial disbursements for such initiatives. Village officials’ ability to absorb ICT initiatives helped improve their capacities and enhanced their self-esteem and the overall functioning of PRIs. 135. Capacity-building initiatives take time, but eventually pay off. Investing in capacity and training activities do not always show results for a while and initial failures should not lead to abandoning such initiatives under the project. Furthermore, because of the high turnover of Panchayat representatives, it is important to provide continuous capacity-building activities. And it is important to provide not only training, but also mentors who can help guide the representatives. 136. The balance between focusing on infrastructure aspects versus institutional building aspects needs to be carefully thought through during the design stage. Originally, the project was designed with the primary focus on engineering and civil works and with less emphasis on institutional strengthening. The design and construction of PSBs consumed much of the task team’s time and effort. Arguably, it could have been done through block grants to BGSYS for construction avoiding the process of developing the structural design and construction works of PSBs. Generally, in block grants, it becomes the responsibility of GPs to take care of construction activities by giving due consideration to compliance. However, this has also contributed to creating a central capacity and standards that can now be mainstreamed across the state. . Page 32 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 1: RESULTS FRAMEWORK AND KEY OUTPUTS A. RESULTS INDICATORS A.1 PDO Indicators Objective/Outcome: Project Development Objective Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Gram Sabhas in Project GPs Number 96.00 330.00 330.00 meet regularly to consider issues of importance to the 12-Mar-2018 30-Dec-2019 30-Dec-2019 GP. Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Women participate at regular Number 96.00 330.00 330.00 Gram Sabha meetings in Project GPs 12-Mar-2018 30-Dec-2019 30-Dec-2019 Comments (achievements against targets): Page 33 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Project GPs disclose annual Number 50.00 330.00 330.00 plans, annual budget, statement of accounts and 12-Mar-2018 30-Dec-2019 30-Dec-2019 progress reports. Comments (achievements against targets): A.2 Intermediate Results Indicators Component: Sub-component 1a (Construction of Panchayat Sarkar Bhawans) Sub-component 1b (Functional Panchayats ) Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Number of new Panchayat Number 0.00 330.00 271.00 Sarkar Bhawan Constructed 01-Jun-2016 30-Dec-2019 30-Dec-2019 Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Number of functional Project Number 0.00 330.00 330.00 Page 34 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) GPs with newly constructed 01-Jun-2016 30-Dec-2019 30-Dec-2019 Panchayat Bhawans Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Standing Committies Number 96.00 330.00 330.00 constituted in Project GPs 12-Mar-2018 30-Dec-2019 30-Dec-2019 Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Project GPs where Standing Number 19.00 330.00 330.00 Committies meet regularly to discharge their statutory 12-Mar-2018 30-Dec-2019 30-Dec-2019 functions Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Page 35 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Project GPs where Number 0.00 330.00 330.00 attendance to Gram Sabhas is systematically recorded 01-Jun-2016 30-Dec-2019 30-Apr-2019 Comments (achievements against targets): Component: Capacity Building for Panchayat Raj Institutions Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Project GPs preparing annual Number 96.00 330.00 330.00 plans and monitoring implementation 12-Mar-2018 30-Dec-2019 30-Apr-2019 Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Strengthened capacity of Number 0.00 330.00 330.00 vigiliance committees (VC) on subject matters 14-Mar-2018 30-Dec-2019 30-Apr-2019 Comments (achievements against targets): Indicator Name Unit of Measure Baseline Original Target Formally Revised Actual Achieved at Page 36 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Target Completion Financial management Number 0.00 330.00 330.00 capacity of GPs is strengthened 01-Jun-2016 30-Dec-2019 30-Apr-2019 Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Number of trained Project Number 236.00 330.00 330.00 Elected Represetatives (ER) 14-Mar-2018 30-Dec-2019 30-Oct-2019 Comments (achievements against targets): Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Project GPs producing Number 96.00 330.00 330.00 consolidated annual financial statements 14-Mar-2018 30-Dec-2019 30-Apr-2019 Comments (achievements against targets): Indicator Name Unit of Measure Baseline Original Target Formally Revised Actual Achieved at Page 37 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Target Completion Coverage of GP annual audit Number 96.00 330.00 330.00 14-Mar-2018 30-Dec-2019 30-Dec-2019 Comments (achievements against targets): Page 38 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION A. TASK TEAM MEMBERS Name Role Preparation Supervision/ICR Farah Zahir Task Team Leader(s) Heenaben Yatin Doshi Procurement Specialist(s) Puneet Kapoor Financial Management Specialist Girija Sawkar Team Member Shashank Ojha Team Member Sita Ramakrishna Addepalli Environmental Specialist Sangeeta Kumari Social Specialist Deepak Singh Team Member Twity Mueni Musuva Uzele Team Member Vidya Venugopal Counsel Page 39 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) B. STAFF TIME AND COST Staff Time and Cost Stage of Project Cycle No. of staff weeks US$ (including travel and consultant costs) Preparation FY08 24.250 103,837.14 FY09 37.915 200,383.27 FY10 24.425 308,588.31 FY11 47.779 300,429.46 FY12 20.725 99,781.31 FY13 11.000 51,164.57 Total 166.09 1,064,184.06 Supervision/ICR FY13 8.350 31,179.44 FY14 29.045 93,418.61 FY15 29.531 104,621.10 FY16 24.978 105,025.44 FY17 46.992 200,049.06 FY18 37.823 234,225.62 FY19 18.275 148,440.92 FY20 23.676 201,536.08 Total 218.67 1,118,496.27 Page 40 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 3. PROJECT COST BY COMPONENT Amount at approval Actual at Project Percentage of approval ($ Components ($ million) closing ($ million) million) Subcomponent 1a (Construction of Panchayat Sarkar Bhawans) 50.00 65.00 0 Subcomponent 1b (Functional Panchayats ) Capacity Building for 27.50 32.50 0 Panchayat Raj Institutions Strengthen the State Government capacity to 2.50 7.50 0 manage decentralization Panchayat Performance Grant 20.00 Project Management and 15.00 15.00 0 Coordination Total 115.00 120.00 0.00 Page 41 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 4. EFFICIENCY ANALYSIS The Project Appraisal Document did not provide economic analysis as it was not considered applicable during appraisal (PAD page 12). Efficiency during the first phase of implementation. Between 2013 and 2016, before the Project was restructured, limited progress was made, and the Project was unlikely to complete implementation and achieve the PDO. The lack of progress was due mainly to frequent changes in the design of the PSBs. The development of draft training modules for the foundation training of elected representatives was the only activity under Capacity Building and Communication, and there was no activity under Component 3, although the Project Management Unit was functional, with limited staffing. The investment composition of BPSP at the local level cannot be determined as the planning for the use of funds was carried out by the state based on its priorities. Since large investment happened for the construction of the building, the rate of interest could not be assessed before the complete functioning and utilization (in terms of better accessibility of basic services) of this infrastructure. Learning from the Project indicates that the investment could potentially yield an economic rate of return of 15 percent or higher. Gender-friendliness of GP office. Female respondents covered under the assessment were asked how safe and comfortable they feel while approaching the GP office for services. Responses show that in Project GPs, most women feel safe and comfortable in an independent GP office. The newly built GP offices with waiting areas, separate toilets, and breastfeeding rooms make it safer and more comfortable for female community members to visit or wait comfortably if required. The findings show that gender-friendly structures and spaces are essential to ensure the inclusion of women in local government functioning. Financial savings. Without the PSBs, villagers had to travel more than 9 km to Block and District Offices for basic services, losing wages (about US$3) and incurring transportation costs (about US$2) and other opportunity costs. Moreover, they often had to make many such trips to submit the application, follow up, and finally receive the services. With the GP office located nearer residents, it can be safely assumed that at the village level, the net saving is quite high. Project turnaround. After the Project was restructured, various activities under Component 1 were completed in just two years: land details were collected from 326 Project districts and shared with LAEO; budget was provided in the form of grants from the Department of Planning and Development for LAEO to construct PSBs; LAEO was provided technical support in preparing Detailed Project Reports (DPRs); model DPRs were prepared and approved by BGSYS; a construction plan for PSBs was prepared; the tender for PSBs was published; the construction of PSBs began; e-PMS was developed to monitor construction; and the Executive Committee of BGSYS approved the Environmental Management Framework and Social Management Framework. In addition, PSBs were equipped with adequate furniture, fixtures, and computers and other peripherals that they would need to function smoothly, publish basic information, hire a data entry operator, hire an accountant, and gather data from Gram Sabhas as per the PRI Act of 2006. Graph 1 depicts the Project’s progress as evidenced by disbursements and project ratings. Page 42 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Graph 1. Project ratings and disbursements Turn around: Ratings and Disbursements 80 2nd & 3rd Restruc. $US Millions 1st Restruc. 70 60 50 40 30 20 10 0 Apr-13 Apr-14 Apr-15 Apr-16 Apr-17 Apr-18 Apr-19 Apr-20 Aug-13 Aug-14 Aug-15 Aug-16 Aug-17 Aug-18 Aug-19 Dec-12 Dec-13 Dec-14 Dec-15 Dec-16 Dec-17 Dec-18 Dec-19 DO / IP rating Disbursement Under Component 2, for the first time, a detailed Capacity Building and Communication Plan was prepared, followed by the preparation of a training module on Basic Finance for GPs. Other Component 2 activities included training for elected representatives, an exposure visit of elected representatives to GPs with best practices, an orientation-cum-exposure program on functionality for GP Presidents, consultation meetings on the recommendations of the 5th State Finance Commission, and preparation of a module on Gram Kacheri and an awareness generation module on functional GPs. Also prepared and used were various radio jingles covering a range of topics related to GP functioning and a flipchart (available in audiovisual format) for educating people on the concept of functional GPs. Under Component 3, the GPMS was replicated and was rolled out in various GPs. Under Component 4, the Project Management Unit was made fully functional with the deployment of District Project Management Units. To ensure transparency in the system, the MIS application and portal for monitoring progress against the Results Framework were also developed. Several reasons explain the Project turnaround following the first restructuring. The main reasons were the commitment of a permanent Project Director with a tenure that lasted over four years, the persistent technical guidance and follow-up support from the World Bank team members, and deployment of a full-fledged BGSYS team at the state and district levels. The task team had agreed on a matrix/timeline to be strictly followed every quarter, with reports and missions, and the GoB adhered to it. Project achievements under each component: • Subcomponent 1a: Construction of 330 Panchayat Sarkar Bhawan. Within only two years, the number of Project PSBs constructed increased greatly. The online software e-PMS, developed in consultation with the Bank, can capture a huge amount of information on various aspects of construction activities from inception to final completion of PSBs. This helped the flow of information between LAEO and the Project Page 43 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) by providing the status of construction activities at different sites in the Project areas. The system has become a repository of all documents, including details of land approval by the Gram Sabhas; screening checklists for selection of land; standard bidding documents; and detailed project reports of the 330 PSBs. • Subcomponent 1b: Functional Panchayats. In 12 Project districts, 330 GPs were made functional by equipping them with adequate furniture, fixtures, computers and other peripherals to allow them to function smoothly, publish basic information, and hire a data entry operator and accountant. The government issued an official order to ensure the availability of the secretary, a revenue officer, and Gram Rojgar Sewak 21as part-time staff in the functional PSBs. Gram Sabhas were conducted in a timely manner according to the PRI Act of 2006. Standing Committees were also constituted and are performing their mandated duties. With all necessary infrastructure and human resources in place, there is remarkable improvement in GPs’ service delivery. The villagers (especially women) have started visiting PSBs and demanding such services as death and birth certificates, information about government schemes, and so on. • Component 2: PRIs Institutional Strengthening. A range of capacity-building and communication interventions has facilitated institutional strengthening at the GP level, improving the efficiency of the staff of these institutions. For example, the Project prepared a capacity-building plan and clearly laid out its implementation strategy for training GP officials and members. The Project organized several workshops and training programs on thematic areas—including acts and rules, basic finance, decentralized planning, and scheme literacy—for newly recruited block account facilitators and employees of BGSYS and for a training-of-trainers program for district and block project monitoring units. The Project also carried out training on Panchayat Enterprise Suite application, the GoB program on Seven Nishay [Resolve], PriaSoft, and the GP Development Program, and completed training for all district programmers and executive assistants of 38 districts. • Component 3: Strengthening the Capacity to Manage Decentralization. The financial management (FM) capacities of the GPs have been strengthened through the use of the GPMS, which had been successfully implemented in the Bank-supported Institutional Strengthening of Gram Panchayats Project in West Bengal. In addition, the Project is supporting the preparation of Rules and Regulations in line with the Bihar Panchayat Raj Act 2006. The GPMS has helped more than 2,800 Project GPs in 12 districts of the state in managing such registers as the cash book, scheme register, cash issue book, and bank passbook. • Component 4: Project Management and Coordination. Adequately staffed and functional State and District Project Management Units provided direct hand-holding support for engaging with the PRI members. The mentoring support provided by the state and district units has helped build the confidence of illiterate or semiliterate PRI members in implementing government schemes and programs for the rural population of Bihar. Assessment of Efficiency and Rating The Project’s overall efficiency is rated Substantial. As described above, all planned activities were successfully completed with cost savings (due to exchange rate gains). The two-year extension was provided at no cost to permit Project activities to be completed. 21The main duty of the Gram Rojgar Sewak is to help the technical person to strengthen the works under the Mahatma Gandhi Rural Employment Scheme. Page 44 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 5. BORROWER, COFINANCIER, AND OTHER PARTNER/STAKEHOLDER COMMENTS Page 45 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Page 46 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) 1. Project Appraisal Document, Report No. PAD 71925-IN, dated August 27, 2012 2. Program Grant Agreement 3. Project Restructuring Papers: (i) RES 17941; (ii) RES 36456; and (iii) RES 38714 4. Implementation Status and Results Reports 1 through 15 (Dec. 2012 through Sep. 2019) 5. Aide-mémoire (i) November 7, 2007 (identification) (ii) November 30, 2013 (iii) December 9-10, 2014 (iv) January 16-17, 2017 (vi) October 9-12, 2017 (v) March 13-15, 2018 (vi) September 18-20, 2018 (vii) June 10-11, 2019 (viii) July 15-25, 2019 (viii) November 25-28, 2019 6. Blogs on End Poverty in South Asia website, 2019 7. Annual Action Plan 2016-17 (Government of Bihar) 8. Report: Assessment of Services Delivered by Rural Local Bodies in Bihar, prepared by ICRA Analytics 9. Borrower’s Implementation Completion Report Page 47 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 7. Borrower Implementation Completion Report Borrower’s Implementation Completion Report Bihar Panchayat Strengthening Project Bihar Gram Swaraj Yojana Society (BGSYS) Dept. of Panchayati Raj, Govt. of Bihar3rd Floor Biscomaun Tower, West Gandhi Maidan, Patna –800001. Ph. No: 0612-2219175 Website: www.bgsys.gov.in Page 48 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Preface [Panchayat Raj represents true democracy realized. We would regard the humblest and the lowest Indian as being equally the ruler of India with the tallest in the land --- Mahatma Gandhi] Local governments in India play a fundamental role in the delivery of public services and fostering social inclusion, particularly in rural areas. The 73rd Constitutional Amendment, enacted in 1993, envisaged rural local governments playing a critical role in improving social and economic development, as well as in the delivery of public service through participatory governance. It created the Panchayat Raj Institutions (PRIs) comprising three tiers of rural governments (district, block and village), and vested power in the State Governments to endow the PRIs with such powers and authority as may be necessary to enable them to function effectively. Bihar is the 3rd most populous state in India. It is home to over 100 million people, 36 million of whom are poor. Administratively, Bihar state has been divided into 9 divisions and 38 districts having 101 sub- divisions and 534 blocks. There are 8,406 Gram Panchayats and 45,103 revenue villages in the state. The Bihar Panchayat Strengthening project funded by the World Bank aims to promote Government of Bihar’s vision of creating Panchayat infrastructure, strengthen Panchayat Raj Institutions (rural local governments) and mobilize communities and grassroots leaders to participate in governance, monitor service delivery and demand greater accountability. The Project Development Objective (PDO) of the project is “to support Bihar’s Capacity to promote and strengthen Inclusive, Responsive and Accountable Panchayat Raj Institutions in selected districts across the state”. The basic pillar of reform through the project is to recognize, build and strengthen the Gram Panchayats as institutions of trust and local governance at the village level. The Government acknowledged that local people empowered with the ability to identify and address their own development priorities, can make a rich contribution to development of Bihar. The creation of local infrastructure in the form of Panchayat Sarkar Bhawans (PSBs) (office of the Gram Panchayat) with adequate manpower, furniture, fixtures, computers and other peripherals has become a harbinger of a new and positive change. This is much more evidenced by women Mukhiyas (President) and Sarpanches (Village Head) playing a pivotal role in spearheading the development of their respective villages from managing resources efficiently to resolving local disputes through village courts. For instance, the newly constructed and well equipped PSBs to be used for Gram Katchahris (village courts) which would encourage even the weakest person to freely approach the “People’s Court,” and the inexpensive dispensing of justice at their doorsteps. Further, earthquake resistant local government offices can serve as a shelter home for the entire village during floods. Bihar Gram Swaraj Yojna Society (BGSYS) has worked relentlessly to translate the aspiration and achieve the objective as defined under Bihar Panchayat Strengthening Project (BPSP). Today BGSYS is in a position to proudly scale up successes on multiple parameters especially in encouraging the implementation of functional panchayats as beacon Panchayats Capacity Building and ICT initiatives. The project started in Oct. 2005 and was completed on 30th Dec. 2019. Project achieved the objectives and its outcomes include construction of 330 Panchayat Sarkar Bhawans across 12 project districts and making them fully functional by providing human resources, furniture, computers and other essentials to carry out important functions of the Panchayat. Right to Public services (RTPS) centers have been established. These interventions have made GP offices inclusive, responsive and accountable to residents resulting in significant reduction in their transaction time and financial saving. Page 49 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) BPSP has substantially built the technical skills of the PRIs through several training activities using various innovative training tools like P-Ludo, P-VYAPAR, P-Rap. BPSP implemented several ICT initiatives like Web based e-PMS (e-Project Management System), Results Framework Matrix MIS Portal, integrated financial management information system GPMS, Training Management Information System (TMIS), Contact Center as a grievance redress mechanism, WhatsApp groups and mobile applications to effectively implement the services to constituents. These initiatives helped in institutionalization of decentralization and local governance concepts. On the completion of the project, state has team of 14 State Level Trainer, 56 District Level Trainer and Over 150 Trainers of Block Level. BGSYS is considered as Pioneer institution on Panchayat and looked at as the knowledge center for Panchayat, Decentralized Planning, GPMS, e-Panchayat and many other topics. To increase the participation of people in local governance, project generated awareness among citizens and made information available to the people in abundance using traditional media, printed IEC material, electronic media and mobile buses. Provision of services at the doorsteps of community is increasing the utilization rate of basic services, increasing citizen’s satisfaction and restoring the faith of the public in local government. The lessons learnt during the life of the project are well articulated in the blogs that the Bank team did [in collaboration with BGSYS] during the last few years. In the World Bank blog published on End Poverty in South Asia “Delivering rural justice through community-owned courts in Bihar, India (April 2018), emphasized the importance of success of Gram Katchahris (local/village courts) by measuring court’ success by stability, the extent of its use by local communities, and ability to dispense justice with sensitivity to local social conditions. All these Project interventions are aimed at assisting the Gram Katchahris to emerge as key instruments of community-owned justice, thereby easing the burden on the state’s justice system. In the blog, How a silent revolution in rural Bihar is empowering women to be agents of change ; May 2018 published on Governance for Development describes how a physical construction of simple office buildings, equipped with essential facilities, puts a dream together for rural women which is inclusive and participatory while ensuring a safe working environment with opportunities for all. The World Bank- financed project ensures that these local offices are equipped with separate toilets for women; that local offices are not in a remote corner of the village and there are suitable facilities in terms of accessibility, safety, and connectivity for women; that offices have electricity connections and are well lit with a boundary wall; that there is a place for young mothers to breastfeed and a meeting room for women’s self-help groups. Equally important we would argue is the need for responsive, inclusive and accountable institutions. With an objective to understand the Project Development Objective (PDO) through the lens of services delivered by the GPs at the lower tier of the Panchayat Raj institutions, a service delivery survey was carried out by using Quasi Experimental study design. The survey, although indicative, endorses the strengthening of project Panchayats in terms of their responsive behavior towards local residents and project has facilitated inclusion of women and elderly in the government processes. The findings of the service delivery survey in the blog “India: Building trust in local governance institutions in Bihar’s villages (End Poverty in South Asia, World Bank, Jan 2019)” highlight that local governments with permanent functional office reduces the transaction cost of accessing a specific service by the local residents. Further, fully functional PSBs ensure governance climate at the local level and ensure the Panchayats are inclusive, responsive, and accountable institutions of service delivery. Investing in Page 50 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) institutions to restore their pride, confidence and prestige is important for establishing the legitimacy and trust in the State by its people. Over 60 percent of the female respondents felt less comfortable accessing the local governments with temporary office buildings which were either functioning out of the residence of the local government President or other public facilities. The perception of females regarding the permanent functional offices with waiting areas, separate toilets and breastfeeding rooms was highly positive in terms of security and comfort. In addition to this, survey data and testimonials from the president of the Gram Panchayat indicate that more citizen-centric governance is resulting in more inclusive development for rural communities in Bihar. (Blog- India: In rural Bihar, citizens begin to take pride in local government, Sept 2019, World Bank, South Asia) This ‘Borrower’s Implementation Completion Report’ discusses the planning process, activities conducted and achievements of the Bihar Panchayat Strengthening Project (BPSP). Page 51 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) BACKGROUND Since the 73rd Constitutional Amendments (CA) was passed in India in early 1992, Panchayati Raj Institutions (PRIs) or local self-government units are meant to have become key institutions of political representation and service delivery. Despite the creation of enabling legal and administrative architecture by the states, and the prominence of local governments (LGs) as constitutionally in India remains uneven and slow. This has impacted the service delivery standards in urban and rural areas. While there has been significant progress in important aspects such as the constitution of LGs, regular elections and representation of the more vulnerable sections of the society, other areas have seen little progress. This includes the devolution of fiscal powers, the consolidation of professional cadres for local government officials, the empowerment of elected local government representatives, citizen engagement and participatory planning. These constraints have impeded the evolution of LGs as empowered, autonomous, accountable and adequately resourced institutions. Political decentralization is one of the key requirements for effective implementation of different development programs. Bihar was one of the leading states to introduce Panchayati Raj Institutions (PRI) and the earliest PRI elections were held as early as in 1948. Unfortunately, the PRIs had become weaker later, and were finally revived after the 73rd Amendment of the Constitution in 1993. The last PRI elections were held in May 2016 in Bihar. Presently, there are 38 Zila Parishads (ZP) at the district level, 534 Panchayat Samitis (PS) at the block level, and 8386 Gram Panchayats (GP) at the village level. In all, there are 1161 ZP members, 11,497 PS members, and 1.15 lakh GP members. Overview of Panchayati Raj Institutions in Bihar Item No. Item No. Zila Parishad 38 Gram Panchayat Secretary 3701 Panchayat Samiti 534 Nyaya Mitra 6947 Gram Panchayat 8386 Gram Kachahari Secretary 7474 Gram Panchayat Members 114691 Zila Panchayati Raj Officers 38 Panchayat Samiti Members 11497 Block Panchayati Raj Officers 528 Zila Parishad Members 1161 Gram Kachahari Members 114691 Source: Department of Panchayati Raj, GOB The aim of the project was to create Gram Panchayats that are vibrant rural local bodies relentlessly engaged in delivering of citizen centric services and mobilizing support for collective action for development that contributes to in discriminatory individual well-being. The collective action, towards which the project was designed to contribute, was nothing but “rule of people” actualized under the aspiration of 73rd constitutional amendment. The Government of Bihar (GoB) is committed to strengthening Panchayati Raj Institutions (PRIs) in its vision of decentralization. As part of the process, the GoB and the World Bank designed and implemented the Bihar Panchayat Strengthening Project (BPSP). Details of Blocks and Panchayats covered by the Project: Sl. No DISTRICT BLOCKS GRAM PANCHAYATS 1 Rohtas 19 245 2 Bhojpur 14 228 3 Nalanda 20 249 4 Patna 24 322 5 Gaya 24 332 Page 52 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Sl. No DISTRICT BLOCKS GRAM PANCHAYATS 6 Aurangabad 11 204 7 Madhubani 21 399 8 Samastipur 20 381 9 Darbhanga 18 324 10 Saharsa 10 151 11 Madhepura 13 170 12 Supaul 11 181 TOTAL 12 204 3186 The Government’s interest in strengthening GPs is part of its overall strategy of state building. The Chief Minister launched the campaign of “Apki Sarkar Apke Dwar (Government at Your Doorstep)”, including providing offices (Panchayat sarkar bhawans) to GPs, which currently operate in a highly informal manner. As a first step towards the long-term institutional development vision, the project focuses on strengthening statutory institutions established by the Constitution and the Bihar PRI Act (2006), namely the Gram Sabhas and Gram Panchayat standing committees besides supporting the District Planning Committees and the State Finance Commission when constituted. The operational focus of the project was: • Providing basic office infrastructure • Democratizing decision-making processes within the Panchayat • Encouraging collective action among villagers; and • Strengthening the citizens’ capacity in monitoring Panchayat operations and holding it accountable. The intention was also to give GPs a sense of pride in their work. The focus of this project was to produce tangible gains to sustain political commitment at all levels to this long-term reform. To this end, the project focused on supporting Panchayat leadership to bring about visible changes in the villages. The project had an intensive learning agenda, to identify what works and what does not. The Government and the World Bank agreed to focus on 12 districts, covering about 3186Gram Panchayats out of a total of approx. 8410 Gram Panchayats in the state. Successful experimentation and learning in these twelve districts were then to be scaled up to other districts under other government programs. A successful multiyear project would produce a set of training modules and delivery mechanisms that would have led to success in improving the quality of local governance and local development. This would then help the state government scale up these efforts in more districts. The project had played an active role in advocating changes in the system to enable the Panchayats to grow into inclusive, responsive and accountable institutions. On the completion of multiyear project, the Panchayats now have more clearly defined responsibilities, more capacity to manage their responsibilities and are more accountable to their citizens for performance. PROJECT DEVELOPMENT OBJECTIVE (PDO) The Project Development Objective (PDO) was “to support Bihar’s capacity to promote and strengthen Responsive and Accountable Panchayat Raj Institutions in selected districts across the state”. PROJECT COMPONENTS The project was restructured in 2016 and its coverage was expanded into 12 out of the 38 districts, covering 40% of the population of Bihar. Since restructuring, the project gained momentum and progressed towards Page 53 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) achieving the PDO. The project was extended for a period of six months with a revised closing date of 30 December 2019, based on its good performance in the last two years and to provide more time to the project to complete its capacity-building, communication and citizen engagement initiatives, which were its core of the activities. The components of the project post restructuring were:  Component 1(a) Construction of 330 Panchayat Sarkar Bhawan (PSBs); (b) Making the existing 330 PSBs constructed by the Government of Bihar functional  Component 2: Capacity Building for PRIs  Component 3: Strengthening State Government capacity to manage decentralization  Component 4: Project Management & Coordination Project Components: Before Restructuring Initially project had five components given below;  Panchayat Sarkar Bhawan- This component involves construction and making functional Panchayat Sarkar Bhawans in approximately 300 Gr am Panchayats  Capacity Building for Panchayat Raj Institutions: - This component builds panchayats' core institutional competencies to empower the m to achieve substantive development outcomes  Strengthen the State Government capacity to manage a gradual decentralization and empowerment process  Panchayat Performance Grant  Project Management and Coordination Since commencement, BPSP project implementation experienced many challenges. In fact, project started after a 12 month delay due to administrative reasons (rotation of leadership, government approval of project related posts, administrative sanctions for the design of the Panchayat Sarkar Bhawans), human resource reasons (long delays in the staffing process) and taking onboard other agencies for project implementation (the appointment of capacity building organizations). This resulted in unsatisfactory progress towards achievement of PDO. Given the delays in implementation, later Government of Bihar requested restructuring of some project components. Project Components: Post Restructuring First Restructuring (June 2016): At the Government’s request, project was restructured as per following: • The Project scope was expanded to 12 districts for wider coverage. • The number of PDO-level indicators was reduced from seven to three, as given in the below table Revised PDO Indicators Original Revised PDO indicators (original) PDO indicators (revised) targets targets 1. Regular meetings of GPs focusing on Gram Sabhas meet regularly to Increasing 330 program planning and budgeting consider issues of importance to GPs 2. Socially disadvantaged groups participate at Women participate in regular Gram Increasing 330 Gram Sabha meetings Sabha meetings in GPs Page 54 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Original Revised PDO indicators (original) PDO indicators (revised) targets targets 3. Increased number of project GPs submit Project GPs disclose annual plans, annual financial statement within four Increasing budget, accounts, and progress reports 330 months after the end of each fiscal year 4. Increased trained elected representatives Increasing Deleted perform mandated role effectively 5. Increased % of GP project beneficiaries from Increasing Deleted socially disadvantaged groups 6. GP Standing Committees meet regularly to Increasing Deleted discharge their statutory functions 7. Increased % of people from all social groups perceives that GP is “inclusive and Increasing Deleted accountable” to address community issues Second restructuring (April 2019): Credit of US$15 million was cancelled which was accrued due to exchange rate gains. Third restructuring (June 2019): Closing date was extended to facilitate completion of outstanding activities, rollout of the Gram Panchayat Management System (GPMS) in another 330 Gram Panchayats, continuing communication and capacity-building activities, and for ensuring steps for the sustainability of Project initiatives. The final four components of the project have been given below; a. Component 1: This component was split into two sub-components –  Component 1 (a): Construction of 330 Panchayat Sarkar Bhawans as per the existing model & design of the state government. Local Area Engineering Organization (LAEO) under the Planning and Development Department was added as an implementing agency based on their experience in constructing Panchayat Sarkar Bhawans with government funding across the state.  Component 1 (b): Making the existing 330 PSBs constructed by the Government of Bihar functional. This subcomponent was added to strengthen functionality of Gram Panchayats with recently built Panchayat Bhawans. The mere provision of a new buildings (Panchayat Sarkar Bhawans) was unlikely to improve the functioning of Gram Panchayats in view of the many challenges these institutions face in their functioning. This subcomponent was added to provide incentives for the Government to equip properly the newly constructed Bhawans and staffed them with key personnel. Sub-component 1b adopted a results-based modality and disburse against achievement of Disbursement-Linked Indicator (Number of Functional GPs with newly constructed Panchayat Sarkar Bhawans). The verification protocol was agreed with the government which included an external verification of results. b. Component 2: Capacity building for Panchayati Raj Institutions (PRIs) - Core Institutional Capacity Building aimed to equip the elected representatives under Panchayati Raj Institutions to meet up to the expectations of the people in terms of the required role defined for them under “Bihar Panchayati Raj Act, 2006” and amendments, thereof. Civic Engagement aimed to providing a platform for the citizens that will help understand the citizens the role & responsibilities that they are expected to play in the eco- system of the Gram Panchayat in a face-to-face contact program for the citizens, with multiple activities. Communication & Mass Media had the aspiration of producing motivational awareness generation materials that prompts them to act with utmost seriousness and unparalleled zeal to make their panchayats par excellence, at every possible front that leads to upgrading the quality of life for the citizens. Building Gram Panchayat Financial Management Capacity was for the purpose of assisting the Gram Panchayats Page 55 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) to become accountable with every financial transaction captured in real terms and real time. c. Component 3: Strengthen the State Government capacity to manage decentralization - Strengthen the Capacity to Manage Decentralization, which was to ensure that the Gram Panchayats take up the onus of their responsibilities and deliver in accordance with spirit as enshrined under the 73rd Constitutional Amendment, 1993 and subsequently detailed out in Bihar Panchayati Raj Act, 2006. The component provided infrastructural system setting for mandatorily recording the transactions of the businesses of the Gram Panchayats in electronic and manual formats. d. Component 4: Project Management & Coordination- Project Management & Coordination was to support the project in administrative terms including human resource management and monitoring & evaluation of the project in terms of its performances. FINANCING PLAN: ALLOCATION OF PROJECT FUNDS BY COMPONENT Total Project Cost and component wise allocation as per BPSP SL. No. Project Components Allocation Post Restructuring in Millions of US$ 1 Component: 50.00 1(a): Construction of Panchayat Sarkar Bhawan’s 15.00 1(b): Functional Panchayats-DLI Based 2 Component 2: 32.50 2.1: PRI Institutional Strengthening 2.1 (a) Core Institutional Capacity 2.1 (b) Community Engagement 2.1 (c) Communication & Mass Media 2.1 (d) Building GP FM Capacity 2.2 PRI Capacity Development (Sanitation and Drinking Water) 3 Component 3: Strengthening the State Capacity to Manage Gradual 7.50 Decentralization 4 Component 3: Project Management 15.00 Total Project Funding 120.00 PROJECT IMPLEMENTATION PERIOD The Loan and Project Agreements for BPSP were executed on 14th September 2005. The project commenced in October 2005 and was scheduled to be closed in March 2011. However, the project was restructured during 2009 by internal reallocation of funds among the sub-components under Urban Investment Component and extended up to 30thJune 2019. Further, considering the completion of sub- projects under implementation and to achieve the PDO, the project got extension up to 30th December 2019. PROJECT BENEFICIARIES • Rural residents in the target PRIs of the twelve districts, who were more effective in monitoring fulfilment of government obligations and could enjoy better and inclusive government services and undertook effective collective actions to solve local problems; • Elected officials and functionaries of Panchayat Raj Institutions (PRIs), who became more capable of taking initiatives to solve the problems of their constituents, resolved local conflicts fairly, and were able to mobilize resources and support for the initiatives. Page 56 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) PDO INDICATORS AND ACHIEVEMENTS The achievement of PDO Indicators is given in table below Indicator name Target Achievement Gram Sabhas in GP meet regularly to consider issues of 330 330 importance to GPs Women participate at regular Gram Sabha meetings in GPs 330 330 Project GPs disclose annual plans, budgets, statements of 330 330 accounts, and progress reports PROJECT ACHIEVEMENTS Component 1: Panchayat Sarkar Bhawan The project concept aimed at taking government to the doorstep of the citizens without discrimination. The government had an ambitious plan to construct PSB in each of the 8386 GPs spread across 534 Blocks of 38 districts of Bihar. The expectations from the investment in Panchayat Sarkar Bhawan were based on the premise of indiscriminate access to citizen centric services and citizen participation. Component 1 (a): Construction of Panchayat Sarkar Bhawan In this component, project financed a total of 330 Panchayat Sarkar Bhawans at an estimated model cost of approx. RS. 1,44,00,000/- (Rupee one crore forty-four Lakh) (USD 2,006,13) per Bhawan across 12 project districts. To construct 330 PSBs from the project fund, the state entrusted the Local Area Engineering Organization (LAEO) under the Planning and Development Department, Govt. of Bihar, which was already constructing PSBs in the standard design of the state Government. The budget allocation for component 1 (a) was US$ 50.00 Million, which equals to around 350.00 Cr. The expected expenditure under this component is INR 475 Cr. In this component, tender for 330 PSBs is completed and work started for 304 PSBs. construction of 271 PSBs has been completed till December 2019. BGSYS appointed LAEO for all the areas related with construction and execution of Panchayat Sarkar Bhawan. They performed all functions like land verification, design, DPR, construction and handling of PSB to Mukhiya. First requirement of Construction of PSB was identification of land. Land was made available by District Magistrate to LAEO. For the identification of land, resolution must be passed in Gram Sabha. According to the guidelines of world Bank, it was necessary to ensure that the selected site must be socially justified and environmentally fit i.e. there should not be any rehabilitation issue and trees must not be cut for the construction of PSB. Soil test was also done by LAEO. After that it prepared site specific DPR-Detail Project Report for every Panchayat Sarkar Bhawan. The design was approved by LAEO. To ensure the quality standards of the works, BGSYS engaged an independent agency, NABARD Consultancy Services (Nabcons) which is a wholly owned subsidiary promoted by National Bank for Agriculture and Rural Development (NABARD) and is engaged in providing consultancy in all spheres of agriculture, rural development and allied areas. Agency carried out third-party quality audit of the construction of PSBs in 12 districts of Bihar during five stages of construction: foundation stage, plinth stage, roof level (1st floor), roof level (2nd floor), and finishing stage. Nabcons shared their audit observations on monthly basis with BGSYS and LAEO so that corrective measures could be taken. Thereafter, Nabcons made follow-up visits to those sites to ensure the effective Page 57 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) implementation of shared observations. After the completion of PSB construction and audit clearance of Nabcons, building was handed over to respective Mukhiyas of Gram Panchayat. Post closure of BPSP, the state government will take care of the maintenance of these buildings with their own resources. The newly constructed and well equipped PSBs to be used for Gram Katchahris (village courts) which would encourage even the weakest person to freely approach the “People’s Court,” and the inexpensive dispensing of justice at their doorsteps. (Refer to Box 1) Box 1: Gram Katchahris (Village Courts) Experimental Gram Katchahris were set up by a provincial government in Bihar before India’s independence to settle disputes between the villagers. At the time of India’s Independence in 1947, the Gram Katchahri were recognized by statute and more recent statutes solidified their status. The common feature underlining all the legislation is to echo villagers’ demands: Gaonka samasya gao me netaiye (let’s village’s problems be settled in the village itself). The Panchayat Raj Act of 2006 introduces innovative, unique features to the Gram Katchahri. The modern Gram Katchahri is a rural dispute resolution forum headed by a Sarpanch (head of the village) and comprised of four Panches (members), all elected by the villagers of a Panchayat. One of the biggest challenges so far has been to provide Gram Katchahris with an official address due to the lack of their own buildings. In some instances, the Gram Katchahris conduct their proceedings in the house of a powerful Panchayat member. The World Bank, through its Bihar Panchayat Strengthening Project, supported the construction of independent office buildings for Gram Panchayats, with exclusive blocks to be used for Gram Katchahris. This would encourage even the weakest person to freely approach the “People’s Court,” and the inexpensive dispensing of justice at their doorsteps. But there’s more to the Project than just the construction of buildings. It supported a strong partnership with the Chanakya National Law University to train all members of the Gram Katchahris (Sarpanches, law graduates, and volunteers) to empower them on their current functions, and train them on alternative dispute resolution techniques and tools. All these Project interventions were aimed at assisting the Gram Katchahris to emerge as key instruments of community-owned justice, thereby easing the burden on the state’s justice system. Source: World Bank blog published on End Poverty in South Asia “Delivering rural justice through community-owned courts in Bihar, India (April 2018), Jorge Luis Alva-Luperdi and Farah Zahir (https://blogs.worldbank.org/endpovertyinsouthasia/delivering-rural-justice-through-community-owned-courts-bihar-india) Component 1 (b): Functional Gram Panchayats The next prime objective of the project was to make sure that an equal number of gram Panchayats i.e. 330 Gram Panchayats spread over 12 project districts, with newly constructed PSBs to become operational in letter and spirit of the Bihar Panchayati Raj Act, 2006. These buildings were provided with human resources, furniture, computers and peripherals and online uninterruptible power supply (UPS) to carry out important functions of the Panchayat. RTPS units, staffed with executive assistants, data entry operators, and accountants have been established in all 271 PSBs that became functional during 2018-2019. The project achieved the functionality of 330 GP which was verified by third party Verification Agency and approved and disbursed by the World Bank. The 330 fully functional PSBs are now serving the purpose of beacon panchayats. The project continued the handholding of these Panchayat throughout the project period. Sub-activities to accomplish the objectives: • Third party verification of functional Panchayats • Continuous handholding of the functional PSB • Timely Gram Sabha meetings with quorum • Making new functional GP where building has been constructed through state fund/ BPSP. • Training of PRIs and Functionaries. Page 58 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) • Exposure visits • Supply of human resource in form of Data Entry Operator and Accountants. • Procurement of Goods as and when required for new set of functional GPs. Earlier, GP offices did not have dedicated office space and were operating from any community building or the residence of the GP President. This was the major hinderance in the accessibility and inclusiveness of GP offices as these offices were out-of-bound for few sections of the community including women. Under BPSP, PSBs were constructed in project GPs at the land chosen by the Gram Sabha. These PSBs then were equipped with furniture and fixtures, electricity connection, water supply, separate toilets, and breastfeeding rooms and other necessary facilities for service providers and recipients. This made GP offices very safe, comfortable and gender-friendly for women and well accessible to all sections of communities. Functional dedicated GP offices ensured the inclusion of women and vulnerable social groups in the local government functioning. (Refer to Box 2) Box 2: Empowering Local Women Empowering women in a society is essentially a process of uplifting the economic, social and political status of women and the underprivileged. With the implementation of gender quotas since India’s 73 and 74 Constitutional Amendment Acts, the percentage of women in political activities at the local level has risen from 4-5% to about 35-40%. Reserving one-third of seats for women in the elected bodies of rural local governments in India has unleashed a silent revolution. Empowering processes can fall short of promises if institutional spaces such as fully functional local government offices with adequate resources and other basics are not provided by the government at the local level. These offices are essential enablers which help build the trust of the local citizenry in the government machinery. In these spaces, women as elected representatives acquire skills, confidence, and capacities to effectively perform their functions and duties. They learn to articulate their demands, voice their concerns and mobilize resources and assistance in a secure and safe environment. The World Bank-financed project ensured that these local offices are equipped with separate toilets for women; that local offices are not in a remote corner of the village and there are suitable facilities in terms of accessibility, safety, and connectivity for women; that offices have electricity connections and are well lit with a boundary wall; that there is a place for young mothers to breastfeed and a meeting room for women’s self-help groups. The whole experience of creating these local offices stands in sharp contrast to the past when the elected representatives (all men) functioned either from their homes or from limited spaces provided in schools or community centers. The physical construction of simple office buildings, equipped with essential facilities, puts a dream together for rural women which is inclusive and participatory while ensuring a safe working environment with opportunities for all. Importantly, the creation of a space for all stakeholders to interact with the state machinery is helping build a long-absent culture of trust between the people of rural Bihar and their government Source: How a silent revolution in rural Bihar is empowering women to be agents of change, May 2018), Farah Zahir(https://blogs.worldbank.org/governance/how-silent-revolution-rural-bihar-empowering-women-be-agents-change); India: In rural Bihar, citizens begin to take pride in local government (https://blogs.worldbank.org/endpovertyinsouthasia/making-institutions-work-poor-improving-service-delivery-through- local-governance) Project made functionaries, forms and RTPS facilities available at GP offices, thus significantly reducing the visits of community members to blocks for availing the services. Ideally, each GP should have a dedicated secretary which has administrative power for acceptance and processing of applications through which residents avail services. However, given the acute shortage of manpower, each GP secretary is assigned to more than one GP with fixed days for visit. Due to lack of good working office, secretaries used to skip these scheduled visits, or many times due to their busy schedule, visit GPs on dates and time not known to residents. As a result, local residents tend to waste time and efforts on frequently visiting the office for submission of application and face lot many difficulties in availing the services. Further, to submit Page 59 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) their applications electronically, residents were to visit Block headquarters which involve cost. Many times, due to lack of necessary documents, they were to make multiple visits. This was eroding their trust in local government. Under BPSP, after the construction of PSBs, vacant posts of secretaries were filled and RTPS facilities were established in GPs. Now GPs have become responsive and accountable by catering the needs of residents, reducing their follow-up visits for availing services, taking lesser time to deliver the mandated services to community members and significantly reducing their transaction time. Provision of services at the doorsteps of community has increased the utilization rate of basic services and resulted in financial savings for villagers (Refer to Box 3). These interventions have increased citizen’s satisfaction and restored the faith of the public in local government. Now the project GPs have become model across Bihar. Box 3: Panchayat Sarkar Bhawans Gram Panchayat buildings in Bihar were crumbling edifices that didn’t inspire any confidence in the people. In many districts, Gram Panchayat meetings were often held in old school buildings or in a make-shift temporary location. Sagging electric wires, chipped walls, and fragile rooftop presented a picture of neglect, and prevented the people from trusting these as government institutions. With the fully functional Panchayat Sarkar Bhawan (PSBs) built under World Bank funded BPSP project, now local government has a new ‘face’ where local villagers readily come to get birth and death certificates, apply for pensions, or complete any other paperwork that involves an interaction with the government. The findings of the survey conducted under BPSP indicated that where local government institutions have a permanent functioning office, the cost of accessing services from Gram Panchayats is reduced for local residents. One wonders how meaningful investments in institutions help establish their legitimacy, restore their prestige and build people’s trust, confidence and pride in them. Source: India: Building trust in local governance institutions in Bihar’s villages (https://blogs.worldbank.org/endpovertyinsouthasia/india-building-trust-local-governance-institutions-bihar-s-villages) The World Bank supported the design and implementation of four assessment of services delivered by rural local bodies in Bihar. The main objective of this assessment was to understand the Project Development Objective (PDO) through lens of services delivered by the Local Government at the village levels. This assessment covered approximate 6479 people (4065 males and 2414 females) in 443 GPs (335 Project GPs and 108 non-Project GPs). Key findings of the survey are in Box 4. Page 60 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Box 4: Survey Findings Project with the support of Bank conducted a service delivery survey. The main objective of this assessment was to understand the Project Development Objective (PDO) through lens of services delivered by the Local Government at the village levels. Methodology: In this assessment, delivery of services by Gram Panchayats refers to those services which come under the mandate of Gram Panchayats. The various services provided by the GPs were classified as direct, facilitation and beneficiary selection. A subset of these services1 were covered under the study. The assessment was carried out in Gram Panchayats (GPs) of 12 districts under the Bihar Panchayat Strengthening Project (BPSP). The assessment compared a set of 335 project GPs (GPs covered under the project) with a set of 108 non-project GPs (GPs not covered under the project). The key difference between the project GPs and non-project GPs was the availability of a well-constructed operational Gram Panchayat Office. Criteria for selection of these GPs were ‘GPs headed by women’, ‘headed by Scheduled Caste / Scheduled Tribe Members’, ‘GPs located closer (5 to 10 Kms) to Block Headquarters’ and ‘GPs located far (more than 10 Kms) to Block Headquarters’. The non-project GPs covered under the study are GPs with similar socio-economic and demographic characteristics adjacent to project GPs. Findings: The assessment covered a total of 6479 service recipients (4065 males and 2414 females) comprising of 4975 service recipients (3154 male and 1821 females) from the project GPs and 1504 service recipients (911 male and 593 female) from the non-project GPs. Inclusiveness: Assesses to what extent the GP office was inclusive and accessible to the local residents? The study found that the project GPs with operational GP Offices are more inclusive in comparison to the non-project GPs where GP offices do not exist. The location of GP office is a major determinant for ensuring access and inclusion of all sections of the community. GP Office functioning in any building other than a dedicated GP office limits inclusion of all stakeholders. For e.g. women community members may not be willing to visit a GP office which functions out of the residence of the GP President. The findings show that gender friendly structures and spaces are very essential to ensure inclusion of women in local government functioning. The GP offices in non-project GPs which mostly function out of the residence of the GP President or other public facility buildings found to be far less accessible, particularly the women. Responsiveness: Assesses how approachable and receptive was the local office in helping the local residents? The GP offices in project-GPs are found to be more forthcoming and responsive to the local residents in accessing various services. The project GPs with proper office infrastructure shows better responsiveness. While most of the applicants for various services from project GPs were able to submit their application during the first visit or second visits. Accountability: Assesses how responsible has been the local office in timely delivery of services? Timely delivery of services displays the accountability of the GP office towards the needs of the public. While majority of the applicants from project GPs received the required services within 10 days of submitting their application, most of the applicants from non- project GPs received the required services between 10 to 30 days of submitting an application. Component 2 - Core Institutional Capacity Building Project had very clear objective to build capacity of PRIs Member to promote inclusive, responsible, accountable and transparent Gram Panchayat of 12 Project Districts. Capacity Building Plan was prepared with clearly laid out implementation strategy for training GP officials and members. BPSP followed the following 5 Dialogues / principles of Capacity Building; • Result Based, Not target based • Participatory, Not Expert Driven • Learning by Doing, Not Doing after Learning • Core Institutional and Person Centric, Not Spin Off • Tailor Made, Not Ready Made BGSYS Capacity Building Cell had a unique strategy for capacity building of the elected Panchayati Raj representatives. Capacity Building Intervention for PRIs focused on imparting adequate knowledge, awareness, attitude, skills and self-confidence of elected representatives, PRI functionaries, Gram Sabha, Ward Sabha and standing committee members, the support institutions and other stakeholders. One of the major contributions of BPSP has been to substantially build the technical skills of the PRIs. Following are the various orientation and training activities conducted under the project Page 61 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627)  A team of State Level Trainers (SLTs) were trained for providing induction training to newly elected PRI members. BGSYS conducted this training in June and July 2016 and trained 248 SLTs at BIPARD. These SLTs later trained 2243 District Level Trainers (DLTs), who then rolled out the training to approximately 2.59 Lakh PRI members in the project districts.  To enable GP Mukhiyas/Presidents in handling smartphone and computer for getting related information from different sites, training on Basic Computers & Smart Phones was conducted during April to June 2017. These training were conducted in NIELET and in total 3048 participants (Mukhiya & Sachiv) from 12 project districts got benefitted.  During August – November 2017, two-days Orientation-cum-Exposure visit Programme called ‘Panchayat Ke Badhte Kadam’ was conducted for selected Mukhiya from 330 functional Panchayats of 12 Project Districts. On the first day, participants were provided information on functionality of GPs (as envisioned under the Project). On the second day, an Exposure visit to the Dharnai Panchayat in Block Makhdumpur of district Jehanabad was organized. In total, 78 participants got trained under this programme. To reinforce the functionality concept and boost the knowledge on Acts & Rules and their up-to-date amendments, Bihar Gram Swaraj Yojana Society organized refresher trainings at respective. Various orientation and training activities conducted under the project have been tabulated below; S. No. Training program Objective Participants 1. Workshop on Election • To explain the process of operating ballot box • 1248 Presiding Officers & their Process & casting of votes with ballot paper Assistants 2. Preparing a cadre of • To train State Level Trainers (SLTs) by • 248 State level Trainers (SLTs) State Level Trainers BGSYS trainers were trained in five days (SLTs) and District • To train District level Trainers (DLTs) for • 2243 District level Trainers level Trainers (DLTs) providing induction training to newly elected (DLTs) were trained PRI members • DLTs then rolled out the training to approximately 2.59 Lakh PRI members in the project districts 3. Training on Basic • To equip participants in handling smartphone • 3048 participants (Mukhiya & Computers & Smart and computer for getting related information Sachiv) from 12 project districts Phones from different sites 4. Panchayat Ke Badhte • To inform participants about the components • Two-days Training-cum-Exposure Kadam of functionality (as envisioned under the Visit Programme for 78 selected Project) Mukhiya from 330 functional • To take participants on exposure visit to get Panchayats of 12 Project Districts first-hand experience of functional panchayat 5. Training of Trainers • To train participants on Gram Panchayat • 36 participants from 12 project (TOT) Programme on Management System (GPMS) districts Gram Panchayat • BPM (1), PIU Engineer (1) and Management System DPFC (1) from each project (GPMS) districts (12) also participated 6. Orientation Programme • To make newly joined BGSYS employees • 277 employees Block Project of newly recruited aware of the objective, expectations and Manager & Block Facilitator Block Project Manager challenges of the society 7. Induction Training of • To orient and induce the newly recruited • 279 participants from 12 project newly Recruited employees of BGSYS about their roles and districts BGSYS Employees of responsibilities DPMU Level Page 62 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) S. No. Training program Objective Participants 8. Training on Standing • To make them aware, about their roles and • 1585 chairpersons of all standing Committee at BPMU responsibilities of being a chairperson of the committee from 12 project level Training standing committee districts 9. TOT Programme on • To prepare a cadre of Master Trainers who • In Phase 1 – 34 participants from Decentralized Planning can pass on the whole learnings and inputs to Project Districts of North Bihar (GPDP) at State Level other BPMs & BFs at District Level Region i.e. Saharsa, Supaul, Madhepura, Madhubani, Darbhanga and Samastipur participated • In Phase 2 – 28 participants from Project Districts of South Bihar Region i.e. Patna, Gaya, Nalanda, Aurangabad, Bhojpur and Rohtas participated 10. Training on Basic • To make PRI Members and functionaries • In total, 3083 Gram Panchayats Accounts & GPMS aware of the importance and need of good participated account keeping During the project duration, BGSYS organized more than 40 training events on various subjects to build the capacity of PRI members and employees. In these training sessions, approximately 20,000 participants (with more than 50% women) got trained. Development and use of innovative training tools For the effective capacity building of Elected Representatives and understanding and keeping view of their educational level and time for different segments the capacity building cell developed various innovative training tools which have been described below: • P-Ludo P-Ludo is based on Snakes and Ladder game. It’s a very popular game. Snakes and Ladders originated in India as part of a family of dice board games that included Gyan chauper and pachisi (present-day Ludo and Parcheesi). P-Ludo is a tool for imparting training to the Elected Representatives of Gram Panchayat its functionaries to tell about the main provisions for Gram Panchayat in the Bihar Panchayat Raj Acts 2006, subsequent amendments and Rules. • P-VYAPAR: P-Vyapar is based on the famous game of the Subcontinent called Vyapar or Business. This is a board Dice game. P-Vyapar is a tool for imparting training to the Elected Representatives of Gram Panchayat Development Plan (GPDP) or Decentralized Planning. • P-Rap: This is based on a very popular folk song of Bihar (Thik Hai). This song is very popular among the Mukhiya and other Panchayat Representatives of Bihar. This song helps in understanding the functionality of Panchayats. • Exposure trips: It is also one of the powerful tools for empowering panchayat Representatives and functionaries as it experiences of many in-states and inter-state direct interactions/ discussion with panchayat representatives and people living in those panchayats that have done exemplary work. The aim of the exposure visit was to provide opportunity for the PRI representatives and functionaries so that they can gain knowledge and experience by seeing the real-life examples of significant and visible transformation in some selected beacon panchayats and thereafter they can replicate it in their own gram panchayats. Various exposure visits / study tours were organised at within state and outside state level to learn the best practices on Panchayati Raj. The participants of exposure visit were mainly Elected representatives (Mukhiya) of Gram Panchayats. The main exposure visits were: (a) within state: Dharnai village-Zahanabad District; (b) outside state: NIRD Hyderabad, SIRD West Bengal. Page 63 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) The gram panchayats on the list of functional GPs were provided with computers peripherals, online UPS, which are important for any office to be operational in true sense. Further, Right to Public services (RTPS) centers, manned with executive assistants from the BPSM panel, Data Entry Operator and accountant (outsourced) have been established in all PSBs that went functional. Under this sub-component the mukhiyas of 345 Gram Panchayats in 12 project districts, where there exists a newly constructed PSB, were oriented on aspects of Functional Gram Panchayat as envisioned under the project, in state and district level events. Functionality achieved for all 330 GPs and was verified by third party agency. Civic Engagement component dealt with consistent hand holding support to the community so that the citizens could continuously participate in the decision-making process through the rural local bodies. It implied constant nurturing of the community in terms of developing understanding of the nuances of local self-governance. The following activities carried out to accomplish the objectives: • Entered in collaboration with organization that has pan project area reach and working in the field of rural development. • Trained the volunteers of the organization for using the awareness generation materials developed under the project for engaging the rural masses into meaningful and constructive dialogue. • Organize orientation session for ward Sabha for every ward under the project panchayat frequently. • Records the comments and provide solutions to the queries of the audiences in the same or next ward Sabha. • Act as a bridge between the project and the rural masses being catered under the project. Communication and Mass Media component aimed to reach the level of awareness among the citizens on the purpose and functions of Panchayati Raj systems. Towards this, society produced necessary materials connected to the rudimentary to sophisticated information requirement of the people for every possible platform (Audio, Audio-visual, Print, Social Media) and subsequently, achieve establishing inclusive and engaging system to make information available to the people in abundance, with the objective to engage the citizenry in meaningful dialogues and actions solicited thereof. The following activities carried out to accomplish the objectives. • Pilot mobile van awareness campaign in Nalanda • Broadcast of short films through popular regional TV Channels. • Advocacy with Media Representatives. • Advocacy through social media. BPSP under the World Bank project used Traditional, Print, Electronic and Social media for creating awareness among communities. Details are as given below; Use of Traditional Media Bihar is a state with dominance of rural population. So, to reach out to the people in the most understandable and effective manner, BPSP developed street plays to inform people about Gram Panchayat functioning. These plays spread message while telling a story having cultural context. Plays had songs, dances and performances to keep the interest of people. Performers for such plays were in local attires and spoke state language with geographic specific dialect to connect with the audience immediately. Also, performers made spontaneous changes in their performances based on audience response. Given the simple content, familiar Page 64 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) cultural components and right mix of music, dance, in the plays, performers got rapt attention of the audience and message got delivered effectively. Use of Printed IEC material BGSYS, under the World Bank project, designed and printed posters, leaflets and flipchart to communicate the message to communities. Posters had graphic and textual elements to make it eye-catching and informative. These posters focused on various elements of Gram Panchayat functionality. Professional agency was hired to develop the IEC materials. Agency with the assistance of BPSP Project staff identified narrative & slogans and finalized images for the visual attractiveness of these posters, leaflets and flipchart. All the IEC materials reflected the cultural characteristics of the rural Bihar. The overall objective of designing these IEC materials was to have an impact on the public at their emotional, social and intellectual levels, thus calling them to action. In total, BGSYS developed 25 posters, 25 leaflets and 1 Flipchart under the project for information dissemination. Flipchart was available in audio-visual format for educating people on the concept of functional GPs. IEC materials were put up in the public space in respective Gram Panchayats for the mass consumption. Use of Electronic media Given the dramatic impact of audio visuals on the public, BGSYS developed 60 Audio Jingles, 52 Episodes of a fictional radio serial and produced 2 short films which included 1 Fiction & 1 Docu-Drama. Jingles covered a range of topics related to GP functioning. Use of Social media BGSYS team did advocacy through social media. In total, 60 AV snippets were developed for dissemination on Whatsapp and other social media platforms. Short films were broadcasted on popular regional TV Channels. Project team also did advocacy with media representatives to spread the messages in communities. Use of mobile buses BGSYS started mobile buses for awareness campaign in Nalanda from 1st August 2019. Each bus was equipped with audio-visual systems and had trained cultural troupe for creating awareness in rural areas on the functionality of Gram Panchayats. In Nalanda, 12 branded buses plied across the length & breadth of the district to make rural citizens aware of the working of Panchayat Sarkar Bhawans. Radio jingles were kept on playing all throughout the sojourn of these buses in GPs. Each cultural troupe enacted plays at three different location in GPs. Immediately after the plays, on generating the public’s interest, a moderator showcased the film(s). Thereafter quizzes were held to involve people more meaningfully. Besides these, Question & Answer sessions were held, leaflets distributed during the event, posters were displayed on the walls of PSBs / Office of GPs and wall writings was done for lasting impact. The successful pilot of mobile buses was then scaled up to other GPs. It covered in total 249 GPs and organized 750 events. The initiatives taken in this area had paved the way for the development of innovative communication Page 65 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) materials and implementation plans for other districts in the State. Building Gram Panchayat Financial Management Capacity component was about strengthening GP’s capacities to manage funds. The gram panchayats are receiving huge volume of funds through different means (14th Finance, 5TH SFC etc.), hence there needs to be proper monitoring of funds at the GP level and its utilization. In this regard the project launched Gram Panchayat Management System (GPMS) for recording of financial transactions and monitoring of utilizations. The following activities carried out to accomplish the objectives: Sl. No Activity Responsibility For whom 1 Training on basic accounts and GPMS Master Trainers PRI Members and Functionaries and officials. Component 3 - Strengthening State Government Capacity to build gradual decentralization Bihar Panchayat Raj Act is amendment from time-to-time and many rules needs to be formed. Under this component, continuous support was provided to Dept. of PRD in forms of providing services of consultants to support various activities such as framing of Rules under PRI Act, 2006. The financial transaction of public money must get captured substantially. The society continuously assisted the Department in framing of “Bihar Accounts, Budget Audit & Taxation Rules”. The endeavor to strengthen rural local self-governance in Bihar, Gram Panchayat Management System (GPMS), an electronic system used in West Bengal to ensure value for public money spent through thousands of units of rural local bodies was rolled out in the entire state in a phase wise manner. The salient feature of GPMS i.e. the online financial management systems (GPMS) are as follows: • To capture real time financial transaction • The provision to measure both the physical and financial progress in the formats required • Asset mapping with GIS (Geographic Information System) based on Geo-Stationary positioning satellite technology for capturing location, date & time in terms of geography (Longitude/Latitude) and physical progress of activities, real time capturing of data on official meetings of the Standing committees, Gram Panchayats Gram Sabha and ward Sabha meetings with photographs, video and other documentary evidences as the situation may demand. Further, the orientation and training on e-Panchayat had been undertaken under this component as a direct support to the state government. The following activities carried out to accomplish the objectives: • GPMS rolled out in all 3186 GP under the Project in Phase wise manner. • Training of PRIs and all Functionaries • Development of financial Rules • Support of DoPR Component 4 Project management and coordination To ensure effective project management and coordination at different levels, human resources were hired to ensure implementation of administrative processes envisaged under the project. All positions of the project at SPMU & all DPMUs were filled and BPMU were made operational. Page 66 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) • Human Resource Management: The objectives of HR Action plan had been achieved substantially in rationalizing support structure with innovated HR interventions and strengthening policies, systems and process in the light of learning over the years. Several unfinished initiatives were completed during 2019-20. Project filled all the required positions and hired young professionals during the financial year. • Administration: The SPMU office of the society was fully functional in BISCOUMAN Bhawan at Patna. Similarly, all 12 DPMU and around 150 BPMU were operational before the completion of the project. The staff of DPMU and BPMU had been posted in all 12 project districts. BPMUs had been made fully functional. • Monitoring and Evaluation: DLI verification had done for verification of functional panchayats. Also, as per requirement of the project, a MIS software (Result framework matrix) had been developed for receiving data from the Gram Panchayats to monitor their work. The service of NABCOM had been hired for 3rd party for monitoring the quality of construction of panchayat Sarkar Bhawnas. In order to manage construction, work wisely e-PMS monitoring tool was implemented and followed. Monitoring & Evaluation through IT Initiatives: Ministry of Panchayati Raj, Government of India has always been a path paver and guiding force towards making the panchayat more effective, e-enabled, responsible, efficient and transparent. It has and always done through research & development taking in consideration the need of the time has developed and introduced several IT interventions for the better functioning of Panchayats. The society updated, operationalized and maintained the existing IT interventions. Under the Project, several ICT initiatives were implemented like Web based e-PMS (e-Project Management System), Results Framework Matrix MIS Portal, integrated financial management information system GPMS, Training Management Information System (TMIS), Contact Center as a grievance redress mechanism, WhatsApp groups and mobile applications to effectively implement the services to constituents. These initiatives helped in institutionalization of decentralization and local governance concepts and taken the digitalization to grass root level, thus promoting GOI’s agenda of digital governance. Further, these activities instilled confidence in Mukhiyas and elected representatives, made them capable of handling their roles & responsibilities and overall transformed their personalities. They are now the opinion leaders. • GPMS (Gram Panchayat Management System): http://gpms.bgsys.in/-Offline Accounting Software, Based On Cash Basis, Double Entry System, For Maintaining Daily Accounts and Generating All the Statutory Books of Accounts and Some Other Need Based Customized Reports for Gram Panchayats. Currently project has captured 332 - gram panchayat financial data through GPMS in twelve project districts (Patna, Nalanda, Bhojpur, Gaya, Aurngabad, Rohtas, Samastipur, Darbhanga, Madhubani, Sahrsha, Supaul, Madhepura). • TMIS (http://tmis.bgsys.gov.in/): -The core objective of this application is to strengthen data capture, analysis and decision making related to training of PRI members. This is the state specific application through which data is captured for all capacity building and entire training related things for PRIs members. This is a “Single Window” for all static database related to training i.e. documents related to trainings like training guidelines, training manuals, course content, training calendars, circulars and other relevant material. The Dynamic database captures real time trainings, nominations, post training evaluation and post training deployment. TMIS now provides a centralized database of trained human resource and Page 67 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) acts as a tool for facilitating the gap. • analysis of trained and untrained. This includes: • Development of annual training Calendar for the entire State. • Finding the gaps in training programs. • Evaluation of the assessment for the PRI functionaries. • Helpful as a system for continuous field support. • System for feedback collection. • Human Resource Management Information System (HRMS) BGSYS has created a dedicated HRMS for HR related information of the Society. The HRMS has in-built letter management system. The system includes an Employee handbook, Leave, Tour, Meeting Schedule, Attendance, Employee Profile etc. Payroll Management System. HRMS is used for all Accounting entries of the Society (e.g. cashbook, bank, journals etc.) • PRI Member of Bihar (Mobile App and WAP): With the help of this application user can able to see and reach out to the elected PRIs Member of Bihar such as MUKHIYA, UP-MUKHIYA, ZP, PS, SARPANCH, PANCH and the Ward Member. BGSYS has developed a Mobile App and WAP with latest updates on contact details of the elected representatives of PRIs. This Mobile App and WAP can be downloaded from Play store & anyone can easily see the information. A dedicated portal for selected Panchayats has been created with detailed information of the concerned Panchayat. http://dawa.bgsys.co.in/ • Contact Centre: BGSYS has established a Contact Centre which is a Grievance Redressal tool for the citizens. It operates with a toll-free number- 18603455555. This Contact Centre is also responsible for collecting data and managing MIS for NischayYojna. The Contact Centre collects data in 22 different formats for the Department of Panchayati Raj. • e-PMS:http://epms.bgsys.in/. Web based Project Monitoring System facilitates the monitoring and evaluation of construction of Panchayat Sarkar Bhawan across the state. This application is used for online monitoring of the PSB construction from its beginning i.e. arriving of the letter of availability of land for construction of PSB till the completion of all the milestones of the Project development. It is useful in generating different progress reports of the PSB (daily, weekly, monthly, quarterly, annual etc.) This system now acts as a decision support mechanism as it provides current information pertaining to a project and highlights related issues. • Result frame work matrix http://result.bgsys.co.in/: MIS system for PDO Level Results Indicators for all functional gram panchayat. By using this MIS system, user can view the details reports of functional gram panchayat. • Training and Capacity Building: - http://tmis.bgsys.in/ Training on Basic Computer and smart phone handling given to all Mukhiya at district level. After that they had been included into WhatsApp and Facebook page. No of Mukhiya- 3054 District Level Training provided five days to all BGSYS employee and three days to all DEO and Accountant on PES, GPMS & all State Specific Application with collaboration of NIELIT Patna. Number of Project staff 392 Number of DEO and Accountant 683 Total Number of Trainees 1075 Training given to all district level programmers for one month on e-Panchayat and panchayat enterprise suite (PES) application and state specific application. • Nischay Soft :-http://nicapp.bih.nic.in/nischaysoft/This application used for monitoring purpose Page 68 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) of MUKH MANTRI NISCHAY YOJANA for “NaligaliPakkikaran” and “Har gharNal ka jal” it captures all physical and financial progress of both Yojana. User can see the detail report on the home page. PROJECT OUTCOMES The major project outcomes are as follows • GPs have become responsive and accountable by catering the needs of residents, reducing their follow-up visits for availing services, taking lesser time to deliver the mandated services to community members and significantly reducing their transaction time. Provision of services at the doorsteps of community has increased the utilization rate of basic services and resulted in financial savings for villagers. • Team of 14 State Level Trainer, 56 District Level Trainer and Over 150 Trainers of Block Level • Training Tools, techniques and innovative training materials to enhance the capacities of elected members and officials of Gram Panchayats • BGSYS is considered as Pioneer institution on Panchayat at State, District and Block Level. It is looked at as the knowledge center for Panchayat, Decentralised Planning, GPMS, e-Panchayat and many other topics. • NIRD-PR, Hyderabad, BIPARD, NIELIT, Development Management Institute, NABARD and AN Sinha Institute are partnering with BGSYS on different programmes related to PRI. • Now BGSYS o Has started working as State Panchayat Resource Center and District Panchayat Resource Center. o Providing knowledge support to Dept. of Panchayati Raj in works like preparing Rules and other related activities. o Dovetailing with NIRDPR and BIPARD for some regular programmes. o Developing some more Training tools, techniques and innovative training materials • Society developed a rapport with the community, which was much required for the success of the project. • World Bank supported activities inevitably resulted in demand for the services with respect to rights and entitlement, which adequately created the pressure on the system to yield. The very understanding among the citizens on the ways & means to find solutions through constitutional means, paves the ways towards a successful project, as it invariably coerced people towards participation in the processes of governance as the last resort. • Maintained Proper Accounts of Gram Panchayats. Building Capacity on Financial Management • Apart from that, Result Framework matrix has also been completed. Development of ePMS web and Mobile application for Physical, financial and Monitoring purpose of the Panchayat Sarkar Bhawan had also been completed. In Panchayat Enterprise Suite (PES), LGD Local government directory (99.99%), National panchayat Portal completed, Area Profiler completed and Plan Plus in progress. Project Activities and Outcomes Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 • Component 1: • Construction of • Commencement • Construction Panchayat PSBs of Construction started in 303 Sarkar Bhawans in remaining locations Page 69 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 commenced in 129 locations • Construction of 166 locations where contracts 330 Panchayat are issued Sarkar Bhawans • Done • Contracts issued • Awarded 334 for construction contracts for of 35 GPs construction of PSBs • Contracts for • 100 PSBs ready • 61 PSBs • 114 PSBs • Construction construction of for handover to completed till 16 completed till of 271 PSBs 295 PSBs issued GPs July 2019 but 11 19th Nov 2019 completed by LAEO handed over • LAEO • Finalize hiring • Third party • Completed organized of Third-Party Quality check of bidders’ Quality Audit Construction of workshop in Agency PSB is in north Bihar progress Districts • LAEO reported • LAEO reported • LAEO reported the expenditure the expenditure the expenditure of US$ 7.1 of US$ 16.25 of US$ 42 Million as on Million as on million (app) as August 30, 2018 June 30, 2019 on 19 Nov 2019 • Result • Result • Completed Framework Framework Portal and MIS Portal and MIS software is software rolled being piloted in out in all 330 proposed 330 functional GPs functional GPs • Project • ePMS website is • Completed monitored the getting updated uploading of weekly. data to ePMS • Finalized TOR • Third party • Completed for Engagement Quality check of of the TPQA Construction of tender to be PSB is in released progress • Appointed State • The revised • Completed Programme monthly status Manager- reports on Architect construction Engineer in monitoring w.r.t. Project Environment & Social compliances for the period of October 2018 till May 2019 are to be submitted to Page 70 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 WB Environment team • Midline survey • Completed report on land screening to be shared with World Bank • 330 Functional • Supplied of • Supply of • Manpower • Completed Gram furniture and manpower to (Data Entry Panchayats in fixtures to all 230 proposed Operator and the 12 Project 330 functional functional PSBs Accountant) Districts GPs • Supply of provided in all • Online UPS and computer and functional PSB fire Peripherals to • Furniture and extinguishers the proposed Computer supplied to 100 functional PSBs supplied in all GPs • Supply of Functional PSB Online UPS and • Online UPS and • Tender fire extinguisher Fire published for in remaining extinguisher the supply of PSBs supplied in all computers, • Supply of Functional PSB printers, and manpower to camera 100 proposed functional PSBs • DLI verification • DLI verification • Second phase of • Third DLI • Completed agency finalized of 100 GPs DLI verification verification completed and completed third DLI verification will be carried out • DLI Verification • 330 Functional • Completed of 230 GPs Panchayats claimed under DLI. • Component 2: • Training on • Training of • Completed • Completed PRIs Basic Finance 3186 Mukhiya Institutional Functional Gram and Panchayat Strengthening Panchayats in Sachiv on collaboration Record keeping • Core with BIPARD & Accounts institutional • Refresher on • Completed • Completed • Training of capacity Panchayat Acts 3186 Mukhiya building to and Rules in and Panchayat equip the Association with Sachiv on elected “Mukhiya Panchayat representatives Sarpanch Awards and Training GPDP Institute” Page 71 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 • Capacity • Draft report and • Training on • Completed • Completed building plan on videos of Flagship GPDP for the documentation Program in 3191 Project of best practices Association with • Exposure Visit GPs in 204 at the Gram “Mukhiya of Selected Blocks of 12 Panchayats by Sarpanch PRIs outside Districts the Training state • Civic programmatic Institute engagement support agency • Communication submitted and and Mass media feedback given activities • TOT for District • GPMS ToT • Completed • Training of Panchayati Raj rollout at 3186 Mukhiya Officers and District Level and Panchayat selected Block Sachiv on Development Scheme literacy Officers on 2 program Nischays done • Retendering of • Hiring of • Completed in • Completed hiring of Agency for Pilot District advertising Information • Information agency for the dissemination dissemination development through mass through mass awareness media and mid- media & mid generation media Platform media Platform material and for awareness for awareness undertaking generation generation mobile among among stake awareness stakeholders holders campaign is in process • Component 3: • MoU signed • Panchayat Level • Completed • Completed Strengthening with Data Entry in the capacity to Government of GPMS in 330 manage West Bengal for GP decentralization GPMS. • Rolling out of • GPMS rolled • Completed • Completed • GPMS team GPMS in 330 out in all 330 • Panchayat from West GPs Functional GP Financial Bangel trained • Roll- out GPMS • To be Management SPMU staff and in all 3186 GPs completed by System: Roll visited GPs and 31st Jan 2020 out of GPMS organized • Data Capturing • Completed • (Gram workshops on for GPMS of FY Panchayat customization 2016-17 & Management and pre-testing 2017-18 System) from elected representatives and officials • Data Capturing • Completed • Completed for GPMS of FY Page 72 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 2016-17 & 2017-18 • Migration from manual accounting to GPMS • Preparation of • Final approval • Under Process- • Under • Approved by Rules and on Bihar Gram Pending with Process- Hon’ble Regulations in Panchayat Govt of Bihar Pending Minister and line with Bihar Budget, with Govt of sent to Finance Panchayat Raj Accounting, Bihar Department for Act 2006 Taxation, and approval. Auditing Rules • Component 4: • Internal Audit • Internal Audit • Completed • Completed Project final report reports for management submitted period up to and Sept 2018 coordination submitted by the auditors till October 31, 2018 to be shared with the Bank • Selection • Internal audit • Completed • Completed process plan for the completed quarter ended December 31, 2018 to be shared with the Bank • Project Audit Reports of project and LAEO for the FY 2017/18 to be submitted to the Bank • Hiring of • Identify the • HR Behavioral • HR Behavioral • Completed internal auditor amount of training for training for completed security deposits BPMs BPMs and work • End line Survey Completed contingency of Project expenditure claimed (if any) in the previous IFRs and reimbursed by the Bank and reverse it in the next IFR Page 73 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Key Action Fifth Sixth Status Fourth Points Agreed - Implementation Implementation Implementation Fourth Support Mission Support Mission Components and Support Mission Implementation – July 2019 – Nov 2019 sub components – September Support Mission 2018 – September 2018 • Document was • Making BPMUs • 172 BPMUs • Completed prepared on the functional Completed agreed project • Fully financial operational • Completed management Results arrangements in Framework LAEO and portal disseminated to the project divisions • Meetings in progress with the State Accountant General for audit of project • Transactions in LAEO for FY2017/18 onwards Source: World Bank Aide Memoirs BPSP-year wise expenditure Year-wise Expenditure (Rs. Crores) 300 250 254.5 250 200 150 100 50 4.28 3.61 4.63 51.03 0 UPTO March FY 2015-16 FY 2016-17 FY 2017-18 FY 2018-19 expected till Dec 2015 2019 Loan No: 5160IN Amount: $98.57 million (69 +29.57) Agreement Date: 27.06.2013 Previous Closure date: 31.12.2017 Restructuring: 10.07.2016 Present Closure Date: 30.12.2019 Page 74 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) KEY FACTORS FOR THE EFFECTIVE IMPLEMENTATION Following are the key factors for the effective implementation of the project: Administrative and policy level changes DPMUs (District Project Management Units), which were functioning out of the District Panchayat Offices in the respective districts, were made independent by providing separate office set up. BGSYS updated draft Bihar Gram Panchayat Budget, Accounting, Taxation and Auditing Rules and placed the same to the State Cabinet. Active support from the Bank Post restructuring of the project, the Bank team undertook missions followed up with many short missions on the Project in specific areas wherever the progress was slow. Review on the agreed timelines took place every two months with the Project Director and BGSYS. Systematic follow-up and adherence to timelines contributed to a significant turnaround of the project in 2016-17 and 2017-18. Bank team, during their constant engagement and effective collaboration with the project team, provided solutions to the issues creating hinderance in the progress of project objectives. E.g. in the north Bihar Districts, LAEO were facing issues such as non-availability of quality bidders, limited interest from bidders and bidders unable to meet certain qualification criteria. To resolve this, following the Bank’s suggestions, LAEO organized workshops for prospective bidders in north Bihar Districts to orient them about the work and to understand the reasons for non-participation by them in the tendering process for construction of PSBs. Based on the observations from these workshops, LAEO and BGSYS in consultation with the Bank addressed those issues. The Secretary, RDPR (GoB) also acknowledged the significant progress that the project made with excellent collaboration and necessary handholding by the Bank team. Hiring of experts for effective implementation BGSYS hired the services of separate agencies for preparation of project baseline and DLI verification. A CA firm was hired for maintaining books of accounts of 12 Project Districts. BGSYS also took an agency onboard for hiring and deployment of 650 Panchayat Account Managers. Project hired a firm NABCONS for conducting the Third-Party Quality Assurance (TPQA) of construction sites. Procurement Initially, after the restructuring of the project, progress in Procurement was very slow. However, it improved over the period of project duration and contracts for 303 Panchayat Sarkar Bhawans were signed. The Project Procurement plan was later uploaded on the Bank’s procurement management system - Systematic Tracking of Exchanges in Procurement (STEP). The State Procurement Manager (SPM) was provided training on STEP before moving the project to STEP. For quick decision making, all procurement activities Page 75 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) were undertaken through the State Project Manager-Procurement who was made responsible for project procurement. Under SPM, thematic experts prepared the ToRs, Cost Estimates and did Technical Evaluation. All the records were kept intact at SPM Procurement office. Bank provided a procurement consultant to work with SPM-Procurement and other technical experts who assisted the project team in reviewing the ToRs, cost estimates, EoI and other bidding documents and provide inputs to streamline the procurement documents and activities. A Standard Bidding Document (Small Works) for the project was finalized to allow LAEO to float tenders for commencement of civil works. All the procurement documents were uploaded in STEP for post review contracts except nine activities. Post Procurement Review (PPR) was conducted by the Bank and report shared with the project for factual correction (if any) and for action taken report. Phased approach to make existing PSBs functional The process of making Panchayats functional was completed in a phased manner. The first phase included supply of furniture and fixtures, second phase was hiring of manpower while the purchase of computers and peripherals for the already constructed PSBs were done in the third phase. Gram Panchayats were considered functional once the PSBs had the necessary furniture and fixtures, computers and peripherals, key officials, conducting Gram Sabhas, and constitution and functioning of standing committees. Capacity building of PSBs The Project prepared a Capacity Building Plan and clearly laid out its implementation strategy for training of GP officials and members. The Project organized several workshops and training programs on thematic areas – refresher training, Acts and Rules, Basic Finance, Decentralized Planning and Scheme literacy. These programs were organized for newly recruited Block account facilitators; induction training program for newly recruited employees of BGSYS; Training of Trainers program for districts and the block project monitoring units. The project carried out training on Panchayat Enterprise Suite (PES) application, Government of Bihar program on Seven Nishay [Resolve], PriaSoft & Gram Panchayat Development Program and completed training to all district programmer and executive assistants of 24 districts. Under PES, information on the local government directory, National Panchayat Portal and Area Profiler was imparted. The Project singed an MOU with National Institute of Electronics and Information Technology (NIELIT) for scaling up the basic computer literacy and Smartphone handling. Orientation cum exposure visit programs for selected Gram Panchayat Presidents of 12 districts (especially women elected representatives) were organized for functional Gram Panchayats. E-Gov Initiatives – Development of IT enabled applications and softwares Rollout of GPMS had been completed in all 330 functional Gram Panchayats. GPs historical (FY 2018-19) and current financial transactions (till Dec. 2018) were updated in the GPMS system. GPMS had benefited the Gram Panchayats in managing the existing registers such as cash book, scheme register, cash issue book and Bank passbook. Community awareness Communication activities were planned under the project for creating mass awareness among communities Page 76 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) on the functioning of Gram Panchayats. Project team used traditional, print and electronic media for creating mass awareness among communities. The activities are divided into four parts vis-a-vis content development & designs for print IEC materials, production of radio programs in the form of jingles and fictional serial, production of short films and dissemination of messages through mobile vans in selected districts. For this posters, leaflets, flipcharts, 36 radio jingles, more than 50 episodes of a fictional radio serial and two short film and documentaries were developed / produced. All these were made available on the BGSYS website. The audio-visual snippets were also developed and disseminated through What’s app and Social Media Platforms. Besides these, mobile buses carrying team of performers were plied through the GPs. Through this mass awareness was created in respective GPs. Third party DLI verification A third party was hired for the verification of DLIs. Bank team provided substantial feedback for finalizing the protocols for DLI verification. SUPPORT FROM BANK Quality of monitoring and evaluation Post restructuring of the project, Bank in consultation with BGSYS carried out a preliminary baseline review of the results framework indicators in October 2016 and shared the findings with the Project Director, BGSYS. As the work progressed the Bank team on safeguards conducted field visits of some of the Panchayat Sarkar Bhawans (PSBs) sites and looked at some of the functional Panchayats. A detailed review meeting took place on the construction of PSBs with Local Area Engineering Organization (LAEO) and BGSYS. During the project duration, the Bank team conducted regular missions to review the overall achievement of the project both in terms of achievement towards the project development objectives and the progress made in implementation as well as the disbursement targets. Based on the discussions and agreements during the mission, a component wise action plan with timelines was finalized in order to facilitate a faster disbursement and smooth implementation of the project. For the construction of PSBs, support was provided to LAEO for few months to kick start the construction activities. In overall terms, the support provided by the Bank team in the last two and half years has been excellent and outstanding which enabled the project to turn around much faster. Post restructuring in 2016, the overall World Bank support is rated as Highly Satisfactory. Environment and social compliance Bank consultants provided screening checklist for site selection of new PSBs and also supported BGSYS in updating the Resettlement Policy Framework (RPF) and Environment Management Framework of the project (EMF) to reflect post restructuring changes. New national and state Acts on land acquisition were added in the EMF along with due representation of gender and inclusion safeguards. The Bank safeguards team organized trainings on Social Safeguards of the Project for the State Project Management Unit field staff (District Project Managers and Block Project Managers), staff members from SPMU head office and staff of Local Area Engineering Organization (LAEO). Page 77 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) BGSYS, thereafter, hired a Social Specialist and an Environment Specialist for the project who were trained by the respective specialists from the Bank. Environment & Social Bank team undertook a separate mission in April 2018 for follow-up on key activities. The team carried out due diligence site visits as part of the orientation of the newly appointed Environment and Social Specialist in BGSYS. The Bank team assisted the project to develop a set of indicators for monitoring of labor issues and standards for the laborers appointed by the contractors undertaking construction works in the Bank-funded PSBs. Additionally, a Grievance Redressal system was put in place by the project on the recommendations of Bank experts. Fiduciary compliance Financial management under the Project was governed by the Project Financial Management Manual (FMM) and its compliance was a legal covenant. The manual was revised consequent to Project restructuring and amendments in the Project legal agreement. Accounting was done in an off-the-shelf accounting software (TALLY). Separate head of accounts were created for various activities under project components and these form the basis for the preparation of the quarterly Interim Unaudited Financial Reports (IUFR). Initially IUFRs were submitted with delay. A separate bank account was operated by BGSYS for the project and bank reconciliation statements (BRS) were prepared quarterly by the State Project Manager (Finance). A signed copy of the BRS was kept as part of standard documentation and outstanding entries were reviewed periodically by the Project Director. Physical verification of fixed assets procured under the Project was done as prescribed in the FMM. A firm of Chartered Accountants using tendering procedures was appointed for the annual audits of project financial statements of BGSYS. These audit reports were submitted to the Bank for review and acceptance. The Project was implemented by 20 existing division offices of LAEO in the 12 Project districts. A Superintending Engineer (Head Quarter) was appointed as the Nodal Officer for supervising implementation. LAEO followed its extant financial management systems supplemented by Project specific financial reporting in formats and timelines. Separate head code for project budget was created under the Demand for Grant no. 35 of DoPD in the State budget. Annual Audit of the Project expenditure reported by LAEO was conducted by the Comptroller & Auditor General (C&AG). Bank reviewed project financial statements, internal audit and all other financial reports submitted by the BGSYS regularly. SUSTAINABILITY GoB has decided to continue many of the key impactful initiatives of BPSP after the closure of this project. Some of these initiatives include PSB’s environmentally friendly design, approached and methodologies of capacity-building of PRI members, mass media, awareness-generation materials/street plays/short films, digital initiatives, etc. Use of proven various innovative participatory tools developed for the effective implementation of BPSP like P-Rap, P-LUDO and P-Vyapar will continue to enhance the local level participation and understanding of key concepts. Similarly, IT initiatives have been absorbed by the state government in totality which will help officials to scale up these reforms to all the GPs. BPSP’s special emphasis on training women Mukhiyas, especially the first-time elected representatives from seats reserved for women, construction of gender friendly PSBs and initiatives taken to build confidence in women to enhance their participation in local governance has silently contributed to increase the social capital of the state. GoB’s decision to continue these initiatives of BPSP would not only create long-term sustainability of project’s components but also ensure effective and efficient replicability of inclusive, responsive, and accountable PRIs model. Page 78 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) To strengthen the sustainability of the project, Bank team provided hand-holding support for developing plans and strategies for implementing the training and other activities for creating awareness in the public. A consultant was provided by the bank for the preparation of a Capacity Building and Communication Plan which clearly laid out the activities to be taken in accordance with the procurement plan. In addition, Bank experts reviewed the training modules on Gram Katcheri and international experience in this area was shared with the project. For effective implementation, a detailed Training and Needs Assessment for the PRIs in the state was conducted. Based on that the project team developed training modules for foundation training of elected representatives. BGSYS worked with the Department of Panchayats and Rural Development (DPRD), Government of West Bengal for replication of the Gram Panchayat Management System (GPMS), an all- inclusive accounting and Panchayat management software. For this, State Programme Management Unit for IT and e-Panchayat Implementation was established. Till April 2016, the progress on all the components was very slow. With constant handholding and regular technical inputs, Bank team turnaround the project by the end of 2016. Government of Bihar has decided to fund the completion of buildings from its own budget in case all the buildings couldn’t be completed in time by project closing date. State government has acknowledged the fact that remarkable turning around of the project in the last two years and noteworthy initiatives taken under the project for strengthening the Bihar’s Panchayati Raj system, the state government has decided to continue the project beyond the project closing date with its own funding. Plan is to scale up the good initiatives like use of accounting software GPMS to all the Panchayats, augment Panchayat resources, form a separate cadre for Junior Engineers, Assistant Engineers and Executive Engineers under the Panchayati Raj Department. Now the Bihar Gram Swaraj Society is being looked at as a training and knowledge hub and its activities would be scaled up in strengthening functional Panchayats across the state. The Project based on the Capacity Building and Communication Plan, with the support of National Institute of Electronics and Information Technology (NIELIT), trained Mukhias and Panchayat Secretaries of 3186 project GPs on basic computer skills and smartphone handling. This training was a significant contribution towards the ‘Digital India’ campaign by the Government of India as it ensured the inclusion of Panchayat Raj Institutions in the new e-initiatives launched by the Government. This project has created pool of more than 200 trainers at three levels (i.e. state, district and block). The project is now viewed as a strong knowledge partner by all the department in the Government and has set an example for others to follow in imparting training in an effective and innovative manner. The project has developed partnerships with leading institutes like NIRDPR, NIELIT, BIPARD, DMI, NABARD etc and is now equipped to manage and provide training at a large scale and across the three ties of the Panchayat system in Bihar. State government’s decision to recruit Data Entry Operators and Accountants in all GPs in the state will ensure that the replication of GPMS in non-project GPs and a complete transition from manual accounting to an accounting software Project shall focus on support to the Department of Panchayati Raj, GoB in enhancing Capacity Building of PRIs, creating more Functional Panchayats, supporting the state government in gradual decentralization and Project Management and Coordination. More than 600 GPs to become model and act as beacon Gram Page 79 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Panchayats for rest of the Gram Panchayats. It will also enable us to reap benefits of Project innovations. Now we are at threshold of transforming the focus of Society from Capability building to Institutional making. PSBs now function as a nodal point for many activities. It functions as a RTPS center wherein villagers make an application for issue of Birth &caste certificate etc. Accountants & Data Entry Operators has been deployed in Gram Panchayat to manage the GPMS. Further furniture and fixtures, Computer peripherals etc. to GPs has been installed in PSB. There is weekly roaster of govt officials who extend their service by sitting in the PSB and close the related issues. In fact, PSBs of today’s functions more as secretariat for villagers to cater their need and fulfill the aspiration of common people. This institution making effort has started bearing & reaping results and at this juncture we expect World Bank handholding of the project must continue in the larger interest of society, PRIs members, villagers and common people to realize the true democracy at grassroot level as envisioned by our father of nation – Mahatma Gandhi. Reflections and Responses of our Colleagues and PRI Elected Members Today PRI members consider BGSYS staff as their Mentor and Guardian. It helped in making good rapport with PRI Trainings provided a elected members, tool to begin two way Functionaries and communication with Staff of District & the PRI members. Block level. BGSYS is recognized as Capacity Building Institution. The over all Today PRI members attendance in all most consider BGSYS staff all the trainings was as their Mentor and recorded over Guardian. 90 %. Tools like P-Ludo, P- Vyapar and P-Rap developed the CB Cell are very much appreciated by NIRDPR. Page 80 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 8. Survey Assessment Assessment of Services Delivered by Rural Local Bodies in Bihar Summary Background: The Bihar Panchayat Strengthening Project (BPSP) was conceived by the Government of Bihar with technical and financial assistance from World Bank. Started in 2012 and covering six districts, the project was restructured in 2016 and the coverage was expanded to 12 districts with revised components. The Project Development Objective (PDO) of the project is “to support Bihar’s capacity to promote and strengthen inclusive, responsive, and accountable Panchayat Raj Institutions in selected districts across the state. Panchayat Sarkar Bhawan (PSB) is the office of the Gram Panchayat (GP). Because most GPs lack a PSB, community members face numerous challenges in accessing the information and services they need. BPSP is constructing 330 PSBs in 12 districts of Bihar. A pilot assessment was carried out to understand, through the lens of services delivered by the local government at the village level, the role of a PSB in achieving the PDO of BPSP. Methodology: In this assessment, delivery of services by GPs refers to the direct, facilitation, and beneficiary selection services that come under the mandate of Gram Panchayats. The study covered a subset of these services. 22 The assessment was carried out in the GPs of 12 districts under the BPSP. The assessment compared a set of 335 “Project GPs” (GPs covered under the Project) with a set of 108 “non-Project GPs” (GPs not covered under the Project). The key difference between the Project GPs and non-Project GPs was the availability of a well-constructed operational GP office. The following criteria were used to select these GPs: “GPs headed by women,” “GPs headed by Scheduled Caste / Scheduled Tribe Members,” “GPs located 5 to 10 km from Block Headquarters,” and “GPs located more than 10 km from Block Headquarters.” The non-Project GPs in the study are GPs with similar socioeconomic and demographic characteristics that are adjacent to Project GPs. The assessment covered a total of 6,479 service recipients (4,065 males and 2,414 females): 4,975 service recipients (3,154 males and 1821 females) from the Project GPs, and 1,504 service recipients (911 males and 593 females) from the non-Project GPs. Measuring the PDO (Inclusive, Responsive and Accountable Panchayats) – Survey Findings Inclusiveness: To what extent was the GP office was inclusive and accessible to the local residents? The study found that the Project GPs with operational GP offices are more inclusive than the non-Project GPs without GP offices. The location of the GP office is a major determinant for ensuring access by and inclusion of all sections of the community. Having the GP office functioning in any building other than a dedicated GP office limits the inclusion of all stakeholders. For example, women community members may not be willing to visit a GP office that functions out of the residence of the GP President. The assessment 22Birth / Death Certificate, MGNREGS Job Card, Chief Ministers Marriage Assistance Scheme (MKVY), Pension Schemes. Page 81 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) found that 89 percent of project GPs are functioning from the PSBs. All non-Project GPs covered under the study are without proper office buildings and are functioning either from the personal office of the GP President or some makeshift office (35%), the residence of the GP President (30%), or any public facility building (22%). Figure 1. Accessibility of GP Office 50% 40% 40% 35% 33% 30% 23% 19% 20% 16% 15% 8% 9% 10% 2% 0% Very great extent Great extent Moderate extent Somewhat extent Small extent Project GPs Non-Project GPs It is noteworthy that in Project GPs, the location for the newly constructed PSB was decided through a resolution passed by the Gram Sabha, which is a participatory process. This has led to higher levels of satisfaction about the location of PSBs in Project GPs. The Project GP offices have waiting areas, separate toilets, and breastfeeding rooms, making them safer and more comfortable for female community members. The findings show that gender-friendly structures and spaces are essential to ensure the inclusion of women in local government functioning. The GP offices in non-Project GPs were found to be far less accessible, particularly to women. Figure 2. Gender-friendliness of GP offices 100% 93% 80% 67% 60% 40% 33% 20% 7% 0% Yes No Project GPs Non-Project GPs Responsiveness: How approachable and receptive was the local office in helping local residents? The GP offices in Project GPs with proper office infrastructure were found to be more forthcoming and responsive to the local residents in providing various services. While most of the applicants for various services from Project GPs were able to submit their application during the first or second visit, around 48 percent of the respondents from non-Project GPs had to make three or more visits to the GP office to submit Page 82 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) an application. The entire process of handling the requests of local residents is more structured in a Project GP office because of the presence of regular Panchayat staff and the Panchayat Secretary under one roof. In non-Project GPs, lack of office space and other office paraphernalia for Panchayat functionaries has long been a deterrent to their carrying out their official duties. GPs where local government offices were fully operational took significantly less time to provide services, and the matter was usually resolved with fewer visits by the applicant. Figure 3. Visits required for submission of a service-specific application es Yojana n Kanya Certifi Certifi Job Schem Vivah Non-Project GPs 13.3% 31.9% 54.9% Project GPs 34.7% 41.7% 23.6% MGNR Pensio Non-Project GPs 18.6% 28.7% 52.8% Project GPs 37.5% 43.0% 19.4% Non-Project GPs 15.8% 33.5% 50.6% Birth Death EGA cate cate Card Project GPs 45.5% 40.4% 14.1% Non-Project GPs 20.5% 36.4% 43.1% Project GPs 43.9% 43.9% 12.1% Non-Project GPs 19.6% 37.5% 42.9% Project GPs 53.4% 37.1% 9.5% One day Two days Three days or more Accountability: How responsible has the local office been in timely delivery of services? Timely delivery of services displays the accountability of the GP office toward the needs of the public. While the majority of the applicants from Project GPs received the required services within 10 days after submitting their application, most of the applicants from non-Project GPs received the required services in 10-30 days after submitting an application. The need for applicants to make fewer follow-up visits to receive a specific service is an indicator of the efficiency of the GP office in delivering various mandated services. Figure 4. Number of follow-up visits made to receive services Birth Certificate Death Certificate Non-Project GPs 15% 31% 54% Non-Project GPs 17% 33% 49% Project GPs 47% 43% 10% Project GPs 41% 45% 14% 0% 20% 40% 60% 80% 100% 0% 20% 40% 60% 80% 100% 1 Visit 2 Visits 3 or more visits 1 Visit 2 Visits 3 or more visits Page 83 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) An operational GP office reduces the transaction cost of accessing a specific service by the local residents. When there is no nearby local office, applicants need to travel to the Block Office, usually about 9 km from their residence, losing wages (about US$3) and incurring travel expenses (about US$2) for each visit. Moreover, it is quite likely that they may not be able to complete the task in one visit and may need to return two or three times before submitting their applications. However, if the GP office is located near residents’ homes, the entire transaction cost of accessing a service is either zero or marginal. Figure 5. Time taken to receive service Death Certificate Non-Project GPs 10% 73% 7% 10% Project GPs 74% 21% 1%4% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Less than 10 days 10 to 30 days Two to three months More Than 4 Months MGNREGA Job Card Non-Project GPs 15% 63% 10% 11% Project GPs 73.1% 20.6% 2.0% 4.3% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Less than 10 days 10 to 30 days Two to three months More Than 4 Months Pension Schemes Non-Project GPs 6% 54% 23% 17% Project GPs 56% 14% 16% 14% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Less than 10 days 10 to 30 days Two to three months More Than 4 Months Page 84 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Figure 6. Services for which respondents visited Block Office 100% 73% 78% 80% 69% 72% 59% 60% 40% 18% 15% 17% 20% 0% 0% 0% Birth Certificate Death Certificate MGNREGA Job Card Pension Schemes Marriage Assistance (NKVY) Project GPs Non-Project GPs Page 85 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 9. Land Selection Land Selection for Bihar PSB Buildings The World Bank-financed Project has undertaken to construct around 330 PSBs across 12 districts in Bihar, roughly spread over two regions of Bihar. Keeping in mind the spatial and climatic context of Bihar, especially the flood-prone region of North Bihar, in which four of the Project districts are located, it was important to ensure that the sites selected for these PSB buildings be accessible, safe, and free of environmental/natural risks. The Bank’s safeguards team prepared an initial site screening checklist and tested it on a few sites, fine- tuning it in the process. The land identification process was then scaled up to cover the entire project, with the client’s (BGSYS’s) field team carrying out the activity and sample due diligence by the Bank technical team. The main problem that arose in this process was that the field team did not understand the checklist well, which resulted in incorrect filling of the checklist and improper identification of land sites. To address this problem, workshops for the field staff were conducted, and the World Bank safeguards team made joint site visits with field staff. The flow chart below illustrates the screening process carried out for the project. The joint site visits and due diligence site screening process provided an excellent opportunity to get invaluable insights and views on the PSB buildings from stakeholders—that is, the villagers and Gram Sabha members, especially women. In addition, the interaction helped stakeholders understand the practical problems of identifying sites to meet all the desired parameters. For example, in many villages, a site that was suitable in terms of all environment aspects would be located far away from the main settlements or would not be agreed by the Gram Sabha. However, it was felt that overall, the land screening activity effectively helped in rejecting sites that would not meet the requirements for which the PSB building was being constructed, and that the land selection process has been a key activity in achieving the goal of ensuring an accessible, safe, and inclusive space for all stakeholders, especially women. Page 86 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) ANNEX 10. Country, Sector and Project background Country Background The Government’s “Aapki Sarkar Aapke Dwar” (“Government at your doorstep”) campaign also underlines the focus on strengthening local self-government. This was also one of the reasons for the Government of Bihar to develop local government focused interventions. During the Project appraisal period (2012), Bihar was one of the most populated and least developed states in India, and it remains so today. Per capita income in 2012 was about one-third of the national average.23.Of Bihar’s 103 million population, about 90 percent lived in rural areas. Agriculture and related activities employed about 80 percent of Bihar’s labor force but contributed only about 20 percent of the state’s gross domestic product. According to the 2009-10 National Sample Survey and Planning Commission poverty line, the poverty incidence was 56 percent among the rural population, among the highest in the developing world. 24 Literacy rates were 73 percent among men and 53 percent among women. In 2006, around 42 percent of children under the age of three were stunted, 58 percent were underweight, and 28 percent were wasted. 25 Of women aged 15-49, 45 percent had lower than normal body mass index. Two-thirds of the women in this age group and 87 percent of children under the age of three suffered from anemia. Basic access to sanitation was poor: only 24 percent of rural households had toilets. The quality of drinking water remained a major problem because of poor sanitation and the presence of fluoride, arsenic, nitrate, and iron. The rural population faced, and continues to face, particularly severe challenges. Land distribution was unequal, 26 with a large proportion of landless or marginal farmers. Among the rural population, 17.5 percent belonged to the SC and ST, who typically lived in deeper poverty and generally had limited economic opportunities. Poverty incidence was 64 percent among the SC population and 56 percent among the ST population. Median land ownership for an SC/ST household was 0.03 hectare. Of SC/ST households, 60 percent were engaged in agricultural labor, and 70 percent of the heads of such households were illiterate. Upon taking office in March 2005, the GoB launched a comprehensive reform program focused on improving the capacity of the state. 27 The reform supported Panchayat leadership in bringing about visible changes in the villages, including in village sanitation, quality of drinking water, nutrition status of children, and management of natural resources. This was done primarily by helping Gram Panchayats (GPs) access and effectively use funding provided by a few large government schemes (e.g., Mahatma Gandhi National Rural Employment Guarantee Scheme, Total Sanitation Campaign, National Rural Drinking Water Program, Integrated Child Development Services, and discretionary grants such as the 13th Finance Commission Grant and the Backward Region Grant Fund). The resulting wide range of administrative reforms led to citizen-centric governance initiatives, better public financial management, and improved development indicators. Development took center stage in the political discourse. Public spending for development programs increased dramatically and, as a consequence, utilization of centrally sponsored schemes improved. 23Project Appraisal Document, Report No. 71925-IN. 24“Perspectives on Poverty in India: Stylized Facts from Survey Data,” World Bank 2010. 25Wasted refers to children too thin for their height, meaning acute malnutrition; stunting refers to children too short for their age, an indicator of chronic malnutrition. 26Of rural households 10% were landless, 53% owned less than 0.4 ha, 20% owned 0.4-1 ha, 10% owned 1-2 ha, 5% owned 2~4 ha, and 2% owned more than 4 ha. 27As highlighted in the Project Appraisal Report. Page 87 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Sectoral and Institutional Context at Appraisal There are three main levels of government in India: central, state, and local (see Figure 1). Since 1992, local governance in India takes two very distinct forms. Urban localities, covered in the 74th amendment to the Constitution, have a Nagar Palika (Municipal Council), but derive their powers from the individual state governments. Under the 73rd amendment to the Constitution, the powers of rural localities have been formalized under the Panchayati Raj system, a three-tier system of rural local bodies with elected bodies at the village, taluk, and district levels. 28 The urban local bodies have a single-tier government called municipalities that vary depending on their size. 29 At the urban level, according to the 2011 Census, there were 4,041 statutory towns in India (from 3,799 in 2001) 30. At the rural level, as of March 2014, there were an estimated 247,467 Panchayats in India 31 and a total of 8,387 in Bihar. The local bodies’ functions are contained in the Constitution but need to be agreed at the state level for both urban and rural governments. At the rural level, the eleventh schedule 32 (Article 243G), added by the 73rd amendment to the Constitution, lists 29 areas under PRI or rural local government, including agriculture, minor irrigation, water management, fisheries, forestry, rural housing, drinking water, roads, culverts, bridges, ferries, waterways, rural electrification, poverty alleviation programs, education, health and sanitation, and maintenance of community assets. The twelfth schedule (Article 243W), added by the 74th amendment, lists 18 subjects under municipalities, including urban planning, regulation of land use and construction of buildings, roads and bridges, water supply, public health, sanitation conservancy and solid waste management, slum improvement and upgrading, urban poverty alleviation programs, and amenities such as parks, street lighting, and parking lots. The state can designate these functions as obligatory or discretionary. 28 There are three main types of Panchayats: 240,542 village, 6,332 intermediate, and 593 district panchayats. The village-level Panchayat is a local body governing the village. The intermediate-level Panchayat is a level between village and district levels and may not be constituted in a state with a population of less than 2 million. In the district level of the Panchayati Raj system, Zilla Parishad looks after the administration of the rural area of the district, and its office is located at the district headquarters. 29After the 74th Amendment was enacted there are only three categories of urban local bodies: Mahanagarnigam, or municipal corporation, which administers urban areas with a population of more than 1 million; Nagar palika, or municipality, which administers a city of 100,000 or more; and Nagar panchayat, also known as notified area council or city council. These local bodies are subject to detailed supervisory control and guidance by the state governments. 30A Statutory Town is one with a municipality, corporation, cantonment board, or notified town area committee. 31 Indian Institute of Public Administration, “Measuring Devolution to Panchayats in India: A Comparison across States, Empirical Assessment – 2013-14”; August 2014, Ministry of Panchayati Raj. http://www.iipa.org.in/upload/Devolution_Index_Report_2013-14.pdf 32 Schedules are lists in the Indian Constitution that categorize and tabulate bureaucratic activities and Government policy. Page 88 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Figure 1. Government Administrative Structure in India Federal Government of India State Governments Divisions Rural Districts (Zill Parishad) Block (Tehsil) Urban Village Municipal corporation Municipality City Council (Gram Panchayat) (Mahanagar Palika) (Nagar Palika) (Nagar Panchayat) Wards Wards Across India, and particularly in rural Bihar, deep-rooted social inequality, especially along gender and caste lines, limited the participation of all social groups in the Panchayats. The legal framework provided opportunities for villagers to participate in local governance and demand accountability—for example, through Gram Sabhas, 33 Social Audit, and the Right to Information. It took a long time for the suppressed social groups to gain the skills to occupy meaningful seats in local governance. The Bihar Panchayat Strengthening Project (BPSP, or Project) aimed to assist the GoB in strengthening PRIs as units of self-governance capable of planning and implementing development schemes, promoting community life, generating employment opportunities, and performing judicial functions. Lessons Learned during Project Preparation In 2008 the World Bank Independent Evaluation Group carried out a study, “Decentralization in Client Countries: An Evaluation of World Bank Support, 1990–2007.” The Project design took into account three key recommendations from this study: (i) ensure genuine client commitment to decentralized service delivery; (ii) encourage adoption of a more results-based approach to decentralization; and (iii) ensure that the Bank’s support is based on a clear analytical framework, understanding economic, political, and institutional factors at different levels of government and across sectors. 33A body consisting of all persons whose names are included in the electoral rolls for the Panchayat at the village level. Page 89 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) The Project took a results-based approach to decentralization by focusing on selected development outcomes that were agreeable to the local leadership: initiatives in sanitation, quality of drinking water, nutrition, and natural resource management. Collaboration across departments on the part of GoB as well as the World Bank was considered critical. The Project preparation team judged that visible development results would be the litmus test for decentralization reforms and the rallying point for grassroots leaders. The decentralization literature highlighted the risk of elite capture of decentralized power and resources. With deep-rooted social divisions, Bihar was prone to this risk. The Project therefore chose to invest significant operational energy in raising awareness and building the capacity of citizens and leadership from disadvantaged groups to meaningfully participate in local governance and undertake collective action that benefits them as well as the broader community. Learning from the sector reforms (e.g., rural water supply, sanitation, nutrition, natural resource management) also pointed to the important role of the PRIs, especially if sustainable improvement in infrastructure and services was the goal. Many sector programs could create short-term impact through effective management of sectoral interventions, even independent of local government; however, progress could not be sustained as infrastructure deteriorated without routine maintenance and behavior change reverses in the absence of continuous community mobilization. Government departments were more focused on initial investment, and not on operations, maintenance, and community mobilization— which are better done by local government. Risks and Risk Mitigation Measures During Project preparation, the following six risks were identified that could impede Project achievements: BGSYS was new and needed to quickly develop management capacity. Mitigation measure: The Project put in place a human resources management policy to strengthen the capacity of agency staff. Without a minimum level of GP staffing, investment in PSBs and capacity building would have limited impact. Mitigation measure: The Project aimed to ensure a minimum level of GP staffing. As a first step, the Government of Bihar is to fill all GP-level vacancies. The Project needed to sustain and broaden stakeholder support. Mitigation measure: District-and Block-level coordination committees were to be formed under the chairmanship of District Magistrates and Block Development Officers, respectively. The line department staff managing centrally sponsored schemes may not respond to local priorities because of indifference or because norms and implementation arrangements in the scheme were outside their own control. Mitigation measure: The BGSYS Executive Committee would monitor/reward the performance of joint teams consisting of BGSYS staff and line department staff. Risk of fraud and corruption associated with construction, procurement, and contract management. Mitigation measures: Establish fraud and corruption complaint and redress mechanisms. Also, institute third-party monitoring of field operations for construction activities. The World Bank would regularly review procurement management and require annual audits. Page 90 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) Ensuring the speed and quality of PSB construction in six districts may be challenging. Mitigation measures: Organize regular consultation with the construction industry to develop a process for good- quality and speedy delivery of PSBs. The procurement process would combine technical expertise and local participation to ensure that only competent and responsible contractors were selected. The supervision process would combine local beneficiary monitoring, third-party monitoring commissioned by BGSYS, and random spot-checks by Project management. M&E Implementation Assessment of services delivered. The GoB carried out a survey jointly with the Bank team to assess the impact of the services delivered,34 better understand the role of PSBs in achieving the Project’s PDO, and see how the presence of a local government office in the village can reduce the transaction costs associated with various types of services, improve the quality and operational efficiency of service delivery at the local level, and reinforce people’s trust and belief in local government. The assessment included an in-depth qualitative assessment based on interviews and focus group discussions with local communities and Panchayat officials (Box 1). Box 1. Assessment of Services Delivered by Rural Local Bodies in Bihar to assess impact The Project financed and supported the design and implementation of four assessment of services delivered by rural local bodies in Bihar. For the original survey the Project interviewed over 500 residents from a set of 33 local governments covered under the Project and a set of 12 non-Project local governments. The first survey (conducted in September 2017) confirmed the importance of institutions in improving the lives of people in rural Bihar. The key difference between the Project and non-Project local governments was the availability of a permanent functional office. For instance, to assess the functionality of the local government the survey asked about two of its most common services – issuance of birth and death certificates. The second, third, and fourth surveys (conducted in September 2018, April 2019, and October 2019) reconfirmed these findings by expanding its coverage and interviewing a larger set of people: 6479 people (4065 males and 2414 females) in 443 GPs (335 Project GPs and 108 non-Project GPs). The survey data provided critical information about how ordinary citizens rate accountability, responsiveness, and inclusiveness and repose trust in key institutions. A key driver of change was the creation of the fully functional Panchayat office buildings that the Project supported. The survey found that village residents were overwhelmingly proud of their Panchayats. They said that since PSBs have been built, government services are now available in their own villages and they no longer have to travel long distances to obtain birth and death certificates, claim pensions, and so on. The survey also confirmed that the new buildings allowed communities to host meetings to discuss local problems and to collectively undertake new development works for the benefit of the community—for example, issuing job cards to unemployed youth (including young women), constructing cowsheds and roads, planting trees, helping with electrification, and setting up a local marketplace in the Panchayat building. Significantly, in this traditionally patriarchal society, the inclusion of women-friendly facilities has helped boost women’s self-confidence and encouraged them to come forward and interact with government officials. This has ensured that their voices are heard during the planning and implementation of government projects. Overall, survey data and testimonials from the GP presidents indicate that more citizen-centric governance is resulting in more inclusive development for rural communities in Bihar. Environmental and Social Safeguards Compliance 34 Report on Assessment of Services Delivered by Rural Local Bodies in Bihar Page 91 of 92 The World Bank India - Bihar Panchayat Strengthening Project (P102627) The PSBs are not just buildings, but safe spaces for villagers. The PSBs constructed under the Project were envisaged not just as physical infrastructure/assets provided to the GPs, but also as a safe space for villagers – especially women and other vulnerable groups—to interact with their representatives and GP officials, perform duties that might be required of them, and access their entitlements ensured under the Constitution of India. With this consideration in mind, choosing an appropriate location for the PSBs in the villages was critical. Through extensive consultations with elected representatives of the GPs and other stakeholders in the villages, a few criteria for selecting the sites for PSBs were decided on: (i) the location of the PSB should preferably be in or around the center of the village, (ii) the site should be encumbrance-free, (iii) the location should be easily accessible by motorable roads, (iv) women and other vulnerable communities should not feel fearful or otherwise inhibited from accessing the PSB, and (v) given that several districts in Bihar are prone to floods, the PSBs ought to be located at higher levels so that they could, if needed, also serve as disaster relief centers or flood shelters for villagers living in the low-lying areas in the villages. It was also decided that in each PSB, one meeting-hall-cum-records-storage-room should be dedicated for women’s groups to have their meetings. On the basis of these criteria and with guidance from the World Bank team, BGSYS prepared a detailed checklist to assess the suitability of land selected for the construction of PSBs (see Annex 9, Case Study on Land Selection). Locations that failed to meet even one of the five criteria were rejected. Consequently, all the PSBs constructed under the project provide a safe and easily accessible space for all villagers and a dedicated meeting room for women to hold their meetings. Capacity building and hand holding of BGSYS played a key role in the success of the Project. During the restructuring of the project, the Bank team realized that the PSB construction speed was hindered by the client’s varying levels of interest in and understanding of environmental and social (E&S) risks. Consequently, it was decided to strengthen the capacities of BGSYS officials to manage E&S issues. Thus, the Bank team began providing intensive capacity-building support to BGSYS through formal trainings and workshops on E&S due diligence of sites for proper site selection, Environmental Health and Safety and Occupational Health and Safety standards and compliance, labor laws and compliance, and Environmental Management Plan compliance monitoring and reporting. Checklists to identify potential risks were developed, administered on a pilot basis, and fine-tuned. Templates for monitoring other E&S compliances and reporting on them were similarly developed. Thereafter, BGSYS used the checklists and risk mitigation options in selecting sites where PSBs would be constructed. E&S compliance monitoring and reporting mechanisms were also simplified and streamlined, resulting in more timely and better management of E&S issues. Recognizing BGSYS’s expertise in managing E&S issues, the GoB has designated BGSYS as a state-level resource centre for other GoB departments that require support on these issues. Page 92 of 92

16. [PDF] Public Finance Newsletter – numero XVI – PwC Intia

• Panchayatin osavaltion mukaan. Raj toimii, gram sabha -kokouksia on pidettävä kahdesta neljään kertaa vuodessa. Yleislääkäritasolla kehitetyn GPDP-suunnitelman tulisi olla...

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• Naiset voisivat oppia julkisista tukijärjestelmistä ryhmänsä jäseniltä, ​​vaikka ryhmää ei ole järjestetty nimenomaisena tavoitteena lisätä tietoisuutta...

• Naisten itseapuryhmiä (SHG) on käytetty yhä enemmän sosiaalisen, poliittisen ja taloudellisen voimaannuttamisen välineenä sekä palvelujen tarjoamisen alustana. Vaikka kasvava määrä kirjallisuutta osoittaa todisteita SHG:n myönteisistä vaikutuksista ...

18. "Anna miesten sanoa mitä heidän täytyy, minä teen mitä minun täytyy" - Indiaspend

• 28. lokakuuta 2020 · Vuonna 2006 pääministeri Nitish Kumarin johtama Biharin hallitus oli juuri ottanut käyttöön 50 %:n varauksen naisille osavaltion maaseutuhallinnossa...

• Patna: Ramvati Devi (nimi muutettu), 50, oli hämmästynyt ensimmäisen kerran, kun hän kuuli naisesta, joka johti kylää Biharissa sen mukhiyana (päänä). "En voinut edes ymmärtää, kuinka nainen voi johtaa. Miten...

19. [PDF] Tutkimustutkimus DPC:iden tehoista, toiminnoista ja suorituskyvyn puutteista...

• • DPC:n kokouksia tulisi pitää vähintään kahdesti vuodessa, ja kahden kokouksen välillä saa olla enintään kuusi kuukautta. Siitä pitäisi tehdä pakollinen ja...

20. [PDF] Kokoelma Gram Sabhaan liittyvistä määräyksistä eri osavaltioiden laeissa...

• Kokousten aika. Gram Sabha kokoontuu aika ajoin, mutta korkeintaan kolme kuukautta saa olla kahden kokouksen välillä. Kokoontuminen...

21. [PDF] Koulutusmateriaali yhteisötason sidosryhmille - Jal Jeevanin lähetystyö

• 25. heinäkuuta 2022 · On myös varmistettava, että kahden vierekkäisen ikkunaluukun välissä ei ole rakoja. ... kokouksia, Gram Panchayatin oletetaan kutsuvan kaksi muuta kokousta...

22. [PDF] jk"Vªh; vuqlwfpr tutkfr vk;ksx - National Commission for Scheduled Tribes

• Osavaltioiden hallitusten tulisi ryhtyä toimiin sääntöjen ja menettelyjen käyttöönottamiseksi, jotta Gram Sabhaille ilmoitetaan jokaisesta kylästä (ei Gram. Panchayatin tasolla) ...

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• Tietoisuuden puute korostuu, koska grampanchayatit eivät (1) järjestä gram sabha -kokouksia, joissa selitetään lain säännöksiä, (2) kutsu...

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• On todettu, että yli 5000 asukkaan panchayateilla on Panchayat Development Officer (PDO), jonka palkka on 12 000 rupiaa kuukaudessa...

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• Tässä yleissopimuksessa termillä "naisten syrjintä" tarkoitetaan mitä tahansa eroa, poissulkemista tai rajoituksia, jotka perustuvat...

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• Tämän lain nojalla vahvistetun työnantajan on maksettava tällaiselle työntekijälle palkkaa vähintään ... Gram Panchayat kahden kuukauden ajalta on näiden määrien summa ...

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• Yleislääkärit, joilla on enemmän kuin kaksi Swachhagrahia, varmistavat, että siellä on vähintään yksi nainen. ... SBM(G)-sanoman tulee varmistaa, että se ei leviä edes.