Participatory Governance: First 'Booth level Citizens Committees' of India

Recently I had to answer the queries raised by a correspondent from Delhi (Hindustan Times), regarding the ‘citizen committee’ experiment in Hubli-Dharwad city. (First of its kind in the Country, on participatory governance).


I thought I will share it here, as it has got certain view points on transparency, decentralization and Participatory governance.


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1. How did the citizens’ committees come about?


After observing the difference of opinion, between the Municipal commissioners and the elected council, which used to end up in the commissioner being transferred, Nilay Mitash, IAS officer of 1991 batch and my mentor, once remarked, “Mani, try building bridge with the citizens, if they are convinced, then the elected councilors won’t create issues”.


I did agree to the logic, but then I have to wait till the spring of 2005, when I met the extraordinary person, Ramesh Ramanathan, who introduced me to the concept of ‘Citizen committees’ and motivated me to go for one at HDMC.


The idea was so simple and convincing, with few eminent citizens (Prof. Savadatti, Ex-VC of Mangalore University) of Hubli, supported by CMAK (Prarthana Rao), we went ahead in a big way to form the Citizen committees. The concept was customized to great extent. We developed in-house software to select the members, with certain criteria like 1/3 to be educated with at least PUC qualification, 1/3 women etc.



There was a good response from the citizens. We formed one committee for every polling booth, thus more than 570 booths, each having 9 members. This was the first experiment on civic participation in the lines of ‘The Nagar Palika bill’ in the entire country.



We had seminars, meetings, and handbook printed. The concept caught up well, though some of the officers and elected councilors were not so happy. Thanks to the able captainship of Prof. Savadatti, the committees survived, though there were allegations that they were not supported by the administration and council for some time.



They are still there, though their power is not fully tapped. They are a great force, and one day they will not only guide the HDMC, but also decide its speed!




2. Aren’t they an obstacle too, in some ways?


They may appear to be, at times, but, they are not. They are not obstacles in any manner except that during their growth into a mature institution, they will also make mistakes, as anyone else does!


It is not easy to learn to work in a democracy. It is like learning to ride a Bi-cycle; Disbelief in the starting, then taking control of the machine, balancing yourself, and then moving ahead. One has to fall and hurt himself in the starting. But, then you learn the art. This starting phase is very critical and prone to be dismissed as not starter. But, a persistent learner, and a wise teacher will know what lies ahead.


Similarly, with the citizen committees, it will take some time to get streamlined. But, once put on track, it has got the potential to reduce the distortions in our elected system, drastically. (As we know, the distortions are not only in the way the elections are won, but in the system itself, like the ‘first-past-the–post, wherein, one gets elected even with only 30% of the votes, if the other candidates have individually polled less than him, though their collective vote may be more than 30%.)


Compared to dictatorial and monarchical system, democracy itself is an obstacle to take speedy decision. But such obstacles are preferred over the rapid decision making capability of any other system. Let us recall the wise statement that democracy is not all that efficient, but it is a better system than all other known systems.


So the citizen committees are not an obstacle, though the transparency will lead to little inconvenience in the starting. This time is crucial. We should be able to bear the hurt and pain to learn cycling. But, they are definitely not be an obstacle.




3. There does not seem to have much political opposition to the reforms. How was it managed?


Political opposition normally takes its strength from public opposition. Hardly there will be political opposition when public support the cause. The public support can be enlisted, if we respond to the public in a credible manner.

1. The credibility of the HDMC was established in 1 year, with the following steps.The HDMC started responding to the citizen grievances effectively thru a 24x7 helpline, and 24x7 action teams.
2. Much transparency was brought into the financial system, particularly on the expenditure side.
3. Went down heavily on the illegal encroachments etc.

At the same time, we need to give credit to the political leadership of HDMC, who were not ‘insecure’, and hence gave the benefit of doubt to the administration. Also, every political leader wants development. And if reforms accelerate the development, then many welcome it.




4. How did the idea develop on urban reforms?


There is nothing great about the ideas. They are based on three simple things:

1. Transparent administration, which increases the credibility of the admn.
2. Participatory governance, where the stake holders have a say. (This was followed in office also, with the top officials meeting once in a week, to make collective decisions)
3. Use of IT extensively.

Added to this is the ‘autonomous environment’ which allows the CEO quite a lot of flexibility, which is otherwise not available in the routine bureaucratic-legal constraints. It is a sin, if any Municipal commissioner is not using the autonomy to bring in drastic changes in the live of poor people.



I also would like to sincerely thank the following senior IAS officers who moulded my ideas on urban issues, like, Ravikumar, Subhash Chandra, Nilay Mitash, Selvakumar, Amlan Biswas etc, and my colleagues like, Shanbhag, Das etc.




5. How did the process start?


The process started with cleaning the house. The following steps have been taken:

1. Put in a staff grievance redressal mechanism, where-in every month all staff, whose birth date falls in that month get to meet the Municipal commissioner, over tea. Thus whole office of 2500 employees gets to meet the Municipal commissioner face to face once in a year. This not only brought down their grievances, but also motivated them.


2. Public grievance redressal mechanism for citizens. Complaints have been divided into A (24 hrs), B (1 week), C (1 month), and attended to scientifically. Citizens started trusting the HDMC.


3. When we find that the pyramidal organization structure was not allowing us to respond to the citizens promptly, we went for major restructuring, involving decentralization, with opening of 12 autonomous zonal offices, headed by the Asst. Municipal commissioners.


4. This was a landmark event, because, it increased the efficiency greatly. Instead of one Municipal commissioner, now we have 12! There is a need to ‘decentralize’ and ‘empower’ the officers.


5. In any developing country, there will be a gap between the ‘demand’ from the citizens and the ‘supply’ from the government on all aspects of governance. This ‘gap’ will lead to grievances from the citizens. These grievances have to be addressed properly, as lapses in this regard shows the government in poor light and erodes the credibility.


6. To address these grievances properly and speedily, we need to have sufficient number of ‘decision makers’ who are ‘empowered’ to take decision, and are accountable. It’s like cloning of the Municipal commissioner and appointing each to one zone of the city.


7. More the Zones, more is the help to citizens. But, the numbers cannot be increased, due to financial constraints. The number of Zones per city has to be worked out on an empirical formula, which takes into account the population, area, revenue generation, qty of water supplied, sewage generation and disposal etc. Weightage is given to each of the factor.




6. People in both Hubli-Dharwad and Mysore greatly support the reforms, why?



The public supported the reforms due to the following reasons:

1. They look for somebody to bring in change. If there is a credible promise, citizens are ready to give a chance.
2. The credibility was built assiduously, thru grievance redressal mechanisms, which responded to the citizens effectively. This credibility was the most crucial matter for the public to support. Credibility was also ensured thru, transparency and participatory governance.
3. It benefits them! They see that the roads are improved, corruption is less, services better. (Kindly refer to the ‘citizen card’ survey made by Public Affairs Centre (PAC)). Why won’t the citizens support it?!

Needless to say, the organization can be transparent and afford to invite participation from stake holders, only when it has nothing to hide! Integrity matters!

Nice poems!

Most of us might have come across the following poems. This is for those who missed it. It's the 'reply' which makes both these poems interesting!

The Passionate Shepherd to His Love

Come live with me and be my love,
And we will all the pleasures prove,
That valleys, groves, hills, and fields,
Woods, or steepy mountain yields.

And we will sit upon the rocks,
Seeing the shepherds feed their flocks,
By shallow rivers, to whose falls
Melodious birds sing madrigals.

And I will make thee beds of roses,
And a thousand fragrant posies,
A cap of flowers and a kirtle
Embroider'd all with leaves of myrtle:

A gown made of the finest wool,
Which from our pretty lambs we pull;
Fair lined slippers for the cold,
With buckles of the purest gold:

A belt of straw and ivy buds,
With coral clasps and amber studs;
And if these pleasures may thee move,
Come live with me and be my love.

The shepherd swains shall dance and sing
For thy delight each May morning;
If these delights thy mind may move,
Then live with me and be my love.

-Christopher Marlowe


And now the reply...

Her Reply

IF all the world and love were young,
And truth in every shepherd's tongue,
These pretty pleasures might me move
To live with thee and be thy Love.

But Time drives flocks from field to fold;
When rivers rage and rocks grow cold;
And Philomel becometh dumb;
The rest complains of cares to come.

The flowers do fade, and wanton fields
To wayward Winter reckoning yields:
A honey tongue, a heart of gall,
Is fancy's spring, but sorrow's fall.

Thy gowns, thy shoes, thy beds of roses,
Thy cap, thy kirtle, and thy posies,
Soon break, soon wither--soon forgotten,
In folly ripe, in reason rotten.

Thy belt of straw and ivy-buds,
Thy coral clasps and amber studs,--
All these in me no means can move
To come to thee and be thy Love.

But could youth last, and love still breed,
Had joys no date, nor age no need,
Then these delights my mind might move
To live with thee and be thy Love.

-Sir Walter Raleigh

The Passionate Shepherd to His Love is a poem written by the English poet Christopher Marlowe and published in 1599 (six years after the poet's death). In addition to being one of the most well-known love poems in the English language, it is considered one of the earliest examples of the pastoral style of British poetry in the late Renaissance period.

The”reply" by Walter Raleigh, is called The Nymph's Reply to the Shepherd. The interplay between the two poems extends into the relationship that Marlowe had with Raleigh. Marlowe was young, his poetry romantic, rhythmic, and in the Passionate Shepherd he idealises the love object (the Nymph). Raleigh was an old courtier, and an accomplished poet himself.

Mysore water supply project; JUSCO

This is the letter to the Citizens on the Project revamping the water supply system of Mysore into 24x7 system, by JUSCO. There were arguments for and against. It was seen as privitisation of water supply.

Dear Citizen,

Warm Greetings to you!

Like me, you also must be reading everyday about the JNNURM project connected with revamping of the Mysore water supply system; the views and counter views! One side, groups supporting the project and other side those opposing it!

I appreciate both the groups for showing interest on such important civic issues and boldly expressing their views. I wish that they always take up such issues, discuss it threadbare so that it benefits the citizens of the city! I always welcome views and opinions, however different or opposing they are. Because, they help in clearing the doubts!

At the same time, a common citizen like you, must be wondering what is going on. I thought it is my duty to intervene and share with you what I know about the project so that it will be of help to you. Though there are numerous issues discussed, but, those that matter are just three.

1. Is 24x7 water supply really required and is it technically possible?

2. Does it involve ‘Privatization’? Who is opposing this and why?

3. Will there be increase in the water tariff after the project?

Let us address the issues one by one.

1. Whether we need 24x7 water supply? Is that technically feasible?

Five years back, in 2004, when I joined Hubli-Dharwad Municipal Corporation as the Commissioner, I also thought that, there is no need for 24X7 water supply, and it is sufficient to get water regularly for 2-3 hours every day.

But, later I learnt that 24X7 water supply not only makes it convenient for the people to use water at any time, but also ensures that:

1. Water is not wasted.

2. Water is not contaminated

3. It empowers the women folk to have freedom of choice.

How is it possible?!

Normally we all will think that, with 24x7 supply the wastage will be more. Interestingly, the answer is ‘no’ because, when water is supplied for 2-3 hours in a day and not regularly, we all tend to store water more than what is actually required.

For example, if your house requires 3 buckets of water, you will store water in all 5 buckets, because, you not sure when water will come next, and when it comes, it may be less than 3 buckets! Next day, when fresh water comes, you will empty the surplus water stored and again fill the fresh water. This is a repetitive feature in every house and every day. With more than 2.1 lakh homes (2001 census) in the MCC limits, is it not a colossal wastage of water?!

If water is made available round the clock in the pipe line, nobody will store the water and will only use as much as required as there will be meter. Then the wastage of the water will drastically come down. This has been proved in parts of Belgaum, Hubli & Dharwad, where water is being supplied round the clock

Next is about contamination. When water is supplied for 2-3 hours in a day, during rest of the time, the pipe line is empty, and it allows the outside ground water to seep inside, thus contaminating it. In 24X7, there is always water inside the pipeline under positive pressure and thus it does not allow any seepage inside the pipe. Thus, 24X7 water supply avoids contamination. It will make water much safer than what it is now.

Coming to technical feasibility, it is now a foregone conclusion that, 24x7 water supply is very much possible everywhere. Most of the cities abroad have 24X7 water supply and in India, Jamshedpur has it. Even in Karnataka, parts of Belgaum and Hubli- Dharwad have round the clock water supply.

2. Is there any privatization involved? Why there is opposition?

Interestingly, and contrary to the claims made by many, there is absolutely NO privatization in it! Let us see, how.

Privatization involves any of the following conditions.

1. Transfer of assets and infrastructure from the government to the private company, on permanent basis or long term of 30 years and above.

2. Freedom to the agency in fixing the charges (tariff).

3. Freedom to manage its affairs, including the staff.

Now, in the JUSCO project, none of the three are true! The assets will always be under the ownership of MCC and KUWSDB (Sec. 3.2.4 of the Contract) and will be only maintained by JUSCO and that too for a limited period of 6 years. There is no freedom to fix the tariff. Tariff is fixed by, ONLY by the MCC. The staff of VVWW, who will work under the supervision of JUSCO, will remain under the control of MCC/KUWSDB. Where is privatization in this?!

If so, why there is so much talk of Privatization and opposition?! Three reasons may be there. One, the some of the NGOs and prominent citizens, strongly feel that they must have been consulted and taken into confidence before the agreement was signed. Their feelings are understandable. But consultation was done with the Mysore Municipal council, which duly approved it.

I suggest that we may go for an ‘advisory committee’ involving concerned citizens, which will work along with the project. What we require now is proper implementation of the project. Such a committee will go a long way in ensuring quality work, and avoid delays.

The second reason is based on ideology. There are people who have strong negative views on anything that are managed by private persons. In any case, JUSCO is only an operator, and not the owner. They have been given like any other contractor, a task to perform with efficiency parameters, for which they are being paid.

The third, but not the least are from the vested interests. Its mainly the lobby comprising of ‘the powerful’ who influence the VVWW and ensure illegal connections (20,000 illegal connections as per the records of VVWW itself!), who don’t pay for the water they consume. Naturally they will oppose any transparent and efficient project that will put an end to such brazen illegalities.

3. Will there be increase in water tariff?

As mentioned already, JUSCO has absolutely no control in fixing the tariff. Tariff will be decided by the MCC. Even one rupee increase can be done only by the MCC council! Needless to say, a popularly elected council will think twice before increasing the tariff. Thus, the tariff may remain the same, but those who are paying less due to faulty meters will be paying for what they are consuming. And many, who were not paying anything, will have to pay, except the poor who will continue to get water from public taps.

Thus the project will change the things for good. There is nothing worthwhile to oppose the project. The tender process has been done in a transparent way. 12 companies participated, and JUSCO won the bid as it quoted the lowest. The agreement is available in the website. MGP has gone thru and given its comments too. The project is funded to 80% by the central government, and 10% by the state government. Mysore may never get so much money to overhaul the water supply system.

The project will bring in professionalism and efficiency; build the capacity of VVWW. (So that VVWW takes over the operations, after JUSCO leaves.) Such professionalism will benefit the citizens in long run, as it will reduce corruption, and increase the efficiency of the system. It is an opportunity the city should not miss. Citizens should move ahead with the project and ensure that it is implemented properly.

Warm regards and best wishes,

Manivannan, P.