Panchayat Raj Institution – PILOTS –– Implementation of the Pilots in the APRPRP & DPIP Districts by SERP   – Orders – Issued.



G.O.Ms.No.323.                                                   Dated:27.10.2004.

                                                                             Read the following:


1. Lr.No: 9386/CPR&RE/C1/2004 from the Commissioner, PR&RE,   


2. Lr.No:031/CEO and SPD., D.O.Lr.No.030/SERP/PRI2003.



O R D E R:


        In furtherance of the government of Andhra Pradeshs’ strategy of Decentralized approaches to poverty reduction in a holistic manner, a pilot intervention to strengthen and empower the Panchayat Raj Institutions (PRIs) was initiated. The pilot will strengthen the Panchayat Raj Institutions by increasing their downward accountability to rural communities and responding to the needs of the poor through models of convergence between PRIs and Community Based Organisations (CBOs) of Self Help Groups (SHGs). The pilot is being operationalised through Andhra Pradesh Poverty Reduction Project APRPRP (VELUGU),  under implementation by Society for Elimination of Rural Poverty (SERP).


2.       The goal of the PRI- Pilot project is  to increase the level of participation of the people from the grassroots in Panchayat Raj Institutions and ensuring democratic decision making and transparent implementation of the decisions so made , through prescribed processes. In the process the PRIs will be sensitized to be pro-poor in their decision making by ensuring involvement of CBOs (Self Help Groups) down from ward level micro planning interventions.



3.          The Society for Elimination of Rural Poverty (SERP) along with the Commissioner PR & RE as nodal agency will implement this project among the selected mandals in the entire state of Andhra Pradesh in both the District Initiative Project (DPIP) and Rural Poverty Reduction Project (RPRP) Districts, as per the following guidelines.




Selection of Mandals

Twenty two Mandals at the rate of one Mandal from each district and one Mandal from each of the 8 ITDA districts and two “Chenchu” inhabited Primitive Tribal Groups (PTGs) totaling 32 mandals (annexure- I) shall be selected for implementing this pilot as per the following criteria.


a)     Mandals having the highest SC + ST population in the district.

b)     The second Mandal in ITDA district was selected on the basis of highest percentage of SC population.


Selection of Gram Panchayats

10 Gram Panchayats from each Pilot Mandal selected shall be identified for implementation of the pilot  based on the following criteria


a) Poorest of the Poor (PIP)         - 50% weightage

b) SC/ST Population                              - 30% weightage

c) Female literacy                      - 10% weightage

d) Tax Compliance                             - 10% wieghtage


A committee comprising of the District Collector, the Project Director, VELUGU / DRDA, the Chief Executive Officer, Zillah Parishad as members and the District Panchayat Officer as member convener shall be constituted for selection of 10 Gram Panchayats in the 32 identified Mandals by following the above criteria and willingness to participate in the Pilot by participating GPs to follow the prescribed processes.


Memorandum of Understanding with SERP

The Panchayats so selected shall participate in pilot project by entering into an MOU with the District Management Unit (DPMU / TPMU) of SERP(VELUGU) at the district level. The DPMU/TPMU will provide a formula based block grant to each Gram Panchayat and Mandal Parishad as untied fund to implement identified needs of the ward/village based on micro level planning with tied process. The participating Mandals and Gram Panchayats will follow the prescribed process and pilot guidelines and leverage all sources of their existing funds with the project funds. SERP will facilitate the technical appraisals of the proposals identified at Gram Panchayat / Mandal Parishad level.


Constitution of Steering Committee, Resource Team and Core Team:


A steering committee, a resource team and a core team that implement the programme shall be constituted.



Steering Committee:

A Steering committee under, the chairmanship of Principal Secretary, Panchayat Raj & Rural Development shall be constituted with Commissioner, Panchayat Raj & Rural Employment as member convener. The other members of the committee include Secretary, Panchayat Raj & RWS, Chief Executive Officer, SERP, Commissioner, Rural Development, Commissioner, Tribal Welfare, Commissioner, APARD and Keith McLean, Economics World Bank as network coordinator. The committee will guide and support the pilot interventions by meeting at least once in three months.


Resource Team:

 A Resource team with the subject matter experts in the concerned field with the participating stake holders shall be constituted to support the core team as and when required and give technical inputs as per the pilot    requirements viz. module development, M & E frame work, etc.


Core Team:

 A Core team will implement the pilot. The person I/C of the Pilot in SERP will anchor, co-ordinate, and support in the implementation of the pilot from SERP. The Key functionaries viz. SPM-SERP; Additional Commissioner-CPR; Senior faculty, the person I/C PRI- APARD; Joint Director, PRI Desk- CWS; Programme Officer I/C PRI Pilots- PRIA; Professor & Head, Decentralised Planning- ISEC, Banglore and Keith McLean- World Bank, are the members of the team. The Core team would support all the measures including pilot processes; module development, co-ordination, monitoring and regular follow up actions both from the project as well as from the outside coordination.


Capacity Building for stakeholders

The participating Gram Panchayats and Mandal Parishads shall undergo compulsory intensive capacity building exercise for all their elected representatives including the officials and the CBOs, Project staff with the additional functional literacy component for the non-literate elected members.


Role of APARD and ISEC:

Andhra Pradesh Academy of Rural Development shall support the capacity building components of the all the officials both from the PRI and line departments, and Project functionaries by evolving suitable training modules in consultation with the Commissioner, Panchayat Raj & Rural Employment, and the Core Team constituted for the pilots in Society for Elimination of Rural Poverty.

The Institute of Social and Economic change (ISEC), Banglore will take up the responsibility in Micro planning interventions in the pilots and supervise its implementation along with the APARD, Commissioner PR&RE department, Partner NGOs, and the DPMU at the District, Mandal and Gram Panchayat level.

Role of NGO

Centre for World Solidarity (CWS) and Society for Participatory research in Asia (PRIA) the Non- governmental organizations (NGOs) at the State level along with their partner NGOs in the concerned districts who were already working with the Panchayat Raj Institutions at the grassroots with good track record shall be participating in the pilot and play supportive role to strengthen the pilot interventions and prescribed processes along with SERP, CPR and APARD. They shall provide support in hand holding measures at the grassroots along with the DPMU, and also at the State level interventions with other core team members.


The Role of SERP


Strengthening Functional Committees at the Gram Panchayat

The existing functional committees of the GP formulated as per the AP PR Act of 1994 shall be strengthened as per the pilot guidelines.


Monitoring and Evaluation:

Pilot success will be assessed against monitoring indicators specific to the pilot recognizing time required to develop capacity in PRIs to assume service delivery and other mandated functions.

The pilots will be monitored and evaluated against key monitorable indicators (annexure-II) developed as per the Pilots prescribed processes.


Regular Process Monitoring tailored to pilot objectives along with, Base line Survey conducted prior to the implementation of the first modules of capacity building by a separate agency/ organisation in order to take stock of the both the facts and perceptions (questionnaire based) among key stake holders –citizens, ward members, Sarpanches, department and line department officials and our CBOs (SHG), etc, will be conducted in the pilot. An independent evaluation team with a panel will be constituted to track changes in actual situation and perceptions over time.


A monitoring committee with the following officials & elected representatives at district level shall also be constituted to monitor the implementation of the above programme.

1.     Chairperson, Zillah Parishad as Chairman

2.     District collector as Co- Chairman

3.     Mandal Parishad Presidents concerned as Member

4.     Chief Executive Officer, Zillah Parishad as Member

5.     Project Director, DRDA and Velugu as Member convener

6.     District Panchayat Officer as Member


Implementation Strategy for Tribal Mandals

 In predominantly tribal mandals, the pilot will work to strengthen the relationship between the GP, MPs, and Village Tribal Development Agencies (VTDAs) and other CBOs. These local organizations are fairly well structured (and accountable) but are starved of funds. Project funds, and functional linkages between the VTDAs and the Panchayats will significantly improve the viability of these important tribal user groups. 


Strategic Communication

 There will be a strategic communication component that will be an important part of the awareness building process that is very important for success of the pilots.  Audio and video materials will be developed for widespread dissemination about AP RPRP and the pilots.  Cultural teams will also pay regular and semi-annual visits to pilot areas and perform skits and songs that transmit important messages about rights, opportunities, and processes under the project.  A range of printed material will be made available such as newsletters, brochures, and posters.


Nodal agency

The Commissioner, Panchayat Raj & Rural Employment shall take lead in providing institutional arrangements for implementing the pilots and provide both staff and technical inputs to facilitate the processes by constitution of a cell. The cell will be headed by the Additional Commissioner and supported by the Project Director (from the cadre of CEO, Zilla Parishad), District Panchayat Officer, Divisional Panchayat Officer, Superintendent, Computer Assistant and an office Assistant, to implement and co-ordinate the pilot activities from the Department both at State and District level. Except the computer assistant and the office assistant, all the staff will be taken on deputation for the Cell. The Pay and allowances of all the officers shall be drawn from SERP.


 From SERP Dr. Sarah Kamala, SPM, PRI-PILOT in-charge will coordinate the activities of the Pilot project and work in collaboration with the Commissioner Panchayat Raj and Rural Employment.


At the District level, the Project Director, DRDA/Velugu along with the District Panchayat Officer in coordination with The Chief Executive Officer, Zilla Parishad shall implement the pilot as per the pilot guidelines (annexure-III).



Success in the pilot mandals would lead to a strong program for scaling-up across the project. 





                                                  M. SAMUEL



The Commissioner, Panchayat Raj & Rural Employment, Hyderabad

The Chief Executive Officer, SERP, Hyderabad

All the District Collectors

All the Chair Persons, Zillah Parishads

All the Chief Executive Officers, Zillah Parishads

All the District Panchayat Officers.

Copy to the Commissioner, Rural Development, AP, Hyderabad

Copy to the Commissioner, AMR APARD, Rajendranagar, Hyderabad


                             //  FORWARDED  ::  BY ORDER  //










List of the Mandals selected         


Sl.No.              District                                              Mandal


01.                   Adilabad                                              Sirpur ( ITDA )


02.                   Ananthapur                                         Singanamala

03.                   Chittoor                                               Varadayapalem

04.                   Kadapa                                              Atlur

05.                   East Godavari                                              Y. Ramavaram ( ITDA )


06.                   Guntur                                                  Bollapalli

07.                   Karimnagar                                          Elakathurthi

08.                   Krishna                                                A. Kondur

09.                   Kurnool                                               Bandi Atmakur ( Chenchu )


10.                   Khammam                                            Chintoor ( ITDA )


11.                   Mahaboobnagar                                  Amangal

12.                   Medak                                                 Kangti

13.                   Nalgonda                                            Chivvemla

14.                   Nellore                                                 Chittamur

15.                   Nizamabad                                          Gandhari

16.                   Prakasam                                            Dornala ( Chenchu )


17.                   Ranga Reddy                                      Kulkacherla

18.                   Srikakulam                                           Seethampet ( ITDA )


19.                   Visakhapatnam                                   Munchingput ( ITDA )


20.                   Vizianagaram                                       Gummalaxmipuram ( ITDA )


21.                   Warangal                                              Kothagudam ( ITDA )


22.                   West Godavari                                  Buttayagudem ( ITDA )



                                                                               M. SAMUEL

                                                            PRINCIPAL SECRETARY TO GOVERNMENT


//  ATTESTED  //







AP RPRP PRIs and Poverty Reduction: Key Monitorable Indicators

Pilot Objective

Key Performance Indicator(s)

Outcome Indicator

Leading Indicator

Data Collection Strategy

PRIs become more accountable, inclusive, and poverty focused

Increased pro-poor expenditures in MPs and GPs, greater voice in decision-making for traditionally weaker socio economic groups (gender and caste).

Majority of pilot funds mobilized to benefit the poorest sections of GPs and MPs.

Majority of approved subprojects are being implemented by CBOs from poorest sections of villages, GP works proportionately in poorer areas.

Project MIS, surveys, and social audits.

Disaggregated Objectives

Outcome Indicator

Leading Indicator

Output Indicator

Data Collection Strategy

GPs and Mandal become more inclusive and transparent

Communities and their CBOs are empowered vis a vis GP and MP—feel voice is heard & needs reflected in programs

Average villager can the explain role and functioning of village and mandal panchayats

Increased consultations/meetings between ward members and constituents.

Process monitoring, focus groups, HH surveys.

Women and SC/STs become empowered members of rural local bodies

Increased number of decisions that reflect the traditional concerns of women and the poor.

PRIs sharpen poverty and HD focus of activities sharpened, budget allocations increase.

Higher levels of participation among vulnerable groups, and strategic coalitions.

Process monitoring, focus groups, HH surveys.

GP and MP improve overall functioning, according to principles of local government

Representatives develop high awareness of roles and responsibilities; more powers devolved to GPs and MPs.

Typical GP ward member or MPTC can explain their operating principles, explain procedures e.g. accounting & financial mmgt.

More GP members and MPTCs regularly scrutinize accounts; increase number of coalition

Process monitoring, focus groups

Accounting/Financial management capacity strengthened and Corruption Reduced

Financial transparency significantly improved and incidences of rent seeking and theft significantly reduced.

Communities perceive less corruption among PRIs; MPMC and GPMC negative reports decrease

Stronger financial management and accounting procedures put in place and regular audits conducted.

MIS, Process monitoring, social and financial audits, HH surveys,

Enhanced Local Government Planning

Subprojects integrated into overall local government development framework

GP and MP combine funds from multiple sources to address local development.

Increase in funds from multiple sources integrated into local planning process.

Review of PRI finances and programs

Stronger partnerships between CBOs and PRIs

CBOs viewed as critical extension of PRI service delivery mechanism.  Increased number of strategic and financial partnerships.

Funds channeled to CBOs by the PRIs substantially exceed project funds. 

Number of programs activities implemented by CBOs for PRIs increases beyond subprojects financed by the pilot funds

Review of PRI finances and programs

Effective Multi-stakeholder Committees

Shared goal, improved working relationship among key stakeholders

Increased shared understanding and goals

Multi-stakeholder collaboration improved.

Stakeholder Group Focus discussions.



                                                                               M. SAMUEL

                                                            PRINCIPAL SECRETARY TO GOVERNMENT


//  ATTESTED  //







Annexure III

Guidelines for implementation of PRI Pilots


Multi-stakeholder involvement

Various institutions at the state and grassroot level were involved at different levels to exploit the comparative advantages of these institutions and build stakes of different institutions into the process.  The functions to be assigned to different actors at different levels are as follow.


     Cost Sharing and Revolving Funds

1.     GP will be expected to provide a matching contribution equivalent to 20% of its CFC allocation, from its available sources of funds (such as own revenues).

2.     CBOs will contribute 10% of total subproject costs (in cash and kind).

3.     GP/Mandal will leverage all other funds existing with them and spend other sources of their funds and revenues with the Project /Pilot funds strictly as per the pilot guidelines with total transparency and accountability to members and the community.

4.     The pilot also shall look for other sources of funds for major interventions wherever necessary to address the needs of the poor


     GPs to perform key functions


The key features of the piloting are.

Financial Arrangements


The DPMU along with CPR will use a simple formula to allocate funds to each GP, based on characteristics such as population, and per capita income, and social indicators.

There will be a Memorandum of Understanding between the DPMU and GPs through which GPs will agree to implement transparent planning and fiduciary processes as a condition for accessing the block grant. 

Each participating GP must open a separate bank account for the management of project funds, and institute adequate bookkeeping and accounting procedures—capacity building will be provided under the project.

Each CBO and implementation agency/committee will sign a performance agreement with the GP (or MP).

DPMU would also allocate separate resources to the Mandal Parishad to coordinate the activities of the Community Coordinators and the NGOs.  These funds will be subject to similar arrangements as GP—separate account, etc.

Self-Accounting Principles

  1. Sarpanch will have an imprest account of a fixed amount decided by the GP General Body that can be replenished with GP approval. This would allow some spending flexibility while retaining financial oversight by the general body.
  2. All GP expenditures will be accounted for and reported in monthly statement of accounts that will be presented to the GP General Body.
  3. For GP expenditures, the Sarpanch and Upa Sarpanch along with the Functional Committee Representative must sign each check.
  4. For CBO expenditures, the President and Treasurer must sign checks (as per existing AP DPIP guidelines).

Monitoring of Implementation and Finances:  Social Audit

  1. The GP and Mandal Implementation Committees can request detailed accounts of the GPs/MP for scrutiny.
  2. GPs and MPs should post information on approved works and allocations to CBOs and beneficiary committees in a public place in each habitation, and details should be forwarded to both the GPMC and the MPMC.
  3. The GP Monitoring Committee must certify the successful completion of works, including verification of approximate actual costs with peoples estimates.
  4. The GPMC must investigate all complaints concerning misappropriation or corruption, and recommend appropriate action to the GP (e.g. disqualification of a GP/MP for receiving future funds).
  5. The APM should maintain a database of monitorable indicators—physical, financial, social, and process monitoring.



                                                            PRINCIPAL SECRETARY TO GOVERNMENT

//  ATTESTED  //