Review of Surveys Carried Out in Kottathara Panchayat - Wayanad District. D Narayana, S Haddad, and Smitha Aravind

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2 Review of Surveys Carried Out in Kottathara Panchayat - Wayanad District D Narayana, S Haddad, and Smitha Aravind October, 2003

3 1. Introduction India has a long and strong tradition of parliamentary democracy. But Indian democracy is highly centralized. Until recently, it was not mandatory to elect office holders below the state level at district, sub-district and village or municipal levels. Consequently, the Indian democracy was a parliamentary system at the central and state levels with bureaucratic governance at the lower levels. The 73 rd and 74 th Amendments to the Constitution of India in April 1993 provided the foundation for a comparable democratic decentralization in the rural and urban areas across the states of India. The Constitutional Amendments made a number of things mandatory. Each State had to constitute Local Self-Government Institutions (called Panchayats in rural areas) at the village, intermediate and district levels (except for states with less than two million population). The structure of the three tier system of local governance varied enormously across the states of India, and in Kerala, the lowest level of Panchayat called Gram Panchayat was vested with enormous powers to plan for economic development and social justice. Considerable resources were also devolved on the Panchayat to plan for development. Decentralized governance and planning for local development calls for an exhaustive database at the local level. Unfortunately, the Gram Panchayats in Kerala even now have only a building register, which was their staple, as building tax was the main source of Panchayat revenue in the erstwhile system and the line departments continue to collect information on a number of aspects of socio-economic life of the population. There is considerable duplication and compartmentalization in the activities of the departments and the information, though often collected with the active cooperation of the Panchayat, is not collated and made available to the Panchayats. In this context it is pertinent to document the efforts of the line departments in data collection, who collects what data, who uses it and for what purpose, has the Panchayat been able to make a beginning in data based decision-making etc. This study is a modest attempt in such documentation. With a view to analyze the nature, content and data utilization of the surveys by the various agencies, a survey of surveys was conducted in Kottathara Panchayat during the period February March But, the data collection process for the survey of surveys 2

4 continued up to September 7, 2003 as information about new surveys has been coming from the field continuously. Details were collected from the Grama Panchayat, District Literacy Mission, Kalpetta Block Panchayat, Village Extension Office and District Rural Development Agency. Reference period of the survey was Details collected in the survey of surveys General aspects of the survey: Details regarding the requesting authority, unit of observation, scope of the survey, sampling proportion, number of units surveyed, recurrence, periodicity etc. Data collection details: Number of surveyors, qualification of surveyors, training of surveyors, number of supervisors, selection of surveyors, person responsible for data collection, remuneration of surveyors, duration of data collection etc. Questionnaire analysis: Total number of questions, number of questions per category, type of questions etc. Data collection procedure: Pre-testing, collection of filled forms. Data processing and data utilisation. Summary of the Survey Major surveys conducted in the Panchayat during the period the following. Survey Identity Name of the survey Requesting Unit of Scope No. authority observation 1. Kottathara Grama Panchayat Rural Development Households Census janakeeyasoothrana padhathi - Department Household survey BPL census 1998 State Planning Households Census Board 3. Health Literacy Programme District Literacy Tribal colonies Census Wayanad District- Total Scheduled Mission, Wayanad Tribe Drinking Water And Sanitation Project Total sanitation survey-2002 District Rural Households and Census Development Agency public places 5. Sarva Siksha Abhiyan, Kerala Board of education Households Census household survey ICDS yearly surveys (5 rounds) Social Welfare Households Census Department 7. Health survey Department of Household Census Health 8. BPL census 2002 Department of Household Census Rural Development 3

5 Details of data collection, consolidation and utilization Survey Surveyors No. 1. Kudumbasree Members 2. Government employees 3. Literacy mission preraks 4. Kudumbasree members 5. Kudumbasree members 6. Anganwadi teachers 7. Junior Public Health Nurses 8. Kudumbasree members Nature of Data utilization Training providers No training DRDA District Literacy Mission DRDA District Institute of Education and Training No training as it is repetitive No training DRDA Pre-testing Data consolidation Data utilization Panchayat staff Village extension officer Supposed to be done by the literacy mission staff Panchayat staff and village extension officer State level survey and consolidation details are not available Not used for any planning by any agency Used for identifying households Below Poverty Line The process is not over and the authorities are not sure about its utilization Not yet used for planning Purpose is to find out the educational status of each child ICDS Supposed to be helpful in the planning of child development programmes Computerized consolidation Village Extension Officer Consolidation process not yet completed Not completed- for identification of BPL households The review of surveys reveals that most of the data collected through the different surveys are poorly utilized and not even consolidated and analyzed by the departments. Some situations are even worse. For example total sanitation survey was conducted with an objective to identify the households without sanitation facilities and to understand the general condition of the public places and utilities. The plan was that the data collected will be helpful in planning the projects, project selection, prioritization and also its impact assessment as the Panchayat will have a database about the condition of the Panchayat before the implementation of the projects. But, the applications for sanitary latrines were invited even before the completion of the survey and its analysis. Hence, it resulted in poor selection of the beneficiaries who have better living conditions with 4

6 regard to sanitation facilities. This is a typical example of the unutilized data and the unnecessary surveys done without clearly defining the purpose. Data/ Survey multiplication Data collection for ICDS yearly survey of the year 2003, health survey conducted by the health department and the Below Poverty Line survey 2002 were simultaneously conducted in Kottathara Panchayat during the period of May July It was a clear case of different line departments planning separate surveys simultaneously for collecting more or less the same data. Such efforts end up with the multiplication of surveys and waste of resources including manpower and time. The data collected are more or less the same in each survey. Being an extensive survey of the households, Below Poverty Line survey covers most of the general characteristics and backgrounds of the households from which it is easy to draw the basic data needed for different purposes and programmes implemented through the department of social welfare, department of education, department of rural development, department of tribal development etc. Above all, this kind of approach from different agencies has resulted in developing survey fatigue among the public. Role of Panchayat in conducting surveys Most often, the Grama Panchayat performs the role of the mediator in the data collection process. They are supposed to select the surveyors, distribute survey forms, collect the filled in questionnaires, and sometimes consolidate it manually without taking any measure for quality control and hand over the collected data to the requesting authorities. The role, which Panchayat performs in the case of surveys, can be termed as of a Mailbox collecting information from the field and sending it to the requesting authorities. Generally, the Panchayat has very little access to the information collected although it is through the Panchayat. Sometimes, the Panchayat is not even informed about the surveys and the type of data collected while the survey itself is to be conducted in the Panchayat area by the Panchayat staff. For example, the Panchayat staff were not able to give any details about the health survey and the literacy mission survey. Even they were not informed of the purpose of data collection and the nature of data collected. Once the data collection process (sometimes consolidation also) is over, the Panchayat people are not even informed about where the data is stored, what is done with this data and how it will help in the development programmes implemented through the various departments. The Panchayat does not keep any 5

7 record of the surveys to know the type of surveys that were conducted in the Panchayat area. They were not sure about the surveyors involved in various surveys and were trying to calculate it very roughly in consultation with one another in the Panchayat. The best example of the right hand not knowing what is done by the left hand is the total sanitation survey. The data collection for the total sanitation programme was coordinated by the Panchayat, also the task of identifying the beneficiaries was vested with the Panchayat, but the data collected through the survey for the very same purpose was not accessible to the Panchayat. General Observations No records with regard to surveys were kept in any office. Only the person who was involved in the survey knew the details of the survey. In most of the cases, there was not a designated person who can be identified as the in charge person for the survey. The survey forms were not available in the concerned offices. Data consolidation is very rare and also poor. No computerization of the data. Filled in survey forms after completion of data collection were often kept very carelessly near the windows, corner of the room etc. Contradictory information was provided by different persons and different offices with regard to the same survey. Even the purpose of the survey was not clear to surveyors and Panchayat. Most of the requesting authorities simply instructed the Panchayat to conduct the survey without giving any orientation. No pre-testing was conducted in most of the cases. Data utilization is hardly ever done. Most of the surveys included the very same questions resulting in multiplication of surveys. Surveyors were the same in all the surveys. Did not follow any criteria for selecting the surveyors. Panchayat or the offices responsible for the survey do not know where the data are kept and whether it is used for any purpose. 6

8 Examples of the problems encountered during data collection In the Panchayat office, the Head clerk was the key informant who was very cooperative and informative. But, he had to discuss with the other staff about each case, as they don t have any records of the surveys carried out in the Panchayat. But, he was transferred to another Panchayat during the time of data collection for the survey of surveys. As the other staff members in the Panchayat were not sure about details of the surveys the source of information suddenly vanished. The district literacy mission coordinator was not sure about the purpose of survey conducted by the district literacy mission. The survey conducted by the Grama Panchayat as per the instruction of the State Planning Board also included an energy survey as annexure. But none of the surveyors could collect the information, as the questions were poorly framed and there was hardly any pre testing of the questionnaire. Panchayat staff were saying that during the reference period around surveys were conducted in the Panchayat, but they could not list out all of them. No record was kept in the Panchayat with regard to the surveys conducted in the Panchayat. BPL census includes seven types of forms, but some of the forms were not available in any office. Total sanitation survey had two parts - household sanitation and public sanitation facilities. The purpose of the survey was to identify the households and areas, which need immediate attention. But, even before the completion of the survey, applications for sanitary latrine was invited and also sanctioned. This resulted in poor selection of the beneficiaries, as they already had sanitary latrines. The Panchayat staff, ward members and also the members of kudumbasree units informed this. Panchayat and village extension office had different opinions with regard to the duration of the BPL census. Result of the survey As mentioned above, the data collected from different sources for the survey of surveys differ in case of each and every survey, many of which are also incomplete; resulted in a situation where many relevant pieces of information regarding the surveys was not available. 7

9 Let us illustrate some of the problems of the surveys with an example, namely that of the Kottathara Grama Panchayat Janakeeyasoothrana Padhathi ( ). The State Planning Board suggested the survey with an objective to identify the roles and responsibilities of different working groups based on the local situation in the Panchayat. It was said to be a repetitive one, but not mandatory for all the Panchayats. Kottathara Panchayat staff members are not clear about the recurrence of survey in the Panchayat. The data collection was done by the kudumbasree members, and the Panchayat does not have the actual number of surveyors involved in the work. It was calculated as an average of total households / survey forms per surveyor. The data collection was the responsibility of elected ward members. Data collection was carried out without adopting any specific supervision methods. Also no specific measure was taken to control the quality of the survey. The surveyors were asked to collect the details by giving the survey forms without any proper orientation or training. Additional survey on energy was added as an appendix to the questionnaire, which was requested by the department of energy. But data collection was not possible because the population did not reveal the facts. Ward members supplied the survey forms to surveyors and collected them back, from kudumbasree units. Collected forms are stored in the Panchayat office under the responsibility of Panchayat secretary. Responsibility of consolidation was vested on Panchayat board. Time taken for consolidation was about one week. It was manually consolidated. Even ward wise consolidation was done by the Panchayat staff themselves. No reports were prepared and also there was no presentation of results in any public body. Consolidation sheet was given to the Panchayat board soon after consolidation. Nobody including the Panchayat staff and Panchayat board used the results of survey. It was not used for any kind of planning, monitoring and evaluation. 8

10 Questionnaire for Kottathara Panchayat Janakeeyasoothrana Padhathi household survey Sl. No. Nature of Questions No. of questions 1 Household Identification details 8 2. Individual details of family members 6 3. Employment aspects Educational aspects Health status of members 9 7. Land possession/ assets Type of house 7 9. Sanitation facilities 1 10 Access to Drinking water Cooking fuel Lighting/ electricity Domestic animals Access to roads Income of the household from different sources Debts details Ownership of vehicles Household appliances Regular Assistance from government Participation in gramasabha Participation in community organizations Preferences in cultivation Participation in voluntary activities Suggestions on local development activities 1 Total 147 9

11 Conclusions The Gram Panchayat does not have a complete list of households residing in the Panchayat. The only department, which has a list of households, is the health department, but the list cannot be considered complete. Most of the surveys carried out by line departments and agencies are census of households. But the department uses only a small fraction of the information. There is practically no effort made by any department to reconcile the data with other sources. The lack of a baseline database has not allowed for any inter temporal comparisons as well. This is a major lacuna considering the fact that many censuses are repeated at regular intervals. Tracing households in time, for example in crossing poverty line, would have thrown very important policy lessons. The amount of manpower and resources wasted is stupendous and it is time a database is built up at the Gram Panchayat level, first of all for use by the Panchayat Board for local planning and service provision and for easy reference by other departments. 10