Local governance in Kerala

Kerala is a state in the southernmost part of India. Kerala, with appreciative development indicators comparable to developed countries, has been experimenting with decentralization and participatory local democracy, ultimately aimed at realization of the constitutional goal of establishing genuine "institutions of local self government" since the enactment of Kerala Panchayat Raj Act & The Kerala Municipality Act in the year 1994.

District Wise Data

Kerala has 941 Village Panchayats (Grama panchayats), 152 Block Panchayats and 14 District Panchayats; in the urban areas, it has 87 Municipalities and 6 Corporations, a total of 1200 Local Self Government Institutions. The list of number of local government institutions from the period 1995-2015 is given below:[1]

Local body type	1995	2000	2005	2010	2015
Grama Panchayat	990	991	999	978	941
Block Panchayat	152	152	152	152	152
District Panchayat	14	14	14	14	14
Municipality	55	53	53	60	87
Municipal Corporation	3	5	5	5	6

The President of the Panchayat Raj Institutions(PRIs) has been declared as the executive authority. The senior most officials of various departments brought under the control of the Panchayat Raj Institutions have been declared as ex-officio Secretaries for that subject. The Panchayats have full administrative control including powers of disciplinary action over its own staff as well as staff transferred to it. To encourage a healthy relationship between officials and elected Members, the Act prescribes a code of conduct that lays down principles of polite behavior, respect for elected authorities, and protection of the freedom of the civil servant to render advice freely and fearlessly. All these features are there in the Kerala Municipality Act as well.

The Kerala Panchayat Raj Act and Kerala Municipalities Act 1994 were thoroughly restructured in 1999 and several innovative features laying strong legal foundation for evolving genuine institutions of Local Self Government were built in. The list of various local self governments in the state of Kerala are given below:

Kasaragod district

Block Panchayats (6)[2]

Karadukka
Manjeshwaram
Kasaragod
Kanhangad
Parappa
Neeleshwaram

Grama Panchayats (38) [3]

Kumbadaje
Bellore
Karadka
Muliyar
Delampady
Bedadka
Kuttikol
Manjeswaram
Vorkady
Meenja
Mangalpady
Paivalige
Puthige
Enmakaje
Kumbala
Badiadka
Mogral Puthur
Madhur
Chemnad
Chengala
Udma
Pallikara
Ajanur
Pullur Periya
Madikai
Kodom Belur
Kallar
Panathady
Balal
Kinanur karinthalam
West Eleri
East Eleri
Kayyur cheemeni
Cheruvathur
Valiyaparamba
Padne
Pilicode
Thrikaripur

Kannur district

Block Panchayats (11) [4]

Koothuparambu
Peravoor
Panoor
Edakkad
Erikoor
Payyannur
Kalyasseri
Thaliparambu
Kannur
Iritty
Thalassery

Grama Panchayats (71)[5]

Kunjimangalam
Ramanthali
Kankol - Alappadambu
Karivellur - Peralam
Eramom - Kuttoor
Peringom - Vayakkara
Cherupuzha
Cheruthazham
Ezhom
Madayi
Mattool
Cherukunnu
Kalyasseri
Kannapuram
Narath
Pattuvom
Chengalayi
Kurumathur
Pariyaram
Chapparapadavu
Naduvil
Udayagiri
Alakkode
Kadannappally - Panappuzha
Erikoor
Eruvessi
Malappattam
Payyavur
Kuttiyatoor
Mayyil
Padiyoor
Ulickal
Pappinissery
Chirakkal
Valapatanam
Azheekode
Kolacheri
Kadampur
Chempilode
Munderi
Peralassery
Anjarakandi
Muzhuppilangad
Dharmadam
Eranjoli
Pinarayi
New Mahee
Vengad
Kottayam
Thruppangottur
Chittariparambu
Kunnothuparambu
Mangattidam
Pattiyam
Kathiroor
Chokli
Mokeri
Panniyannur
Aaralam
Ayyankunnu
Keezhallur
Thillankeri
Koodali
Payam
Kanichar
Kelakam
Kottiyoor
Muzhakkunnu
Kolayad
Maloo
Peravur

Wayanad district

Block Panchayats (4)[6]

Sulthan Betheri
Mananthavadi
Kalpatta
Panamaram

Grama Panchayats (23)[7]

Vellamunda
Thirunelli
Thondernad
Edavaka
Thavinhal
Nenmeni
Noolpuzha
Ambalavayal
Meenangadi
Vengapally
Pozhuthana
Vythiri
Thariyode
Meppadi
Muppainad
Kottathara
Muttil
Padinjarathara
Panamaram
Kaniyampatta
Poothadi
Pulppalli
Mullankolly

Kozhikode district

Block Panchayats (12)[8]

Vatakara
Thuneri
Kunnummal
Thodannur
Melady
Perambra
Balussery
Koduvally
Panthalayani
Chelannur
Kunnamangalam
Kozhikode

Grama Panchayats (70)[9]

Azhiyur
Chorode
Eramala
Onchiyam
Chekiad
Purameri
Thuneri
Valayam
Vanimel
Edacheri
Nadapuram
Kunnummal
Velom
Kayakkodi
Kavilumpara
Kuttiadi
Maruthonkara
Narippatta
Ayancheri
Villiappally
Maniyur
Thiruvallur
Thurayur
Keezhariyur
Thikkodi
Meppayur
Cheruvannur
Nochad
Changaroth
Kayanna
Koothali
Perambra
Chakkittappara
Balussery
Naduvannur
Kottur
Ulliyeri
Unnikulam
Panangad
Koorachundu
Chemancheri
Arikkulam
Moodadi
Chengottukavu
Atholi
Kakkodi
Chelannur
Kakkur
Nanmanda
Narikkuni
Thalakkulathur
Thiruvambadi
Koodaranhi
Kizhakkoth
Madavoor
Puthuppadi
Thamarassery
Omassery
Kattippara
Kodancherry
Kodiyathur
Kuruvattur
Mavoor
Karassery
Kunnamangalam
Chathamangalam
Peruvayal
Perumanna
Kadalundi
Olavanna

Malappuram district

Block Panchayats (15) [10]

Nilambur
Kondotty
Wandoor
Kalikkavu
Areecode
Malappuram
Perinthalmanna
Mankada
Kuttipuram
Tanur
Tirur
Vengara
Tirurangadi
Ponnani
Perumpadappu

Grama Panchayats (94) [11]

Vazhikkadavu
Pothukal
Edakkara
Moothedam
Chunkathara
Chaliyar
Cherukavu
Pallikkal
Vazhayur
Vazhakkad
Pulickal
Muthuvallur
Chelembra
Wandoor
Thiruvali
Mampad
Poroor
Pandikkad
Thrikkalangode
Kalikkavu
Chokkad
Karuvarakundu
Thuvoor
Amarambalam
Karulayi
Edapatta
Areecode
Oorngattiri
Kavanur
Keezhuparambu
Kuzhimanna
Cheekode
Pulpatta
Edavanna
Anakkayam
Morayur
Ponmala
Pookottur
Othukkungal
Kodur
Aliparambu
Elamkulam
Melattur
Keezhattur
Thazhekkad
Vettathur
Pulamanthole
Angadipuram
Kuruva
Koottilangadi
Puzhakkatiri
Moorkkanad
Makkaraparambu
Mankada
Athavanad
Edayur
Irumbiliyam
Marakkara
Kuttipuram
Kalpakancheri
Ponmundam
Cheriyamundam
Ozhur
Niramaruthur
Thanaloor
Valavanoor
Perumanna Clari
A.R. Nagar
Parappur
Thennala
Vengara
Kannamangalam
Oorakam
Edarikode
Nannambra
Munniyoor
Thenjipalam
Vallikunnu
Peruvallur
Purathur
Mangalam
Thrippangode
Vettom
Thalakkad
Thirunavaya
Thavanoor
Vattamkulam
Edappal
Kaladi
Alangode
Maranjeri
Nannamukku
Perumpadappu
Veliyangode

Palakkad district

Block Panchayats (13) [12]

Grama Panchayats (88) [13]

Anakkara
Chalisseri
Kappur
Nagalassery
Pattithara
Thirumittakkode
Thrithala
Koppam
Kulukkallur
Muthuthala
Ongallur
Thiruvegapppura
Vilayoor
Paruthoor
Ambalappara
Ananganadi
Chalavara
Lekkidi Peroor
Vaniyamkulam
Thrukkadeeri
Vallappuzha
Nellaya
Kadmpazhipuram
Karimpuzha
Sreekrishnapuram
Vellinezhi
Karakurissi
Thachanattukara
Pookottukavu
Alanallur
Karimpa
Kottopadam
Kumaramputhur
Kanjirapuzha
Thachampara
Thenkara
Agali
Puthoor
Sholayoor
Pirayiri
Mundoor
Kongad
Keralassery
Mannur
Mankara
Parali
Kottayi
Kuthanoor
Kuzhalmannam
Mathoor
Peringottukurissi
Thenkurissi
Kannadi
Eruthempathi
Kozhinjampara
Nalleppilly
Perumatty
Vadakarapathy
Elappulli
Polppulli
Kollamkode
Koduvayur
Muthalamada
Puthunagaram
Vatavannur
Peruvempu
Pattancheri
Ayiloor
Nelliyampathy
Elavancheri
Pallassena
Melarkode
Nenmara
Vandazhi
Akathethara
Malampuzha
Marutha Road
Puthupariyaram
Puthussery
Kodumpu
Alathur
Erimayur
Kavassery
Kizhakkanchery
Puthukkode
Tharoor
Vadakkanchery
Kannambra

Thrissur district

Block Panchayats (16) [14]

Chavakkad
Chowannur
Wadakkanchery
Pazhayannur
Ollukkara
Puzhakkal
Mullassery
Thalikulam
Mathilakam
Anthikkad
Cherpu
Kodakara
Irinjalakuda
Vellangallur
Mala
Chalakudy

Grama Panchayats (86) [15]

Kadappuram
Orumanayur
Punnayur
Punnayurkulam
Vadakkekad
Choondal
Chowannur
Kadavallur
Kandanassery
Kattakampal
Porkulam
Kadangode
Velur
Desamangalam
Erumapetty
Mulloorkara
Thekkumkara
Varavoor
Chelakkara
Vallathol Nagar
Kondazhy
Panjal
Pazhayannur
Thiruvilwamala
Madakkathara
Nadathara
Pananchery
Puthur
Adat
Avanoor
Kaiparambu
Mulamkunnathukavu
Tholur
Kolazhy
Elavally
Mullassery
Pavaratty
Venkidangu
Engandiyur
Vadanappilly
Thalikulam
Nattika
Valappad
Edathiruthy
Kaipamangalam
Mathilakam
Perinjanam
Sreenarayanapuram
Edavilangu
Eriyad
Anthikad
Thanniam
Chazhoor
Manalur
Arimbur
Avinissery
Cherpu
Paralam
Vallachira
Alagapanagar
Kodakara
Mattathur
Nenmanikkara
Pudukkad
Thrikkur
Varantharappilly
Karalam
Kattur
Muriyad
Parappukkara
Padiyur
Poomangalam
Puthenchira
Vellangallur
Velukkara
Aloor
Annamanada
Kuzhur
Mala
Poyya
Kadukutty
Kodadssery
Koratty
Melur
Pariyaram
Athirappilly

Ernakulam district

Block Panchayats (14) [16]

Alangad
Angamaly
Edappally
Koovappady
Kothamangalam
Mulanthuruthy
Muvattupuzha
Palluruthy
Pampakuda
Parakkadavu
Paravur
Vadavucode
Vazhakulam
Vypin

Grama Sabha

Kerala has created a three-tier in the form of Grama Sabhas equated with the electoral constituency of a Village Panchayat All the electors of the Ward are members of the Grama Sabha. It is an attempt to create a new set up for direct democracy – involving the people of the ward. The Grama Sabhas have been given clear rights and responsibilities with absolute powers for identification of beneficiaries, strong advisory powers for prioritizing developmental needs and wide powers of social audit.[17]

Functions of local governments

The 11th Schedule of the Constitution of India lists out developmental areas where local governments should have a role in planning for economic development and social justice and in the implementation of such plans. Unlike many other States, Kerala State defined the functional areas of the different tiers of local governments so precisely. In infrastructure and management of public institutions, the functional differentiation is sharp and clear, but in productive sectors the functions could not be earmarked clearly for each tier. There is a clear recognition that there is a role-range for local governments as Agent, Adviser, Manager, Partner and Actor – with the objective being to reduce the agency role and expand the autonomous – actor role. The Kerala Act classifies functions as mandatory functions, general functions and sector-wise functions. in its schedules.

According to a study Dr Martin Patrick (Chief Economist) CPPR, "Gram panchayats are performing better when compared to their performance three decades earlier but they are still not meeting expected standards in generating own funds with which they can plan their own special projects, s Steps need to be taken to generate own assets by collecting more non-tax revenue, particularly collecting potential building and professional tax"[18]

Committee System

All Village and Block Panchayats have three Standing Committees and the District Panchayat five Standing Committees. The Standing Committees are constituted in such a way that every Member of the Panchayat gets a chance to function in one Standing Committee or the other. Each Standing Committee is assigned certain subjects and these Committees are expected to go into the subject areas both at the planning and implementation stage in great detail. For the purpose of co-ordination, a steering committee is constituted consisting of the President and Vice President of the Panchayat and the Chairpersons of Standing Committees. In addition, there are Functional Committees for different subjects which can include experts and practitioners and the Panchayats are free to constitute Sub Committees to assist the Standing Committee or Functional Committee. There is also provision for constitution of Joint Committees with neighbouring Local Governments.

The Role of State Government

The amended Kerala Panchayat Raj & Municipality Acts drastically reduces the powers of direct governmental control over Panchayat Raj Institutions. While Government can issue general guidelines regarding national and State policies it cannot meddle in day-to-day affairs or individual decisions. The Government can cancel resolutions of the Panchayat only through a process and in consultation with the Ombudsman or Appellate Tribunal according to the subject matter of the resolution. Similarly a Panchayat can be dissolved directly by government, only if it fails to pass the budget or if majority of its members have resigned. In all other cases a due process has to be followed and the Ombudsman has to be consulted before dissolution takes place. This is a unique feature which does not exist even in Center-State relations.

Independent Oversight Institutions

To reduce governmental control and foster growth of self-government as envisaged in the Constitution, the Act provides for creation of independent institutions to deal with various aspects of local government functioning. They are listed below:-[19]

The State Election Commission. The Election Commission has been given powers which go beyond those required for the conduct of elections. It is empowered to involve in delimitation of Wards as a member of the Delimiation Committee. Delimitation of wards was formerly done through the executive. The Commission has been given powers to disqualify defectors.
The State Finance Commission. This has been given the mandate as required by the Constitution. The first SFC was constituted in 1994 and the second SFC in 1999.
Ombudsman for Local Governments. This is a high power institution which has been given vast powers to check malfeasance in local governments in the discharge of developmental functions.
Tribunal for Local Governments. These are to be constituted at the Regional/District level to take care of appeals by citizens against decisions of the local government taken in the exercise of their regulatory role like issue of licence, grant of permit etc.
State Development Council. This is headed by the Chief Minister and consists of the entire Cabinet, Leader of opposition, Vice-Chairman of the State Planning Board, the Chief Secretary, all the District Panchayat Presidents who are also Chairperson of District Planning Committee and representatives of other tiers of local governments. This institution is expected to take the lead in policy formulation and in sorting out operation issues.

Extent of Decentralization

The extent of decentralization and its nature can be gauged from the following facts:

In the Health sector all institutions other than medical colleges and big regional speciality hospitals have been placed under the control of the local governments.
In the Education sector, in rural areas the high schools and upper primary schools have been transferred to the District Panchayats and the primary schools have been transferred to village Panchayats; in urban areas, all schools have been transferred to the urban local governments.
The entire responsibility of poverty alleviation has gone to the local governments; all the centrally sponsored anti-poverty programmes are planned and implemented through them.
As regards Social welfare, barring statutory functions relating to juvenile justice, the entire functions have gone to local governments. The ICDS is fully implemented by Village Panchayats and Urban Local Governments. Care of the disabled, to a substantial degree has become a local government responsibility.
In the Agriculture and allied sectors, the de facto and de jure local government functions are Agricultural extension including farmer oriented support for increasing production and productivity, Watershed management and minor irrigation, Dairy development, Animal Husbandry including veterinary care & Inland fisheries.
Barring highways and major district roads, connectivity has become local government responsibility.
The whole of sanitation and most of rural water supply have moved over to local governments.
Promotion of tiny, cottage and small industries is mostly with the local governments.
All the welfare pensions are administered by the local governments.[20]

Present scenario

In short, most of the responsibilities relating to human and social development have been passed down to local governments. Welfare and poverty reduction are now largely dependent on local governments who also have considerable area of responsibility in the primary sector.

Local infrastructure creation is also largely in the domain of Panchayats and Nagarapalikas. Critical institutions of public service like hospitals, schools, anganwadis, veterinary institutions, Krishi Bhawans, hostels for Scheduled Castes and Care institutions for different disadvantaged groups have been transferred to local governments on as is where is condition. The responsibility of local governments which are typical of a non-plan nature in respect of these institutions include -

routine and heavy maintenance of infrastructure
upkeep and maintenance of equipment
replenishment of consumables
administrative charges relating to telephone, water, electricity, fuel etc.
noon-meal cost in schools.

Proposed reforms

The Second Administrative Reforms Commission, set up on 31 August 2005 to prepare a detailed blue print for revamping the public administration system, suggested measures to achieve a proactive, responsive, accountable, sustainable and efficient administration at all levels of the country in the country, including the local government system, submitted its sixth report exclusively on local governance under the title Local Governance: An Inspiring Journey into the future . A brief summary of the report is there in the article[21]

Kerala Grama Panchayat Association

Kerala has a Grama Panchayath Association, formed under the Kerala Government Order No 85191/pt.sppl.1/66 & R D D on 29 December 1966 as an association of Grama Panchayaths. All Grama Panchayaths are affiliated to the Grama Panchayath Association. The Kerala Grama Panchayath Association has responsibility in strengthening decentralization process and local governance in Kerala. For the purpose, the association organizes necessary research activities, Studies, action Researches, some study models and conduct discussions, seminars, training etc., on issues confronting panchayaths in the state.

E-Governance

E-District

Kerala E-District project intends to provide Government services to citizens through Common Service Centers(CSC) which are easily accessible. Services from different departments are brought under one umbrella at any CSC. Some of the services are also made available through online portal. It utilizes backend computerization to e-enable the delivery of services and ensures transparency and uniform application of rules. The project involves integrated and seamless delivery of services to public by automation, integration and incorporating Business Process Re-Engineering(BPR) where ever required. In a nutshell E-District is a tailor-made program for minimizing effort and time to provide prompt and effective services to the public.

E-Gram

Honourable Chief Minister of Kerala Shri. Oommen Chandy has declared Pampakuda panchayat, Ernakulam as the first digital panchayat in Kerala on 28 June 2014. Pampakuda panchayat has achieved this feat by digitalizing over 18,000 citizens' survey data with the help of E-Gram, a software built by a private IT company operating in Technolodge Piravom.

E-Gram is a cloud based platform built exclusively for Gram Panchayats and is a data analytic tool which stores and analyses all information regarding people in a panchayat. E-Gram generates real-time analytics on population, literacy rate, male-female ratio, poverty threshold, internet penetration, access to electricity, access to clean water, healthcare etc. E-Gram's objective is to make panchayats more efficient, transparent and symbols of modernity by leveraging ICT at the cutting edge level to ensure transparency and accountability in their functioning through disclosure of information, social audit, efficient delivery of services and improving internal processes and management of panchayats. E-Gram has built-in SMS functionality which helps interact with people faster. This helps panchayats to roll out benefits, announcements, or even acknowledgement receipts for certificates in Malayalam. This automated SMS service can also send reminder SMSs to citizens who are due to pay their taxes.

References

"Local body institutions in Kerala (1995-2015)". lsgkerala.gov.in. Retrieved 12 March 2020.
"Block Panchayats of Kasaragod". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Kasaragod". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Kannur". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Kannur". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Wayanad". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Wayanad". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Kozhikode". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Kozhikode". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Malappuram". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Malappuram". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Palakkad". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Palakkad". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Thrissur". lsgkerala.gov.in. Retrieved 11 March 2020.
"Grama Panchayats of Thrissur". lsgkerala.gov.in. Retrieved 11 March 2020.
"Block Panchayats of Ernakulam". lsgkerala.gov.in. Retrieved 11 March 2020.
Status of Grama Sabha / Ward Sabha in Kerala
"Kerala panchayats performing better but not generating adequate funds: Study – Times of India". The Times of India. Retrieved 2 October 2017.
Local Governments in Kerala : Reforms, Decentralized Development & Local Government Finances, Mulagunnathukavu, Kerala Institute of Local Administration, 2003 Contents
See Economic Review 2001 of the Kerala State Planning Board
See K Rajasekharan: Reforming Local Governance in India : A New Paradigm for Development In T M Joseph, Ed : New Governance Paradigm : Issues in Development P327 - 346, Delhi, Kalpaz Publications, 2008