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171. Organisation Through Neglect: Understanding Field Administration in India

Author:
Rashmi Sharma
Publication Date:
03-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
This paper analyses the structure and processes of field administration in India and matches these with the outcomes on the ground. It highlights features of the administrative structure, human resources, and organisational culture that result in the sub-optimal delivery of social services and policy implementation. Recognizing the importance of historical antecedents, the paper provides a brief account of how field administration has developed over time. Subsequently, it presents the findings of a case study of a district situated in Madhya Pradesh. This is followed by a delineation of the key areas for reform and some possible strategies, though these need to be formulated after rigorous debate. The paper traces the roots of the present-day field administration to the colonial era, when the existing decentralised and diffused field administration system was changed to achieve the government’s goals to maximise revenue from land and forests and maintain order. The district became the key administrative unit in the field, and the district collector (DC) the overall administrative head. After Independence, government goals shifted dramatically, and socio-economic development became a central concern. However, the basic administrative structure was retained, while several departmentalorganisations were added.
Topic:
Governance, Colonialism, Human Resources, and Administration
Political Geography:
South Asia and India

172. Frontline Functionaries in India: The Absent Policy

Author:
Rashmi Sharma
Publication Date:
03-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
In the context of a high level of dissatisfaction with the delivery of government services in India, this paper traces the evolution of policy regarding key actors in this process— frontline functionaries or street-level bureaucrats. Frontline functionaries form a special subset of the bureaucracy as they come in close contact with citizens, and negotiate government policy with specific citizen needs. The paper provides a historical background illustrating the continuity of colonial era ideas with the current policy regarding frontline functionaries, and also examines it against broader developments in policy and the administrative structure. The policy regarding frontline functionaries is scrutinised against their three roles: as government employees, as professionals or skilled workers in specific fields, and as workers serving the community. The paper shows that frontline functionaries, only loosely connected to the government before colonization, subsequently became government employees, as the government sought to increase the efficiency of revenue collection from land and forests, and to maintain order. Because the colonial government minimized administrative costs, it paid frontline functionaries very poorly, placed them near the bottom of an extremely hierarchical bureaucratic structure and provided them with minimal promotion avenues. Frontline functionaries were not considered worthy of serious responsibility, expected to follow orders, had little education and training and were treated harshly by senior officials. Consequently, their performance was unsatisfactory. They were often corrupt and exploited the community.
Topic:
Government, Decolonization, and Bureaucracy
Political Geography:
South Asia and India

173. Regulating Air Quality at an Airshed Level in India

Author:
Shibani Ghosh, Bhargav Krishna, and Abinaya Sekar
Publication Date:
08-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
Air pollution is a pan-India problem, and whether viewed in terms of pollution sources or exposure, there is no reason to continue an urban-focus in air pollution mitigation measures. It is imperative for air quality governance in India to transition from a city-centric approach to an airshed approach. As resources to address the pollution crisis are scarce, a coordinated effort across a region, that supports consistent and uniform measures against similar pollution sources, is likely to lead to greater gains in terms of air quality. In this Paper, we unpack some of the key issues relating to airshed-level governance and what is required to make that transition in India. The current regulatory set-up is designed to primarily focus on point sources, and the jurisdictional mandate of regulatory bodies aligns with state or city boundaries. To effectively regulate pollution and reduce pollution exposure, changes need to be introduced to this regulatory architecture, making it adopt an airshed-level approach. To begin with, airsheds have to be demarcated based on several criteria. However, there is sufficient literature available to initiate necessary reform measures, and the transition to an airshed or regional approach is not contingent on perfect airshed demarcation. We propose that airsheds be notified under the Air Act by the State Governments as ‘air pollution control areas’, and the Union Government may constitute, through notification, multi-stakeholder institutions for each airshed under the EP Act. We have outlined the composition of such an institution, its powers, roles, and responsibilities. It will be a focal point for standard setting, policy guidance, planning and knowledge generation for the airshed, while not being involved in enforcement. A key ingredient for successful airshed-level governance is effective accountability mechanisms that ensure compliance by actors across the region. We envisage a role for the Union Government under the EP Act as well as for the National Green Tribunal in this regard.
Topic:
Governance, Regulation, Domestic Policy, and Air Pollution
Political Geography:
South Asia and India

174. A Health-Centred Framework for Establishing Ambient Air Quality Standards

Author:
Bhargav Krishna and Abinaya Sekar
Publication Date:
09-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
Air quality standards are primarily health-based standards that define the ambient concentration of air pollution to which the public can be exposed without suffering harm to their health. In India, the Central Pollution Control Board (CPCB) is tasked with setting the National Ambient Air Quality Standards (NAAQS) under the Air (Prevention and Control of Pollution) Act of 1981. The NAAQS were first established in 1982 for four pollutants (suspended particulate matter, nitrogen dioxide, sulphur dioxide and carbon monoxide) and subsequently revised in 1994 and 1998 to include several more. The current iteration of the NAAQS were notified in 2009 and were aligned with the World Health Organization’s (WHO) interim air quality guidelines. The most recent revision of the WHO guidelines for ambient air quality in September 2021 rendered the NAAQS as substantially weaker in comparison. The alignment of the NAAQS with these global guidelines will require integration of the wealth of new health data generated since 2009 on the deleterious effects of air pollution on health both locally and globally. The 2009 NAAQS revisions were notified through the Gazette of India with no contextual information provided on the composition of the committee tasked with the revisions, or on the kind of data or information used by the committee to draw its conclusions on the acceptable levels of exposure to various pollutants. In August 2021, the CPCB convened a committee to review and update the NAAQS. The committee’s wide-ranging remit includes an assessment of the health risks of air pollution, establishing guidelines for monitoring, identifying non-attainment areas, and revising the Air Quality Index (AQI) through which health risks are communicated to the public.
Topic:
Regulation, Public Health, and Air Pollution
Political Geography:
South Asia and India

175. Understanding Enablers and Barriers to Social Protection of Sanitation Workers

Author:
Anju Dwivedi, Abhinav Kumar, and Shubhagato Dasgupta
Publication Date:
07-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
There has been a strong focus on improving the sanitation situation in the last decade in India due to the Government of India’s flagship program called Swachh Bharat Mission. In the last decade, the country witnessed an increase in the number of toilets, Sewer Treatment Plants and Faecal Sludge Treatment plants. The demand for sanitation services has spotlighted the issue of sanitation workers too. Sanitation workers are vital to the provision of safe sanitation for all the residents in the city. However, hazardous work conditions and low social status, coupled with discrimination, long working hours, and lack of social protection, accentuate their vulnerabilities. Recognizing the high level of social and economic vulnerability and discrimination faced by sanitation workers, the Government of India (GoI) and several state governments have initiated many programs and schemes, including social protection measures for Sanitation workers. The main objective of the research is to identify the enablers and barriers to availing social protection benefits (in the form of healthcare, insurance, pensions, and allowances) for sanitation workers. The study examines the social protection coverage of formal and informal sanitation workers in Dhenkanal, Odisha. Semi-structured interviews with Sanitation workers employed with ULB, private contractors and Area Level Federation were conducted to understand the challenges faced by Sanitation workers in accessing social protection. In addition, key informant interviews were also carried out with leaders from employee unions of sanitation workers, ULB officials, and other stakeholders, including private contractors. The study recognizes enablers such as a favourable policy environment, capacity enhancement, collaboration with other stakeholders, and barriers like low awareness, inadequate capacities, and lack of institutional convergence mechanisms to improve socioeconomic well-being and promote sanitation workers’ safety, dignity, and social protection. This study highlights the disparity in working conditions and employment benefits received by regular and contractual sanitation workers, the need for creating a formal grievance redressal mechanism and undertaking measures to build the capacity of sanitation workers. The report presents key recommendations emerging from the study, such as greater involvement of employee unions, convergence with other departments providing welfare benefits to sanitation workers, improving grievance redressal mechanisms, and creating more awareness and information dissemination to sanitation workers on different social protection measures.
Topic:
Labor Issues, Protection, and Sanitation Workers
Political Geography:
South Asia and India

176. Gender and Just Transition: Envisioning a Gender-transformative Pathway to Energy Transition in India’s Coal States

Author:
Suravee Nayak and Ashwini K. Swain
Publication Date:
04-2023
Content Type:
Working Paper
Institution:
Centre for Policy Research, India
Abstract:
Entrenched gender biases and injustices in the coal political economy cannot be wished away with the ongoing shift from coal to renewable energy. Rather, the energy transition must seek to unwind these entrenched patterns in the 20th century energy system while creating an equal role for and participation of women in the 21st century energy system. To do so, just transition planning must proactively engage with gender questions in coal communities and envision a gender-transformative pathway to the transition in India’s coal states. Analysing the forms of exclusions faced by women in coal economies, this brief argues that women face four structural barriers – entry barrier, distribution barrier, wage barrier and representation barrier – that are consequential for their social and economic status and agency. The combined effects of these barriers, the masculine nature of the coal industry and existing social norms marginalise women in India’s coal communities and confines them to three observed patterns of engagement: 1) social reproductive labour, 2) informal casual labour and coal scavenging, and 3) formal but menial labour in coal mines. The ongoing shifts in our energy foundations offer an opportunity to unwind the gender inequities and injustices of the coal economy and envision a gender equal energy future. In this direction, the brief suggests four immediate steps to engage with the gender question as part of just transition planning. Recognise women labour force in the coal economy through an intersectionality-informed analytical and assessment framework. Ensure women’s representation in just transition planning at different tiers of governance and decision making. Promote gender inclusive economic diversification in coal regions, with particular attention to women- centric and women-led economic opportunities. Treat women as change agents in the energy transition harnessing their potential role in smoothening the disruptions of the transition.
Topic:
Political Economy, Women, Coal, Inclusion, Gender, and Energy Transition
Political Geography:
South Asia and India

177. Making It Work: Institutionalising Social Audits in Meghalaya in India

Author:
Rajika Seth, Sidharth Santhosh, Avani Kapur, Neeha Susan Jacob, and Pritika Malhotra
Publication Date:
04-2023
Content Type:
Special Report
Institution:
Centre for Policy Research, India
Abstract:
In April 2017, Meghalaya enacted the Meghalaya Community Participation and Public Services Social Audit Act, 2017. The Meghalaya Society for Social Audit and Transparency (MSSAT) is responsible for implementing the Act. This legislation is the first of its kind in the country. This policy note aims to unpack how social audits have been institutionalised in Meghalaya. By identifying strategic action that the State government took to pass the Act, the policy note presents reflections on the current state of affairs on social audits. It thus identifies core areas that the State government and the social audit unit can strengthen to ensure that efficient audits are conducted, thereby meeting the Act’s objectives.
Topic:
Domestic Policy, Public Service, Audit, and Local Government
Political Geography:
South Asia and India

178. How Is India Adapting to Heatwaves?: An Assessment of Heat Action Plans With Insights for Transformative Climate Action

Author:
Aditya Valiathan Pillai and Tamanna Dalal
Publication Date:
03-2023
Content Type:
Special Report
Institution:
Centre for Policy Research, India
Abstract:
What are heat action plans (HAPs)? HAPs are India’s primary policy response to economically damaging and life threatening heatwaves. They prescribe a variety of preparatory activities, disaster responses, and post-heatwave response measures across state, district, and city government departments to decrease the impact of heatwaves. Our assessment of Indian HAPs In this report, we conduct what is, to our knowledge, the first critical review of heat action plans in India. We analyse 37 heat action plans at the city (9), district (13) and state (15) levels across 18 states and identify several opportunities to strengthen Indian HAPs. We also document an encouragingly wide range of solutions (covering 62 distinct intervention types) prescribed across these HAPs, from promoting green roofs to state-wide school awareness programs (see the interactive figure below). This lays out a consolidated toolbox of options for the Indian HAP designer and policymaker.
Topic:
Climate Change, Public Policy, Public Health, and Heat Waves
Political Geography:
South Asia and India

179. Where Do the Victims of Gender Based Violence Go: A Needs Analysis for Women’s Safety Schemes in India

Author:
Tanya Rana, Ritwik Shukla, and Avani Kapur
Publication Date:
03-2023
Content Type:
Special Report
Institution:
Centre for Policy Research, India
Abstract:
Despite several efforts, a survey in 2018 ranked India as the most dangerous country for women. The Government of India’s Ministry of Women and Child Development (MWCD) has several schemes, policies, and legislations, on women’s safety and empowerment. In 2021, MWCD’s key umbrella scheme of Mission Shakti was divided into two sub-schemes called Samarthya and Sambal, focussing on “empowerment” and “safety and security” of women, respectively. Looking at women’s safety, this note explores the needs and finances for two schemes – One Stop Centre (OSC) and Shakti Sadan (SS) – subsumed under Mission Shakti, meant for redressal and rescue of women. There are significant gaps in the number of victims of Gender-based Violence (GBV) receiving assistance to those who may need it. In the Financial Year (FY) 2021-22, MWCD should have spent at least ₹374 crore and ₹449 crore, respectively, on OSC and SS. MWCD needs to construct at least 340 and 822 additional OSC and SS facilities, respectively, to aid all estimated victims of GBV. Lastly, comparing estimated costs for OSC and SS and existing finances, Mission Shakti allocations are only 41 per cent of total costs required for the two sub-schemes.
Topic:
Women, Gender Based Violence, and Public Safety
Political Geography:
South Asia and India

180. The Evolution of India’s Welfare System from 2008-2023: A Lookback

Author:
Accountability Initiative Staff
Publication Date:
02-2023
Content Type:
Special Report
Institution:
Centre for Policy Research, India
Abstract:
In the 15 years that have gone by, India has seen a significant transition in the social sector, and lived through a pandemic. At the Accountability Initiative, Centre for Policy Research, we have tracked the provision of welfare services and entitlements since 2008, in-step with the country’s evolution over these years. The year 2023 marks a moment to pause and reflect for us as we celebrate our 15th anniversary, and the Centre for Policy Research reaches its milestone of 50 years. But, aside from our legacy of evidence-based knowledge sharing, this reflection is important in one more way. In 2024, India will choose a new government. A lookback on welfare spending and outcomes is an essential first step to understanding future priorities and pathways to development. Drawing from previous Union Budgets, this Special Brief will dive into six major aspects. Firstly, reviewing the sources of funding available with the government. Secondly, analysing trends in expenditures including social sector allocations for key ministries and schemes. Thirdly, the devolution of funds to states who are primary spenders on welfare services. Fourthly, unpacking social sector schemes over the years. Fifthly, analysing select outputs and outcomes over time. Lastly, we offer our own experience by providing a snapshot of the changes in government Management Information Systems which are critical to monitoring welfare schemes, among other aspects. For the purpose of this Special Brief, we are covering the period from 2009-2023. Actual Government of India (GoI) expenditures have been used till Financial Year (FY) 2020-21. For FY 2021-22, figures are Revised Estimates (REs) and Budget Estimates (BEs) for FY 2022-23.
Topic:
Budget, Public Policy, and Welfare
Political Geography:
South Asia and India